Supported Living Flats for Young People, Adamsdown, Cardiff

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SUPPORTED LIVING FLATS FOR YOUNG PEOPLE, ADAMSDOWN, CARDIFF

PLANNING STATEMENT

Prepared by LRM Planning Limited on behalf of Cardiff Council

October 2020

Report Control

Project: Supported Living Flats for Young People, Adamsdown, Cardiff

Client: Cardiff Council

Job Number: 19.296

File Origin: 19.296/6. Reports

Document checking

Primary author: Rhys Jones Initialled: RJ

Review by: Steffan Harries Initialled: SH

Issue Date Status Checked for issue

No rev 22/09/20 Complete SH Rev A 24/09/20 Complete SH

Contents 1 Introduction ...... 3 2 Site description and context ...... 5 3 Proposed development ...... 7 4 Pre-application engagement ...... 10 5 Planning policy framework ...... 12 6 Appraisal ...... 19 7 Conclusion ...... 23

1 Introduction

1.1 This Planning Statement accompanies a full planning application submitted on behalf of Cardiff Council for a new supported living flats for young people on the site of the former, now demolished, Citadel in Adamsdown.

1.2 The development aims to deliver new homes for young people between the ages of 16 and 21. Through the combination of high quality living accommodation and dedicated round the clock support, the scheme will help residents live independently in permanent accommodation.

1.3 The Planning Statement provides an overview of the scheme, a description of the site, its planning context.

1.4 The application seeks consent for the development of 10 studio flats in one main building, accessed off Splott Road. The main building will also accommodate additional communal spaces for residents on the lower ground floor and for staff services on the ground floor. In addition to the main building, the proposal also includes the development of two self-contained one bedroom flats, accessed off Pearl Place, which have also be designed for young people.

1.5 This Planning Statement forms part of a suite of drawings and documents produced in support of the proposals. The Planning Statement and accompanying technical reports outline how the proposed scheme demonstrates the site’s suitability to accommodate the proposed development. The full suite of documents submitted comprises:

Document (ref where applicable) Prepared by

Planning application forms LRM Planning

Planning Statement LRM Planning

Design and Access Statement Austin-Smith:Lord Architects

Landscape Plan Rev.A Austin-Smith:Lord Architects

Topographical Survey Site Plan (S20001- Quad Consult 001(R1))

Topographical Survey Elevation A-A Quad Consult (S20001-002)

Topographical Survey Elevation B-B Quad Consult (S20001-003)

Topographical Survey Elevation C-C Quad Consult (S20001-004)

Preliminary Drainage Strategy (19049-C-003 Quad Consult rev 2)

Noise and Vibration Assessment Report Wardell Armstrong

Geotechnical Survey (report no. 15306) TerraFirma

Tree Constraints Plan Treescene

Tree Survey Treescene

1.6 The application is also supported by the following drawings, prepared by Austin-Smith:Lord Architects:

Drawing Reference

Site Location Plan ADC-ASL-00-00-DR-A-0000 rev.1

Site Plan ADC-ASL-00-00-DR-A-0001 rev.4

Constraints and Opportunities Plan ADC-ASL-00-00-DR-A-0003 rev.1

Lower Ground Floor Plan ADC-ASL-00-00-DR-A-0100 rev.4

Ground Floor Plan ADC-ASL-00-01-DR-A-0101 rev.4

First and Second Floor Plan ADC-ASL-00-02-DR-A-0102 rev.3

Roof Plan ADC-ASL-00-04-DR-A-0104 rev.1

Sections ADC-ASL-00-ZZ-DR-A-0200 rev.3

North Elevation Main Building ADC-ASL-00-ZZ-DR-A-0210 rev.2

East Elevation Main Building ADC-ASL-00-ZZ-DR-A-0211 rev.2

South Elevation Main Building ADC-ASL-00-ZZ-DR-A-0212 rev.2

West Elevation Main Building ADC-ASL-00-ZZ-DR-A-0213 rev.2

West Elevation Step Up Flats ADC-ASL-00-ZZ-DR-A-0310 rev.2

South Elevation Step Up Flats ADC-ASL-00-ZZ-DR-A-0311 rev.3

East Elevation Step Up Flats ADC-ASL-00-ZZ-DR-A-0312 rev.3

North Elevation Step Up Flats ADC-ASL-00-ZZ-DR-A-0313 rev.3

Views (3D images) -

1.7 The following sections discuss the site and its context; the proposed development; a summary of pre-application discussions; planning policy context; an appraisal of the development; and a conclusion in respect of the application submitted herein.

2 Site description and context

2.1 The site is located in the Adamsdown ward, approximately 1.4km east of Cardiff city centre. It is a sustainable brownfield site, well within the settlement boundary. The plot is of an irregular shape and set down from the adjoining Splott Road to the north-east. Vehicular access to the site is available via Pearl Place from the south-west. The site is currently vacant brownfield land, since the demolition of the Citadel in 2017. To the north-west is a traditional row of two-storey houses of which no.26 bounds the site. The south-eastern boundary of the site abuts the main Swansea to London railway line.

