Re ordering christchurch roath park pre application overview by Alan Gillard

Pre Application Overview

Re Ordering Christchurch Roath Park for

Church in Wales

May 2015

GILLARD ASSOCIATES architecture and design

The Quaypad Cardiff Marina Watkiss Way Cardiff CF11 0SY Tel No 02920 229 133

www.gillardassociates.co.uk

This report was prepared by Gillard Associates Ltd in collaboration with Geraint John Planning, the Representative Body of the Church in Wales, Christchurch Roath, clergy and congregation

Pre Application Overview Re Ordering Christchurch Roath Park

1 Site Context Location The site subject of this pre-application enquiry is located at Christ Church, Lake Road North, Cardiff, CF23 5QN. Existing Use The site comprises Christ Church and associated car parking - with a small element of soft landscaping. Christ Church is a post-WWII Anglican Place of Worship - which was built in 1964.

scout hut scout hut existing church hall

existing church hall church

church

Planning History An initial search of the site and surrounding planning history (based on Cardiff online records) has been undertaken. The site has been the subject of one application (relating to the Scout Hall) 99/01665/N, ie, the addition of modular building alongside existing scout hall and approved on 10/11/1999 The Local Planning Authorityâ&#x20AC;&#x2122;s approval of this application demonstrates that the principle of additional community facilities within the site was considered acceptable, and it is likely that further development of the site for further enhanced community facilities would likely be considered acceptable in principle, with the design of the proposal being the key issue for consideration.

GILLARD ASSOCIATES architecture and design

to allotments

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grass

memorial garden

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grass

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24.09

grass

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flower bed

sign

24.02

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23.92

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lamp post

23.83

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RG 23.82

LAKE ROAD NORTH

tress and foliage

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monument stone

grass

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Christ Church

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sign

hedge ht 0.9m shrub

OS Plan

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of ro t 70 fla 27.

railings ht 1.3m

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overgrown embankment

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DO NOT SCALE

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fla

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numerous overhead cables between buildings

shaded area is proposed residential plot

gravel car park

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Christ Church Parish Hall

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red line is land in ownership of Church in Wales

step

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Pre Application Overview Re Ordering Christchurch Roath Park

te ga 23 .9 7

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2 Site as Existing

8th Cardiff (Christchurch) Scout Group HQ

23.88 23.86 speed 23.98 ramp

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GILLARD ASSOCIATES architecture and design

Pre Application Overview Re Ordering Christchurch Roath Park

3 Proposed Development Proposed Development The proposal comprises the expansion of Christ Church to provide further community uses, and the development of a single residential dwelling. The proposals are indicative at this time, such that they can be further refined on the basis of comments / recommendations made by Cardiff CC Planning Officers. Application Procedure It is anticipated that any planning application advanced for the proposals would be â&#x20AC;&#x2DC;hybridâ&#x20AC;&#x2122; in type; that is one that seeks: a) full planning permission for the works associated with the expansion of Christ Church, the provision of car parking, and associated hard and soft landscaping, and boundary treatments; and b) outline planning permission for the development of a single residential dwelling. Layout / Access Access to Christ Church will be maintained, as per the current arrangement, directly from Lake Road North, and would therefore not require significant additional highway improvement works. The scale and quantum of the proposed development would result in similar frequency and intensity of operational use and would therefore not cause traffic congestion or exacerbate existing traffic conditions. Access to the proposed residential dwelling would also be served from Lake Road North, as per the other residential properties on this street, and would therefore be compatible with the existing pattern of development in the locality. 30 vehicular parking spaces (which includes 2 disabled parking spaces) and 12 cycle parking spaces are proposed as part of the Christ Church facilities, and 2 vehicular parking spaces and 2 cycle parking spaces could be appropriately accommodated within the curtilage of the residential dwelling. It is important when considering the proposed parking provision to observe that the current unstructured and unsurfaced car park does not allow the parking of more than around 30 cars. It is considered that the proposed arrangement will not result in reduced provision, in fact,it is likely that there will be a net increase, despite the reduction in surface area,becasue circulation and spaces will be defined and designed to space planning norms. Notwithstanding this, it should be noted that the level of parking provision is in accordance with the Councilâ&#x20AC;&#x2122;s Supplementary Planning Guidance on Access Circulation and Parking Standards (Approved January 2010) - both in terms of the place of worship element, and the residential element.