Context

2.2 Beyond the site boundaries, the site lies in a predominantly residential area whilst also being within 250m walking distance of Clifton Street district centre (LDP ref. R4.3) to the north-west. Additionally, Splott Road local centre (R5.13) is immediately over the railway bridge 50m to the south-east. Both offer a variety of commercial and retail uses. In addition, the site is within close proximity of a host of amenities including a library, leisure centre, pharmacy and the Cardiff and the Vale Health Centre.

2.3 The local vernacular of the area consists primarily of two-storey Victorian terraced housing. The houses are built of dark stone with painted brick detailing around the fenestration and doors. Properties in the vicinity have a distinct form. Residential units are predominantly front-terraced dwellings directly fronting the street or set behind small garden areas.

2.4 There are a handful of three and four-storey buildings within the vicinity of the site. Additionally, opposite the site, at the former Riva Bingo site on the corner of Splott Road and Agate Street, permission has been granted for a 5-storey residential development of 47 self-contained flats (outline ref: 15/02271/MJR, reserved matters ref: 17/02338/MJR). The building height was “considered to provide an acceptable relationship with other buildings in the area, especially when considered against the scale and form of the previous building on site” as stated in the committee report.

Access

2.5 The site is 1.5km east of the city centre. Within 100m north west of the site are two bus stops which allow access to regular services including 10A, 11 and 613, which in combination operate every 10 minutes throughout the day between Cardiff, circling the city centre, and Tremorfa. Cardiff Queen Street railway station is 1.5km west of the site, which can be reached by bus or foot, providing services to the Valleys and Cardiff Central from where it is possible to access a number of local, regional and national locations.

2.6 The site is also in close proximity to the proposed Cycleway C2 which runs from the City Centre to Adamsdown, Newport Road retail parks, Rumney, Llanrumney and St Mellons Business Park. A nextbike station is located within 100m south-east of the site on Splott Road adjacent the Cardiff and the Vale Health Centre. Newport Road (A4161) is 0.6km north-west of the site and the A4232 is 2.4km south of the site.

Heritage context

2.7 In relation to heritage assets, the subject site is remote from anything of value. The site is not within a conservation area, nor does it contain or is near any listed buildings. There are no Scheduled Ancient Monuments, Registered Parks and Gardens or other heritage assets within the vicinity of the site which have the potential to be affected by the development proposals.

Flooding

2.8 The Welsh Government Development Advice Maps show the site to be within Flood Zone A, which demarks areas at little or no risk of flooding.

Planning history

2.15 The site has an extant outline permission (planning reference: 17/00171/MJR) for the “Construction of residential development of 17 x 1bed and 1x2bed apartments, parking, cycle, refuse and amenity facilities”, which expires in December 2020. Details of access, appearance, layout, scale, and landscaping were all matters to be considered at reserved matters stage. The illustrative plans indicate a modern design of interlinking blocks, to a maximum height of four- storeys. This was considered not to be out of character with the area, in the context of the outline application that had achieved a positive resolution at committee on the former bingo site (planning reference 15/02271/MJR), opposite the site application on Agate Street. The site was considered to be well served by public transport and the Council Highways raised no objection to the proposed access point from Pearl Place.

2.16 The following applications also relate to the entire site:

Planning reference Proposal Decision

05/02339/C Eleven self-contained flats with ancillary Refused 07/12/2005 parking (plus dedicated parking)

06/01346/C Eleven self-contained flats with ancillary Granted 15/09/2006 parking

16/02213/MNR Demolition of the Citadel junction of Pearl Prior approval be granted Street and Splott Road to enable 08/11/2016 redevelopment of the site

2.17 Additionally, the following historic applications relate to the south-western parcel of the site.

Planning reference Proposal Decision

02/00624/R Proposed detached dwelling house and Granted 13/05/2002 garage 03/00361/R Proposed new detached dwelling Granted 24/04/2003 04/02104/C Detached three-bedroom house Granted 02/12/2004

3 Proposed development

Overview

3.1 The application seeks consent for the development of 10 studio flats in one main building, accessed off Splott Road, and a further two self-contained one-bedroom flats, accessed off Pearl Place. The key objective is that through the combination of high-quality living accommodation and dedicated round the clock support, the scheme will help residents live independently in permanent accommodation.

3.2 The broad aim of the proposal is to create a scheme to promote physical and mental wellbeing with emphasis, on natural light and ventilation. Additionally, generous communal space standards, external views and quiet spaces is key to this development.

3.3 To support the studio flats, the development also proposes ancillary spaces including two multi- purpose communal rooms, and a laundry room. In addition, the proposals include staff accommodation to include two offices, kitchenette, bathroom, meeting room and a medical room.

Scale and massing

3.4 The main building is to be constructed to four-storeys throughout including the lower ground floor. The self-contained flats on Pearl Place will measure two storeys in height.

Appearance and materials

3.5 The proposal aims to provide a palette of materials that ties in with the wider townscape. Two brick tones are proposed, comprising of a dark grey/brown colour and a light grey colour, to break up the massing, whilst emphasising the elongated openings of the main building. On the front elevation, the bricks are contrasted on the eastern half of the elevation to add variety and interest. In addition, expansive glass panels are proposed on the eastern half along the stairs, which will be reflected in the reception area off Splott Road. A flat roof is proposed.