unstructured parking

shrubs and trees on western boundary

The church council intends for the long term to maintain and expand not only such services but also its existing provision for independent use of its facilities by a whole range of wider community groups; accordingly it is planning to thoroughly enhance the site through an appropriate extension to the church building, so as to provide multi-purpose, all-access facilities of the kind described. The intended hall, in particular, in superseding the existing one which has become seriously deficient, would much better enable the parish to fulfil one of its core objectives - that of effective, comprehensive service both to local residents and the public at large. In order to secure a substantial, indeed fundamental element of the overall required funding for this expansion of Christ Church, a development of one residential unit is required. This is the more so since, because the church structure is unlisted on the Statutory List of Buildings of Special Architectural or Historic Interest, grants from related donors towards the cost of extension that might otherwise have been available will not be so. At the outset it is considered that this form of development is entirely acceptable in principle, and would result in significant community benefit through the provision and expansion of church facilities and services. Other than as to the contribution needed from residence development proceeds, there are no site-specific economic constraints which will affect the deliverability of the indicative proposals, and no unresolvable restrictive constraints relating to the use of the land and its development.

proposed access to residential plot

Need for the Proposals and Deliverability The Parish of Christ Church, Roath Park, which is run from the site, extends to include Cyncoed and the northern and eastern parts of Heath, and offers to all their residents a large range of services spiritual, pastoral, social and for major life-events.

GILLARD ASSOCIATES architecture and design

Pre Application Overview Re Ordering Christchurch Roath Park

4 Options Appraisal Options Appraisal: Existing Situation

Options Appraisal: Architect’s Proposal

1 EXISTING SITUATION

3 SOLUTION Vehicle circulation

Vehicle circulation

Straightforward but parking not organised

Reposition entrance

Pedestrian circulation

Maintain flow to scout hut

Pleasant and open principal access

Efficient parking

Access from car park reasonable

Pedestrian circulation

Link to hall and toilets awkward

New circulation zone Existing temporary hall not fit for purpose Need for community rooms more closely linked to the church Need for flexibility and multi purpose use Long term sustainability – low running costs Economical construction – value for money Rationalise use of the site -access for other users, parking, deliveries Minimise disruption to existing buildings Enhance the experience of parishioners Outreach to the community

Propose additional church access Easy access to community building Surplus land Garden Building plot

Overspill parking

Options Appraisal: Optimum Site Location 2 OPTIMUM LOCATION

Options Appraisal

Possible but difficult to link to church without extensive alterations Loss of continuity for existing users Preferred location Better link to church Independent site

‘no go’ area - setting

The brief for the proposed community rooms was developed in close consultation with the church committee and congregation. An options appraisal was carried out, looking at opportunities and constraints, to inform the design process. Rationalisation of the available land, making sure that all stakeholders were accommodated, and increasing efficiency in the use of the car park, was a key aim of the design. The built form, the landscape, and the realisation that there is a significant area of land surplus to requirements and suitable for residential development was a direct result of the collaborative process.

Overall Design Principals - Conservation Led Approach – the existing church has cultural significance - Requires appraisal of building, its setting and context - New work must not detract from to the existing church - Recognise and mitigate the impact of new building on neighbouring properties - Identify opportunities offered by site - Funding constraints Architectural Design Principles - Keep building form simple (economical, energy efficient, low maintenance) - Architecture to be low key and ‘non competitive’ - Simplify connections with existing building - New building should enhance the experience of all ‘stakeholders’ (ie, congregation, clergy, neighbours, community, visitors, user groups) - Welcoming, accessible, connected - Safe and secure

GILLARD ASSOCIATES architecture and design

Pre Application Overview Re Ordering Christchurch Roath Park

5 Proposed Layout

N SCHEDULE OF ACCOMMODATION

garden/ overspill parking

19 120 35 28 40 11 73 16 -

TOTAL

342

Store 1 Hall Pantry Kitchen Meeting Toilets Store 2 Circulation Cwtch Lobby

car park

outline of demolished hall

car park

Design Concept

store

The building will be single storey so that issues of accessibility can SPACES be 30 PARKING addressed, and also becasue a two storey building will detract from the 'completeness' of the existing place of worship.

rwp

kitchen

The design is driven by the need for the church to be welcoming, open, and connected - visually and spiritually - to the people it is there to serve. Therefore, the new extension emphasises a transparent foyer with views directly into the place of worship.

block up door

re aligned access

meeting hall

99 chairs

worship

storage

cloaks

tea brew

rooflight

store gents

ladies

RE ARRANGE SEATING new entrance

accessible

At the same time, the plan facilitates ease of movement between worship and community rooms, and the layout enables simultaneous and multipurpose usage of four major spaces the new community hall, an adjacent meeting room, an open foyer and 'cwtch', and of course1:100 the@church itself. A1

cleaner

foyer cwtch/ meeting

An important part of the design the P1 Amendments followingis client meeting 10.10.14 ARG need to maintain usage of the existing hall during the new building's GILLARD ASSOCIATES construction. Any break in 'service' could resuklt in the users finding alternative accommodation and this is Parish of Christchurch, Roath something the churchPark, areCardiff anxious to avoid. New Community Building architecture and design

The Quaypad Cardiff Marina Cardiff CF11 0SY Tel No 02920 229 133 contact@gillardassociates.co.uk

chapel

Client

Job Title

ENTRANCE

GILLARD ASSOCIATES Drawing Title

architecture and Plan design Proposed Floor Date 29/10/2014

Drawn by:

Drawing No

Revision

Pre Application Overview Re Ordering Christchurch Roath Park

6 Preliminary Perspective Views

Architectural Design Whilst the design is still in early stages and under review, it is considered that the principles which have generated the plan, mass, scale, and materiality, circulation, are based on sound research and recognised precedent. The existing church, although unlisted, is a good example of mid C20th modernism, and any new work should respect the building's contribution to the cultural life of the community, as well as its place in the street scene as a local landmark.

Upper left: view of main entrance from street Above: overview from east Main image: view from west along street

The proposed extension is therefore low key, but nevertheless will make its own, albeit smaller, presence known on the street. The overriding factor in the design, after aesthetic and spiritual considerations, is the idea of sustainability. Not only is the new building intended to be energy efficient and low maintenance, it must also be self financing. Therefore, the space planning must encourage and facilitate multi purpose use by the community who have a need for these rooms as evidenced by the existing community hall, now coming to the end of its useful life.

GILLARD ASSOCIATES architecture and design

Pre Application Overview Revisions Re Ordering Christchurch Roath Park

7 Proposed Residential Plot

35m o/a

11m o/a

Notes: Dimensions of proposed plot are ESTIMATED until exact positions of boundaries are ascertained.

P1 Dimensions of plot adjusted following site visit ARG 150414

1:200 @ A3

GILLARD ASSOCIATES architecture and design

Residential Plot The QUAYPAD

Cardiff Marina Watkiss Way Cardiff CF11 9RZ Tel No 02920 229 133 contact@gillardassociates.co.uk

11.1m min

Lake Road North

suggested outline of new dwelling

proposed plot

The surplus land released after space planning will provide a plot suitable for a single dwelling. The dimensions of the plot will be similar to those of the Client adjacent dwelling. proposed car park

Parish of Christchurch, Roath Park, Cardiff Job Title

New Community Building

Drawing Title

Surplus Land Date

14/04/2015

Drawing No

Drawn by:

Revision

C196/SK02 P1 GILLARD ASSOCIATES File: Christchurch Proposal 150317.pln architecture and design

Representative Body of the Church of Wales Christ Church, Lake Road North, Cardiff, CF23 5QN Pre-application Overview

April 2015 Page 6 of 13

8 Planning Policy Context

Pre Application Overview Re Ordering Christchurch Roath Park

Planning Policy Context

A. National Planning Policy National Planning Policy Theme

Ref.