3.6 The elevational treatments of the separate flats on Pearl Place are contemporary in nature and will consist primarily of light grey brick. Dark grey roof tiles are proposed and a pitched roof. Elongated and single hung windows are proposed, with a flat roofed porch. Dark grey brown bricks will frame the entrance and windows to add variety to the proposal and tie into the main building.

3.7 Environmental sustainability is a key consideration in the formation of the proposal, thus a fabric first approach has been adopted, ensuring that the building achieves the highest level of insulation, whilst also minimising potential acoustic and vibration impact from the adjacent railway. This includes an entirely brick palette which is supplemented by mechanical ventilation and heat recovery system. Renewable energy capture, the use of water and electricity saving measures and a sustainable building management system also contribute towards the building achieving the highest environmental standards. Furthermore, the roof pitches of both buildings have been designed to maximise the solar energy harvesting via photo voltaic panels, to ensure

the proposal can maximise sustainable energy resources, should the opportunity arise.

Access and parking

3.8 The proposal will provide one car parking space, to the south west corner off Pearl Place, in close proximity and direct view of the flats. In general terms with regard to vehicular movement, the end users will not be car owners so will largely travel on foot, by bike, or other sustainable means. Accordingly, the single car parking space will be for the provision of a permanent vehicle used by the staff to take residents off site when required.

3.9 Four cycle stands, each capable of storing two bicycles, are provided within the site, in a safe and secure location to the rear of the main building. In addition, each studio flat will have a space for storing a bicycle within.

3.10 A separate cycle store to accommodate two bicycles is provided for the self-contained flats to the rear.

Ecology and trees

3.11 There is limited opportunity on site for inhabitation by protected species, given that it is formed of hardstanding / compacted rubble. The former buildings on site were demolished relatively recently and the site is in an urban area adjacent a railway. The site is therefore considered to be of minimal value for biodiversity.

3.12 The accompanying tree survey identifies eight trees on site along the eastern boundary, seven of which are denoted as category C, denoting unremarkable trees of very limited merit. The final specimen is classed as Category U, which denotes a very poor condition whereby its removal would be responsible on arboricultural grounds.

Landscaping

3.13 The site has no current vegetation of value, thus any new planting would be an improvement. In this regard, new trees will be planted along the eastern boundary of site to improve the visual appearance and biodiversity of the scheme. Further incidental planting will aid in softening and framing the amenity areas.

Drainage

3.14 The drainage strategy for this development is a key element of the design that has been developed by the Council’s appointed drainage engineer and informed by Sustainable Drainage Approval Body (SAB) through a series of meetings as the scheme has progressed. The final iteration of the drainage strategy has received a positive response from SAB and the Council is satisfied that it meets the new drainage statutory regulations.

3.15 The proposed foul water from the new development is to discharge to the public sewer.

Noise and vibration

3.16 To ensure minimal impact of the neighbouring railway line, a continuous acoustic barrier is 8

proposed along the boundary with the railway line to the east. In addition, the fabric first approach utilises a highly insulated building fabric in terms of both thermal and acoustic insulation, contributing to minimising potential noise and reverberation from the adjacent railway.

4 Pre-application engagement

Pre-application discussions with Local Authority

4.1 Pre-application written response was received from the Local Authority on the 24th July 2020 regarding the development. The comments received were positive, with the Local Planning Authority supporting the principle of the scale and layout proposed.

4.2 Advice was received regarding the policies and Supplementary Planning Guidance that are of relevance to the development. The Tree Officer stated that a tree assessment should be carried out and that a detailed upfront landscaping scheme should support any forthcoming application. Trees that are considered appropriate to support the Sustainable Drainage Systems (SuDS) scheme were also suggested.

4.3 The Highway Officer was supportive of the single car parking space in principle, but recommended checking its accessibility due to the presence of a telegraph pole, fire hydrant and fence. The eastern Pearl Place footway is required to continue as a dropped footway across Pearl Place Lane as far as the southern end of Pearl Place, and any redundant vehicle cross overs are to be stopped up. Surfacing improvements will be required for the access lane to the gardens of the self-contained flats, and consideration given to street lighting. The site fronting Splott Road is currently boarded off, and it appeared that part of the adopted highway is within the boarded off area which would need to be rectified with the application. To rectify this, there would need to be a suitable boundary delineation between the back of the (lower) footway and the site.

4.4 The cycle parking spaces provided were considered acceptable in principle, given there is sufficient distance of 1m between the Sheffield stands and that they are covered. Cycle parking directly in rooms is also considered acceptable as long as it is easily accessible and supplements the communal parking.

4.5 In terms of designations, the site had no constraints. The use class for the main structure is considered likely to be C2, with the two self-contained flats likely falling into C3. With regards to the Urban Design team, it was suggested that the eaves and the roof form could be modulated. In addition, it was suggested that the ground floor windows were too narrow, making the building appear top heavy. The area of brickwork containing the lift was considered to benefit from further consideration to introduce some richness, and possibly echo the windows of the stairwell. The stairwell windows were noted as interesting, however appear to be squeezed into the space of the façade.

4.6 Concerning the two self-contained flats on Pearl Place, the Urban Design team considered that more thought should be given to the solid to void ratio of the façade, and the window design in order for the building to the tie into the existing dwellings of Pearl Place. Comments were received suggesting that the roof angle does not align and suggesting that there was a lack of richness to the proposal.

4.7 The Waste Officer considered the bin storage area to be acceptable and it was recommended that the bins are enclosed within a bin store. The Waste Officer also outlined the waste storage

capacity requirements that the development will have to comply. Shared Regulatory Services provided a series of standard contamination-related conditions expected to be applied to any future decision.

Design Commission for Wales (DCFW)

4.8 An independent design review was organised with the Design Commission for Wales (DCfW) on the 2nd April 2020 who supported the proposed use in this location and were supportive of the opportunity for a potentially inspiring scheme which can set the precedent for other similar facilities within the city and beyond. Comments were received regarding the entrance and public realm; form, scale and massing; sense of home; external space; and engagement. The level change in front of the site on Splott Road, was identified as a challenging issue to solve, but an important one given it may be the last opportunity to address for a number of years.

4.9 There was limited information on the form, scale and massing of the proposed development when undertaking the review, however they supported the idea of a simple and robust palette of materials. It was also agreed that due consideration needs to be given the scale, with the roof form and fenestration to be analysed in this regard. The need to avoid an institutional feeling was considered critical to the scheme, with reception space required to be secure whilst welcoming. Similarly, the corridors and stair well should be generous, light and comfortable.

4.10 It was raised that the landscape design should be incorporated early and needs to be well integrated. Also, it was questioned whether any parking needs to be provided on site given its highly sustainable location. Finally, regarding engagement, the panel advised that it was important to communicate the ethos of the scheme and the benefits it will bring to residents. It was suggested that the applicant explore opportunities for interacting with the local community that could help residents develop additional skills and connections in the local area. Overall, the review was positive, and the written response reflected this.

5 Planning policy framework

5.1 The planning policy context for the determination of this application is provided by national and local planning policy guidance. National guidance is set out within Planning Policy Wales and its accompanying Technical Advice Notes. Local policy comprises the adopted Cardiff Council Local Development Plan (2006-2026), and its supporting Supplementary Planning Guidance (SPG) documents.

Planning Policy Wales

5.2 Planning Policy Wales (PPW) is the principal national planning policy document which sets out the land use policies of the Welsh Government against which development proposals should be assessed. The latest version is the tenth edition, published in December 2018.

5.3 The main thrust of PPW is to ensure that the planning system contributes towards sustainable development and improves the social, economic, environmental and cultural well-being of Wales. Placemaking lies at the heart of PPW, with policy and development management decisions required to seek to deliver development that adheres to these principles.

5.4 In a bid to ensure placemaking is prioritised, and in order to aid in implementing the Well-being of Future Generations Act, policy topics within PPW have been grouped under four themes, namely ‘Strategic and Spatial Choices’; ‘Active and Social Places’; ‘Productive and Enterprising Places’; and ‘Distinctive and Natural Places’. Each of the four headed chapters is supplemented by detailed and interwoven policy, which seeks to work together in delivering sustainable places.

5.5 PPW promotes action at all levels of the planning process which is conducive to maximising its contribution to the well-being of Wales and its communities. In this regard it seeks to achieve WG’s well-being goals. All statutory bodies in Wales carrying out a planning function must exercise those functions with the principles of sustainable development as defined in the Well- being of Future Generations Act. Accordingly, paragraph 1.17 of PPW confirms that there is a presumption in favour of sustainable development.

5.6 Figure 3 of PPW covers the Key Planning Principles of WG in seeking to achieve “the right development in the right place”. Development proposals must seek to deliver development that addresses these outcomes, albeit paragraph 2.20 recognises that not all of these outcomes can necessarily be achieved under every development proposal. Another Key Planning Principle of WG is facilitating accessible and healthy environments, stating in Figure 3 that “Our land use choices and the places we create should be accessible for all and support healthy lives. High quality places are barrier-free and inclusive to all members of society. They ensure everyone can live, work, travel and play in a way that supports good physical and mental health.”

Strategic and Spatial Choices

5.7 It is indicated within PPW that the first stage of the assessment of proposals must take place in respect of Strategic and Spatial Choices. In this regard it is stated that “Effective strategic placemaking requires early collective consideration of placemaking issues at the outset… when developing specific proposals” and “This includes considering the design of a development and its

impacts upon everyday lives as well as thinking holistically about where people might live and work and which areas should be protected. These crucial, early decisions will have the greatest impact on the type of development which is ultimately delivered and its contribution to sustainable development and the environmental, social, cultural and economic well-being of Wales.”

Good Design Making Better Places (paragraphs 3.3 to 3.18)

5.8 PPW places highlights the importance of good design in “creating sustainable places where people want to live, work and socialise”. In order to achieve good design development, proposals need to meet the five overarching aims of design which comprise of access, character, community safety, environmental sustainability and movement.

5.9 Paragraph 3.5 states that:

“Good design is inclusive design. Development proposals should place people at the heart of the design process, acknowledge diversity and difference, offer choice where a single design solution cannot accommodate all users, provide for flexibility in use and provide buildings and environments that are convenient and enjoyable to use for everyone.”