Summary / Extract

Planning Policy Wales (7th Edition, July 2014) Presumption in Favour of Decision-makers should approve development proposals that are in line with the presumption in favour of sustainable development should be approved in accord 3.1.2 Sustainable with the development plan unless material considerations indicate otherwise. Development 4.4.3 Preference for Development of Previously Developed (Brownfield) Sites

Figure 4.3

9.3.2 Delivery and Siting of Housing

4.7.8 9.2.13

4.11.6 Design

4.11.9

“Promote resource-efficient and climate change resilient settlement patterns that minimise land-take (and especially extensions to the area of impermeable surfaces) and urban sprawl, especially through preference for the re-use of suitable previously developed land and buildings, wherever possible avoiding development on greenfield sites (Sections 4.7, 4.8 and 4.9).” Previously developed land is that which is or was occupied by a permanent structure (excluding agricultural or forestry buildings) and associated fixed surface infrastructure. The curtilage of the development is included …. Excluded from the definition are:  land where the remains of any structure or activity have blended into the landscape over time so that they can reasonably be considered part of the natural surroundings;  previously developed land the nature conservation value of which could outweigh the re-use of the site; and  previously developed land subsequently put to an amenity use.” “Sensitive infilling of small gaps within small groups of houses, or minor extensions to groups, in particular for affordable housing to meet local need, may be acceptable, though much will depend upon the character of the surroundings and the number of such groups in the area.” Recognises that the infill of existing settlements may be acceptable providing that new development respects the character of the surrounding area and is of an appropriate scale and design.

“Sensitive design and good landscaping are particularly important if new buildings are successfully to be fitted into small vacant sites in established residential areas”. “Good design should ensure that development contributes to tackling the causes of climate change (by reducing greenhouse gas emissions) and to effective adaptation to the consequences of climate change. An integrated and flexible approach to design, including location, density, layout and built form, will be an appropriate way of contributing to climate responsive development”. “The visual appearance of proposed development, its scale and its relationship to its surroundings and context are material planning considerations”. PPW goes on to advise that local planning authorities should reject poor design, however “they should not attempt to impose a particular architectural taste or style arbitrarily”.

Cardiff UDP Proposals Map

Technical Advice Note (TAN) 12: Design (2009) Objectives of The objectives of good design are set out within the following categories; access, movement, sustaining or enhancing character, community safety and environmental Figure 1 Good Design sustainability. Design Process

4.5

“In many cases an appraisal of the local context will highlight distinctive patterns of development or landscape where the intention will be to sustain character. Appraisal is equally important in areas where patterns of development have failed to respond to context in the past. In these areas appraisal should point towards solutions which reverse the trend.”

B. Local Planning Policy Current The current (adopted) Development Plan for Cardiff consists of the following: ∑ South Glamorgan (Cardiff Area) Replacement Structure Plan 1991 - 2011 Adopted April 1997; and ∑ City of Cardiff Local Plan (including waste policies) Adopted January 1996.

In terms of site designations, to summarise, the site is located: ∑ Within an existing housing area in the City of Cardiff Local Plan (as indicated by the orange shading above)

The Cardiff Unitary Development Plan (UDP) was placed on deposit in October 2003. In May 2005, the Council resolved to cease preparation of the UDP and commence work on the new Local Development Plan (LDP). National guidance indicates that a UDP that has not been adopted may remain a consideration in development control decisions. The policies of the Cardiff Deposit UDP (October 2003) have therefore been considered below (in addition to the policies of adopted Structure Plan and Local Plan). Emerging The Cardiff Local Development Plan (LDP) is programmed for adoption and implementation in October 2015. Whilst the LDP is not yet adopted, it is considered that it reflects the Authority’s ‘thinking’ by which future proposals will be assessed.

Cardiff LDP Proposals Map

∑ Within ‘white land’ - not allocated for any particular use in the Cardiff UDP, and Cardiff LDP Proposals Maps ∑ Partially within Flood Zone C2 in the Cardiff LDP Constraints Map - albeit the proposed buildings are not located within this area. City of Cardiff Local Plan Proposals Map

Cardiff LDP Constraints Map

GILLARD ASSOCIATES architecture and design

Representative Body of the Church of Wales Christ Church, Lake Road North, Cardiff, CF23 5QN Pre-application Overview

9 Planning Policy Context cont'd

April 2015 Page 8 of 13

Pre Application Overview Re Ordering Christchurch Roath Park

Relevant Policies Ref.