5.10 With paragraph 3.6 going on stating:

“Good design can also encourage people to meet and interact with each other, helping to address issues surrounding loneliness. Good design must also involve the provision of measures that help to reduce the inequality of access to essential services, education and employment experienced by people without access to a car. Design measures and features should enable easy access to services by walking, cycling and public transport.”

Promoting Healthier Places (paragraphs 3.19 to 3.24)

5.11 The Welsh Government indicate that the built and natural environment is a key determinant of health and well-being. In this regard PPW seeks to maximise access to health facilities, encourage healthy places with access to a range of activities, and integrate key design features into proposals that encourage activity.

Accessibility (paragraphs 3.45 to 3.48)

5.12 The overarching aim of spatial strategies should be minimising the need to travel, reducing reliance on the private car and increasing walking, cycling and use of public transport.

5.13 PPW seeks to ensure that proposals achieve a broad balance between housing, community facilities, services and employment opportunities in both urban and rural areas should be promoted to minimise the need for long distance commuting. Major generators of travel demand, such as housing, employment, retailing, leisure and recreation, and community facilities should be sited within existing urban areas or areas which are, or can be, easily reached by walking or cycling, and are well served by public transport.

Supporting Infrastructure (paragraphs 3.57 to 3.59)

5.14 PPW indicates that development should be located so that it can be well serviced by existing or

planned infrastructure.

Active and Social Places

5.15 A key theme of PPW is creating places that are active and social, this includes sustainable transport provision for housing and mixed-use development. The opening paragraphs to this chapter include the following aspiration of PPW:

“New development should prevent problems from occurring or getting worse such as the shortage of affordable homes, the reliance on the private car and the generation of carbon emissions.”

Movement

5.16 PPW places importance on locating development so as to minimise the need to travel and increasing accessibility by modes other than the private car.

5.17 In terms of car parking paragraph 4.1.51 indicates that “A design-led approach to the provision of car parking should be taken, which ensures an appropriate level of car parking is integrated in a way which does not dominate the development. Parking provision should be informed by the local context, including public transport accessibility, urban design principles and the objective of reducing reliance on the private car and supporting a modal shift to walking, cycling and public transport. Planning authorities must support schemes which keep parking levels down”.

Housing

5.18 The WG recognise the importance of a home to people’s lives and indicates that the planning system must:

• “identify a supply of land to support the delivery of the housing requirement to meet the differing needs of communities across all tenures; • enable provision of a range of well-designed, energy efficient, good quality market and affordable housing that will contribute to the creation of sustainable places; and • focus on the delivery of the identified housing requirement and the related land supply.”

5.19 Paragraph 4.2.5 states that “Planning authorities should plan for a mix of market and affordable housing types to meet the requirement and specifically consider the differing needs of their communities.”

5.20 The importance of local authorities providing housing to meet community needs is referred to in paragraph 4.2.11, expressing that “there must be sufficient sites suitable for the full range of housing types to address the identified needs of communities”.

5.21 The importance of local authorities having an authority wide target for affordable housing is referred to in paragraph 4.2.28, expressing that “authority-wide target for affordable housing should be based on the LHMA and identify the expected contributions that the policy approaches identified in the development plan will make to meeting this target”.

Productive and Enterprising Places

5.22 This section relates primarily to economic development, tourism, infrastructure, the rural economy, energy and waste, and is thus less applicable to this proposal.

Distinctive and Natural Places

5.23 This chapter of PPW covers a range of topics, including cultural heritage matters, natural assets and environmental quality. The opening statement of the chapter states that:

“Development proposals should be formulated to look to the long-term protection and enhancement of the special characteristics and intrinsic qualities of places...Problems should be prevented from occurring or getting worse. Biodiversity loss should be reversed, pollution reduced, environmental risks addressed and overall resilience of ecosystems improved. “

Technical Advice Notes

5.24 The following Technical Advice Notes (TANs) are considered to be of relevance in the consideration of these proposals.

• TAN 2 – Planning and Affordable Housing (2006) • TAN 12 – Design (2016) • TAN 18 – Transport (2007)

5.25 TAN 2, published in June 2006, is of relevance to affordable housing developments, providing practical guidance on the role of the planning system in delivering affordable housing.

5.26 TAN 12 relates to Design and was updated in March 2016. It provides advice and information on a number of related areas including the definition of design for planning purposes; design considerations in planning decisions; and local planning authority design policy and advice.

5.27 TAN 18, which was published in March 2007, deals with Transport matters, and advocates locating development where there is good access by public transport, walking and cycling; generally advocating development at sustainable sites.

Well-being of Future Generations Act

5.28 The Well-being of Future Generations Act imposes a duty on public bodies to carry out sustainable development in accordance with the sustainable development principles, and to act in a manner which seeks to ensure that the needs of the present are met without compromising the ability of future generations to meet their own needs. Its content is sought to be delivered through the planning system via the intertwining of the Act through the new PPW.

Local Development Plan

5.29 Section 38(6) of the Planning and Compulsory Purchase Act 2004 requires that planning application decisions should be made in accordance with the Development Plan unless material considerations indicate otherwise.

5.30 The statutory development plan for this site is the Cardiff Council Local Development Plan (LDP) which was adopted in January 2016. The LDP vision for the city is to ensure that “By 15

2020…Cardiff will be a world class European capital city with an exceptional quality of life and at the heart of a thriving city-region”. In order to achieve its vision, a number of key objectives have been identified. These include:

• To respond to evidenced economic needs and provide the necessary infrastructure to deliver development; • To respond to evidenced social needs; • To deliver economic and social needs in a co-ordinated way that respects and enhances Cardiff’s environment and responds to the challenges of climate change; and • To create sustainable neighbourhoods that form part of a sustainable city.

5.31 The site is identified as ‘white land’ within the settlement boundary of Cardiff, where the principle of development is acceptable subject to material planning considerations.

5.32 Policy KP1 relates to level of growth and states that “brownfield sites will continue to play an important role and windfall provisions will form part of the provision for new homes as land uses within the city continue to evolve”.

5.33 Policy KP5 relates to Good Quality and Sustainable Design and requires all new development “to be of a high quality, sustainable design and make a positive contribution to the creation of distinctive communities, places and spaces by responding to the local character and context of the built and landscape setting”. It also aims to provide “healthy and convenient environment for all users that supports the principles of community safety, encourages walking and cycling, enables employment, essential services and community facilities to be accessible by sustainable transport and maximises the contribution of networks of multi-functional and connected open spaces to encourage healthier lifestyles”. This links to Policy T1 which aims to promote walking and cycling through providing access to employment, essential services and community facilities within an accessible distance.

5.34 Policy KP13 (Responding to Evidenced Social Needs) is of particular relevance to the site as it aims to provide accessible, independent living flats. The LDP states that “a key part of the successful progression of the city will be to develop sustainable neighbourhoods, tackle deprivation, and improve the quality of life for all”. It sets an affordable housing target of 6,646, which will be achieved through a set of objectives including:

• Providing a range of dwelling sizes, types and affordability; • Supporting the vitality, viability and attractiveness of existing District and Local Centres and their regeneration; • Encouraging provision of a full range of facilities and community infrastructure that are accessible to all by walking, cycling and public transport; • Supporting regeneration of deprived communities within the city; • Encouraging enhancements of communities through better equality of access to services for all, creating places that encourage social interaction and cohesion; and • Designing out crime and create communities which are and feel safer.

5.35 In line with policy KP13, policy H3 (affordable housing) aims to assist the Council to meet evidenced housing need by seeking appropriate affordable housing contribution from new residential developments in the city.

5.36 Policy H6 (Change of use or redevelopment to residential use) deems it acceptable for redevelopment to residential use when land is no longer required for its existing or former use, the development contributes to meeting housing requirements and that necessary community and transportation facilities are accessible or can be readily provided or improved.

Policy Relating to

Key Policies

KP1 Level of Growth

KP3(B) Settlement Boundaries

KP5 Good Quality and Sustainable Design

KP7 Planning Obligations

KP8 Sustainable Transport

KP12 Waste

KP13 Responding to Evidenced Social Needs

KP14 Healthy Living

KP15 Climate Change

KP16 Green Infrastructure

Housing

H3 Affordable Housing

H6 Change of Use or Redevelopment to Residential Use

Environment

EN8 Trees, Woodlands and Hedgerows

EN12 Renewable Energy and Low Carbon Technologies

EN13 Air, Noise, Light Pollution and Contaminated Land

EN14 Flood Risk

Transport

T1 Walking and Cycling

T5 Managing Transport Impacts

T6 Impact on Transport Networks and Services

Community

C1 Community Facilities

C3 Community Safety / Creating Safe Environments

Provision for Open Space, Outdoor Recreation, Children’s Play and C5 Sport

C6 Health

Waste

W2 Provision for Waste Management Facilities in Development

Supplementary Planning Guidance (SPG)

5.37 In addition to the above policies, the following SPG are also considered to be relevant to this application:

• Green Infrastructure (November 2017), comprising of: o Ecology and Biodiversity Technical Guidance Note o Trees and Development o Protection and Provision of Open Space in New Development o Soils and Development • Energy Efficient Designs for New Residential Development (December 1995); • Waste Collection & Storage Facilities (October 2016); • Planning Obligation (January 2017); • Residential Design Guide (January 2017); • Planning for Health and Wellbeing (November 2017); • Archaeology and Archaeologically Sensitive Areas (July 2018); and • Managing Transportation Impacts (Incorporating Parking Standards) (July 2018).

6 Appraisal

Overview

6.1 This section of the Planning Statement aims to identify the main issues relevant to the determination of the application and assesses the scheme against the pertinent considerations.

• The principle of the development of this site in land use policy terms.

• The design of the proposed development including its impact on local character. • The highways impact of the proposed development. • Other material considerations, including ecology; trees; and drainage.

Principle of the development

6.2 The site lies in a sustainable location in Adamsdown, well within the settlement boundary. The site lies 1.5km from the city centre and within 250m walking distance of both Splott Road local centre and Clifton Street district centre, which host a range of amenities and community facilities. The site is vacant following the demolition of the Citadel and lies within an established residential area.