MV1

Title

Matrix of Relevant Planning Policies

Summary South Glamorgan (Cardiff Area) Replacement Structure Plan 1991 - 2011 (Adopted April 1997)

Location of New Developments

Conservation of the Built Environment

Community Facilities

Improvement of Environmental Quality

To minimise traffic movements, developments will be favoured at locations which: i. are well served by public transport and are easily accessible for those wishing to travel other than by car; ii. minimise traffic levels and related adverse environmental impact; and iii. conform with other development plan policies. “The best environmental qualities of the built and historic environment will be protected and enhanced… development which would be incompatible with the special character of a building or area, or detrimental to its amenity or function, will not be favoured.” “Sufficient land will be protected within, or adjacent to, residential areas and in other appropriate locations for the development of … community facilities”. “Measures to improve the environmental quality of the urban fabric will be favoured with priority being given to the city centre, inner urban areas and older housing estates.” Deposit Cardiff Unitary Development Plan (October 2003)

2.21

Change of Use or Redevelopment to Residential Use

2.20

Good Design

“Change of use of redundant premises or redevelopment of redundant previously developed land for residential use will be permitted where: a) there is no over-riding need to retain the existing use of the land or premises and no over-riding alternative local land use requirement; b) the resulting residential accommodation and amenity will be satisfactory; c) there will be no unacceptable impact on the operating conditions of existing businesses; and d) necessary community facilities are accessible or can be readily provided”. “All development will be required to demonstrate good design by: a) satisfactorily responding to local character and context; b) achieving a legible development which relates well to adjoining spaces and the public realm; c) providing a safe and accessible environment for everyone who might use or visit it; d) providing for the efficient use of resources and adaptability to changing requirements; and e) satisfactorily addressing issues of layout, density, scale, massing, height, detailing and landscaping”. “Development will not be permitted that would cause unacceptable harm to residential amenity”. The    

policy clarifies what potential unacceptable harm may be caused in this respect – as follows:

The incompatible nature of the proposed use Intensification of use or activity Vehicular or pedestrian generation Restricted day-light or overlooking “Where necessary, safe and convenient provision will be sought in conjunction with development for: a) pedestrians; b) people with special access and mobility requirements; c) cyclists; Access, Circulation and Parking d) powered two-wheelers; Representative Body of the Church of Wales 2.57 Christ Church,Requirements Lake Road North, Cardiff, CF23 e) 5QNpublic transport; f) vehicular access and traffic management within the site and its vicinity; Pre-application Overview g) car parking and servicing; h) coach parking; i) horse –riders”. Supplementary Planning Guidance 2.24

Ref.

Table 3.8

Table 3.9

2.7

1.1

Residential Amenity

April 2015 Page 9 of 13

Summary Access, Circulation and Parking Standards (January 2010) Outlines the Parking standards for residential in Non-Central Areas, as follows: Houses/flats Residents: Minimum Residents: Maximum Visitors: Maximum 1 bedroom 0.5 1 0.25 2 bedroom 0.5 2 0.25 3 bedroom 1 2 0.25 4+ bedroom 1 3 0.25 Outlines the Parking standards for Places of Worship in Non-Central Areas, as follows: Parking Spaces for Car Parking Spaces for Cycles Long Stay Spaces: Cycles Short Stay Spaces: Powered Two-Wheelers: Disabled Parking Provision Operation Use: Minimum Attendees Use: Maximum Minimum Minimum Range 3 bays or 6% of total 1 1/10 of capacity 1/10 Officials 1/50 public floorspace 1-5% capacity – whichever is greater Infill Sites Design Guide (April 2011) Outlines the considerations for ‘gap site development within a street frontage’, noting that successful infill developments employ elements of contemporary design whilst also responding to character and context in terms of: Scale and massing; Building line; Materials; Architectural detailing; and Parking. Trees and Development (March 2007) This SPG provides guidance on how the Council will assess development proposals that might impact on trees, woodlands and hedgerows.