6.3 The principle of residential development is established on site by virtue of its location within a predominantly residential area; the lack of site-specific allocation or designation within the LDP; and the extant outline permission (app ref: 17/00171/MJR) for the development of 18 apartments. Additionally, the site lies in a sustainable location well within the settlement boundary.

6.4 A key in-principle policy that must be considered is H6, which covers proposals for the ‘Change of Use or Redevelopment to Residential Use’, due to the extant lawful use of the site being for Methodist Chapel. Given the demolition of that building in 2016, its closure and dereliction since 2002 and the residential nature of the immediate vicinity, it is considered that the principle of the redevelopment of this piece of land for residential use is firmly established.

6.5 In the above respects, it is concluded that this development ably supports the regeneration with regards to is vitality, viability and attractiveness in line with policy KP13, whilst also adhering to design principles highlighted under policies and KP5.

6.6 Compliance with PPW is demonstrated, which advocates siting new development within existing urban areas and the use of previously developed land. Further, the development also assists in PPW’s aim to tackle the shortage of affordable homes; and assisting in promoting sustainable residential developments. Adherence with local policy is also demonstrated, with the LDP vision being to respond to evidenced social needs and create sustainable neighbourhoods that form part of a sustainable city.

Design of the development

6.7 The design of the proposed residential development, by Austin-Smith:Lord Architects has sought to integrate the development into the area to create a complementary streetscape. A key factor in designing the scheme has been to limit embodied carbon within the development to ensure that high environmental performance is maintained throughout the design, construction and occupation, creating a highly sustainable development.

6.8 The main building is sought to be constructed to four-storeys including the lower ground floor. It will contribute positively to the streetscape and adhere to principles of good urban design, including the creation of a prominent landmark building on a corner, where there are few landmarks to identify amongst the primarily two-and-three-storey residential vernacular. The building to the rear will measure two storeys, corresponding to the existing dwellings of Pearl Place.

6.9 The development is built to a high quality and the proposed external finishes will be durable, complementary and attractive, comprising predominantly of brickwork. The brick palette will also minimise noise and reverberation from the railway. A fabric first approach is sought to achieve improved thermal and acoustic performance, contributing to achieving the highest possible environmental standards for both buildings. In this regard a number of engineering and architectural design features have been incorporated, including a highly insulated building fabric, high levels of air-tightness and mechanical ventilation, providing a continuous air change, whilst minimising energy loss and ensuring a comfortable living environment.

6.10 Variation and depth will be provided by projecting and recessing elements of the main building. Large apertures provide a number of positives, including more pleasant living environments, solar gain, and more interesting façades.

6.11 Furthermore, the comments of the Authority at pre-application have been suitably addressed with the windows of the main building being extended and widened, with the elongated windows providing a welcoming design appeal to the proposal. It also ensures plenty of natural light to the communal areas to provide a safe and inclusive environment for residents. The windows are framed on the top and bottom by contrasting brickwork to add richness to the elevation. In a similar vein, the windows of the self-contained flats are consistent and create a suitable solid-to-void ratio. The light grey brick on this elevation tie-in to the existing dwellings of Pearl Place, with contrasting darker grey, brown bricks framing the windows.

6.12 It is considered that the design proposals at hand demonstrate a compliance with LDP policy KP5 and the Residential Design Guide SPG, which provides a series of design principles that development must adhere to. The development also successfully promotes a placemaking agenda, as highlighted in PPW as being a key principle for successfully delivering sustainable development in Wales.

6.13 This, in tandem with the positive review provided by the DCFW panel, demonstrate that the proposed development would be a suitably designed and appropriate addition to the streetscape in this location.

6.14 Further detail concerning how the development meets the objectives of good design is provided in the Design and Access Statement prepared by Austin-Smith:Lord Architects.

Highways

6.15 The site lies adjacent to a range of facilities and amenities which reduce the need to travel. When traveling further afield is required, the site has good connectivity to public transport links and also offers walking and cycling routes to those within the development who are able to benefit from these.

6.16 Car parking is provided in line with the maximum standards set out in the SPG, developments that fall within Use Class C2 (Residential Institution) are required to provide a maximum of one space per 4 bedrooms in Central areas. The SPG states that “limiting the provision of parking in these central areas of the city is necessary to manage the demand for travel by car to central Cardiff and encourage travel by public transport, walking and cycling in order to achieve the Local Development Plan target of a 50:50 modal split”. No minimum requirements are provided, thus the one space provided, is policy compliant.

6.17 Should any concerns be raised that this may be insufficient, it is pertinent to recall the nature of the proposed development, which is flats for younger persons. It should also be borne in mind that reduced car parking provision in sustainable locations is a principle strongly advocated in national policy. In this respect, PPW states that Local Authorities ‘must support schemes which keep parking levels down. Especially off-street parking, when well designed’ [emphasis added]. On this basis, the level of car parking provision proposed is considered to be justifiable on multiple grounds, and the provisions of LDP policy T5 are considered to be met, as well as the clear and robust principles of PPW.