Matrix of Relevant Supplementary Planning Guidelines

GILLARD ASSOCIATES architecture and design

Pre Application Overview Re Ordering Christchurch Roath Park

10 Planning Policy Context cont'd Other Relevant Planning Considerations

Landscape and Nature Conservation Statutory Designations

Housing Land Supply Position The current Cardiff Joint Housing Land Availability Study, base-dated 1 April 2014 states that the Council has sufficient housing land available for 3.6 years. The Welsh Government requires Local Planning Authorities to “ensure that sufficient land is genuinely available (or will become available) to provide a 5-year supply of land for housing” (Planning Policy Wales, Edition 6, paragraph 9.2.2). The guidance set out in TAN 1 states that the need to increase supply should be given considerable weight when dealing with planning applications, and it is therefore considered that the current shortage of housing land supply in Cardiff should form a material consideration in the determination of any planning application at the site. The site and proposal for a single dwelling furthermore, is capable of making a contribution to meet the current shortfall of housing in Cardiff. Facilities and Amenities The site is in a sustainable location, and is within walking distance of a wide variety of facilities and amenities, which include: ∑ Train Stations: Heath High Level and Heath Low Level ∑ Bus Stops: Lake Road West, Celyn Avenue ∑ Cardiff High School (English Speaking Secondary School) ∑ Rhyd-y-Penau Primary School (English Speaking Primary School) ∑ Rhyd-Y-Penau Road Convenience Stores ∑ Llandennis Road Library, Bank, Pharmacy ∑ Three Arches Public House.

Whilst the Llanishen Brook (South) SINC lies to the north of the site (as indicated on the red line on the plan above), the site itself is not subject to any special landscape, wildlife or scientific value designations. In any case, it is not considered that the proposals would result in the loss of, or impact on, any land or habitats of ecological value. Heritage and Conservation, PROW

Flood Risk

Consultation of the Welsh Government Technical Advice Note (TAN) 15: Development and Flood Risk - Development Advice Map confirms that the area of the site subject to any new building development is not located within an area considered to be at risk of flooding - indicated by the lack of blue shading on the above Map extract.

There are no listed buildings surrounding the site, whilst the Roath Park Lake and Gardens Conservation Area is some 180m to the south east of the site, and is therefore not considered to have any significant bearing to the assessment of the proposals. There are no public rights of way crossing or within close proximity of the site.

GILLARD ASSOCIATES architecture and design

11 Summary

Pre Application Overview Re Ordering Christchurch Roath Park

Summary On the basis of this ‘headline’ overview of the planning context of the site, and its surrounds, it is considered that the further development of this brownfield site for expanded community church facilities and residential use should be supported. The previous on-site planning permission ref: 99/01665/N demonstrates that the principle of additional facilities to serve Christ Church is acceptable. The site’s location within an existing housing area (within the City of Cardiff Local Plan) demonstrates that the proposal for a dwelling is compatible with the surrounding land use and is acceptable in principle, albeit and rather the detailed design credentials of the proposal will determine the proposal’s ultimate acceptability, and it is accordingly considered that the proposal must be appraised in this context / light. Furthermore, it is considered that the plot for residential development is of a sufficient size to enable the detailed design of a residential dwelling that is of a scale that satisfactorily responds to the local character and context, and is in keeping with adjoining land uses, whilst safeguarding the residential amenity of the existing neighbouring properties and the occupants of the proposed dwelling. The site is inherently accessible, owing to its close proximity to a wide variety of facilities, amenities and public transport provision. Access to Christ Church will be maintained, as per the current arrangement, directly from Lake Road North, and would therefore not require significant additional highway improvement works. The scale and quantum of the proposed development would result in similar frequency and intensity of operational use and would therefore not cause traffic congestion or exacerbate existing traffic conditions. Access to the proposed residential dwelling would also be served from Lake Road North, as per the other residential properties on this street, and would therefore be compatible with the existing pattern of development in the locality. The site is not subject to any immediate technical constraints - it is not subject to any heritage, common land, special landscape, wildlife or scientific value designations. The parts of the proposed development which are subject to any new buildings are not located in any are that is the subject of any flood risk - as indicated on the TAN 15 Development Advice Maps. Whilst there are no sitespecific economic constraints which will affect the deliverability of the indicative proposals, and no unresolvable restrictive constraints relating to the use of the land and development, in order to secure the required funding for the expansion of Christ Church - which is required for the long-term future of the church, a residential development of one unit is required. For the reasons given herein, it is considered that the site is inherently suitable and acceptable for the proposal for the expansion of Christ Church to provide further community uses, and the development of a single residential dwelling. Request for Dialogue / Discussions In advance of progressing with a formal planning application, our Client is keen to meet with the Council in order to discuss the overall principle of the development of the site, and to obtain the Authority’s initial views / advice / recommendations on the detailed design of the church expansion development. This will enable further proposals to be progressed, leading to and informing a ‘hybrid’ planning application to be submitted. This work will be capably drawn upon by the feedback provided by the Council to address any specific matters, and will ensure that the proposals are suitably informed and robust etc.

GILLARD ASSOCIATES architecture and design