6.18 Four cycle stands, each capable of storing two cycles, are provided within the site, in a safe and secure location to the rear of the main building. They will be covered and one metre apart in line with policy guidance. This will be supplemented by each self-contained flat having space for storing one bicycle within. A separate cycle store is provided for the self-contained flats with sufficient space for two bicycles. Cycle parking meets the requirements set out in the Managing Transportation Impacts SPG which requires a minimum of five plus one per 10 bedrooms for the main building, Use Class C2 (Residential institution), and a minimum of one per bedroom for the self-contained flats, Use Class C3 (Dwelling properties).

Other material considerations

6.19 Amenity – It is considered that the scale and massing of either building would not result in an overbearing and un-neighbourly form of development. The main building of the proposed development replaces the former Citadel building which was itself a prominent building with no amenity issues. Dwellings to the north and east of the site are located over a highway from the proposed development, therefore a sufficient distance away to ensure no overlooking. The two- storey building proposed off Pearl Place will correspond to the scale of existing buildings, set sufficiently distant from them, and thereby not raising any amenity concerns.

6.20 Ecology – the site’s ecological status is considered to be of minimal value given that it comprises of hardstanding / compacted rubble. The former buildings on site were demolished relatively recently and the site is surrounded by residential development and neighbouring a railway line. The demolition would not have taken place without requisite ecological precaution. It is therefore concluded that the proposed redevelopment of this site would not be unacceptably 21

constrained by biodiversity issues.

6.21 Trees – No significant trees will be affected by the development. A number of new trees are proposed to be planted on site replacing the existing Category C trees. Overall, the landscaping proposals will seek to enhance the quality of the trees on the site with River Birch and Cockspur Thorn proposed, providing an year round interest autumn colour, spring flowers, fruits, or interesting bark.

6.22 Landscaping and amenity - Given the shape of the site and its context, the amenity space provided is considered respectable with good provision made for planting and ventilation. In addition, the trees planted on site improve the ecological credentials of the site. The SuDS proposals, including rain gardens, will also complement and enhance the external spaces, to the benefit of the end users. In general terms, the space is also highly accessible for future occupants, accessed via the lower ground floor communal area and strictly private in terms of both accessibility and visibility. The self-contained flats to the southwest of the site will also benefit from separate, private amenity space.

6.23 Drainage – the development proposes to utilise sustainable drainage methods to manage the surface water from the entire site. This will be in the form of planting areas to collect stormwater. An application will be made to the Sustainable Drainage Approving Body (SAB) in due course, but it is considered that the principles proposed are accepted based on active and continuous dialogue between SAB and the design team. Foulwater is proposed to be discharged into the existing public sewer.

6.24 Noise and vibration – The continuous acoustic barriers along the eastern boundary have been designed to deflect noise and vibration of passing trains providing a calmer outdoor environment. The fabric first approach provides acoustic insulation, further mitigating any potential noise and reverberation from the adjacent railway within the building. This has been an important consideration throughout the design process, as quiet spaces within the building are key to promote physical and mental well-being.

7 Conclusion

7.1 This Planning Statement is produced in support of proposals for a development of 10 studio flats and ancillary rooms in one main building, accessed off Splott Road, and a further two self- contained one bedroom flats, accessed off Pearl Place. The development will include landscaping, access and all associated works necessary to bring this brownfield site back into productive use. It is considered that the proposals are a well-considered response to the site context and its constraints, creating a scheme to promote physical and mental well-being of residents with an emphasis on natural light and ventilation, external views and quiet space.

7.2 The principle of the development is established through the site’s location in the settlement boundary, its sustainable location and its brownfield nature. There is also precedent for the residential development of this site as evidenced by the extant outline permission for 18 apartments. Furthermore, the development has been designed to meet a specific housing need, that of young people, to help them to live independently in permanent accommodation.

7.3 The design proposes a high-quality build that complements existing materials and form in the site vicinity through use of a clear and sympathetic architectural language. The siting of the development has been carefully considered to ensure that there is no overlooking and that the development integrates into the local neighbourhood. The development will achieve high environmental performance throughout the design, construction and occupation.

7.4 The provision of the one car parking spaces is policy-compliant, and the access arrangements are entirely appropriate. A drainage solution has been reached. Ecological and arboricultural impacts are assessed as minimal. Noise and vibration impacts have been suitably addressed via proposal of an acoustic barrier and through utilising well-considered design and technological approaches.

7.5 The proposals have been subject to pre-application discussions between the applicant and the Local Authority, as well as a panel review with DCFW. During these discussions, the response was positive in terms of principle and approach, with suggested amendments having been taken on board in the finalising of the proposal.

7.6 Wellbeing goals of the Well-being of Future Generations Act (WFGA) are considered to be adhered to through this application in that there would be no significant or unacceptable impacts upon the achievement of wellbeing objectives as a result of the application being approved and development being carried out.

7.7 In conclusion, it is therefore considered that the site offers an excellent opportunity to provide supported living flats for young people and will aid in meeting the housing requirements of the city. The proposal offers a development of quality within a sustainable brownfield location in Cardiff, adhering to the placemaking agenda advocated by PPW. Through providing supported living flats to the area, the development is deemed to meet a number of the LDP policies. On this basis, it is respectfully recommended that Cardiff Council put this application forward for approval.

LRM Planning October 2020