ABERGAVENNY REGENERATION
and
THE REDEVELOPMENT OF THE LIVESTOCK MARKET

A Briefing Document Presented by a Sub-Group of the Community Forum

OBJECTIVES

;The objective of this development brief is to achieve sustainable economic and cultural regeneration of the town and avoid the damage which has been done elsewhere

;the purpose of this document is to identify the key issues which must be addressed to achieve the objective with particular reference to the redevelopment of the Livestock Market.

BACKGROUND AND CONTEXT

Existing Formal Resolutions of the Community Forum

;to engage with MCC in discussions regarding Planning, Linkage and Architecture

;to seek a return to the principles of the 2004 Outline Brief including the promised cinema

;to provide a seamless transition from the existing livestock market to the new facility

;to seek a meeting between the Forum representatives and the Regeneration Steering Group

;to invite Henry Boot to consult the Community Forum

The Design Brief

This document was developed between MCC planners and Mountford Piggot, architects, as the basis of MCC's 2004 scheme and the procurement process. It established clear guidelines for design, as distinct from accommodation, and these principles hold good in any new approach.

Outline Planning Consent, March 2004

This established the principle of retention of the abattoir. the pedestrian avenue, the size of the foodstore of 25,000 sq.ft. and an acceptable level of car parking at 240 spaces. The layout was approved (but some concerns were expressed at Committee about the suggestions for roofscape and architecture).

Abergavenny Regeneration Action Plan 2005

Created by the MCC Facilities Group and endorsed by the cabinet and the MCC Bryn y Cwm Committee, this demonstrates the MCC commitment to the library and cinema, together with a range of key projects for the town. Officers accepted that the Plan needed further work on Strategy, in view of the wider implications for highways and retailing.

Local Development Plan .

Welsh Assembly Government has recently announced the need for local authorities to develop Local Development Plans (LDPs) in lieu of Unitary Development Plans (UDPs). The LDPs place a new requirement on authorities to 'make the connections' with their communities.

Reasons for Refusal, January 2007

The MCC Planning Committee gave five 'Reasons for Refusal' of the application by Henry Boot Developments. These reasons cover Design, Retail Split, Traffic Impact, Housing Design and the failure to retain part of the abattoir complex. Any new approach, by Boot or another developer, must fully satisfy these requirements - all of which are supported by the UDP. The full text of the 'Reasons for Refusal' is attached as an appendix.

STRATEGIC ISSUES

The lack of a completed and satisfactory Traffic Impact Assessment in relation to the scale of development in the Boot application remains an additional obstacle. Serious doubts are being expressed as to the level of parking which was proposed.

Both the MCC Facilities Group and Public Realm Group have identified the need for a wider strategic study of the traffic implications for the town. The site cannot be considered in isolation.

There needs to be a proper understanding of what 'regeneration' means in the context of Abergavenny's unusually high proportion of independent specialist retailers and the shoppers they attract, many from far afield. This understanding of regeneration could then be used as the basis of a retail strategy for the town as a whole. There needs to be a common understanding of how the redevelopment and its timescale fits with other sites and their possibilities in the town and beyond.

All town centres face retail challenges and surmounting them will require a clear understanding of why some have degenerated while others prosper by retaining their special attraction as a shopping destination. We believe that this has not been grasped.

THE ACCOMMODATION BRIEF

The Foodstore

The requirement spelt out by consultants and endorsed by common sense is for a foodstore adequate in size and siting for the 'weekly trolley shop', not a sell-everything supermarket drawing footfall and trade out of the town centre. The Forum has no view as to which foodstore operator is selected. However, if the operator is from a supermarket background the non-food element should be restricted to 10% and exclude electrical goods, prescription pharmacy, dry cleaning etc. There are successful operators which would find this no obstacle.

In order to encourage trips into the town centre and protect the existing catering there should be no 'coffee shop' provision in the foodstore.

The Forum is flexible regarding the size of foodstore, between the limits of 25,000 - 28,000 sq.ft. net retail, and would be happy to see the 10% allocated entirely to clothing.

As owners of the site, determined to secure regeneration and avoid the damage to the town centre which has occurred elsewhere, MCC has the power to enforce this policy at the point of contract procurement and need not rely on its dubious powers of enforcement through planning.

The Library

The brief for the library should embrace current trends, future predictions and evidence based on use. The library can be provided separately from the cinema or off-site out of the proceeds of development.

The Cinema

The size and content of the cinema should be determined by evidence on use, future viability and proper evidence of supporting investment interest. This should inform the design approach, so that the facility retains community value in future circumstances.

The facility could be linked to or above other buildings on site (as an alternative to the library) or provided off site.

The Abattoir Complex

In recognition of UDP Policy Des 1(g), which requires "the incorporation of existing features that are of historic value" partial retention of the abattoir complex is necessary. The Council Leader pledged retention when he announced the winner of the 2004 procurement process.

A range of uses is possible and desirable - retail, craft, leisure and residential. Certain buildings in the complex offer opportunities best realised by an experienced conservation architect and an enlightened developer. Similar schemes elsewhere have won awards and a prize-winning development would add to the reputation of the County Council and the attractions of the town.

Other Retail Units

Subject to the availability of parking and the need to avoid over-development a limited element of non-food retailing could be considered outside the foodstore, of a kind which poses little threat to the town centre. 'White' and electronic goods could be considered. We would favour one such unit, not two. There is flexibility on the size of the units.

Housing

Both the Design Brief and the Boot application provided in excess of 30 flats. We are less concerned about numbers and more interested in quality, variety, accessibility and safety. The UDP stresses the need for flats above retail units in the town. We favour dispersal of the housing with some of it on Lion Street.

Parking

Parking should be restrained, having regard to existing provision and limitation imposed by the capacity of the site and the access network. A wide range of imaginative options should be explored. These could include a small well-designed 2-3 storey unit unobtrusively sited, concealed parking at roof level, and underground linkage to Fairfield car park.

A small well-designed underground car park could be considered only if it secured the benefits of additional public space at ground level. Given the potential disastrous impact of traffic congestion on the town, it is suggested that the upper limit for parking be agreed before any decisions are taken as to the retail provision on the site.

SUSTAINABILITY

In line with emerging government policy and WAG's immediate acceptance of it, the whole development should be as carbon-neutral as possible. The opportunity exists for it to be a genuine showcase project for Wales. It should embody MCC's own Local Agenda 21 Strategy of March 2002 and the Government's 'Securing the Future' document of 2005, embodying best practice sustainability principles and associated technology. Such a scheme would place Abergavenny 'on the map', attracting tourists and visitors in furtherance of the regeneration objective.

DESIGN CONSIDERATIONS

The MCC/Mountford Piggot Design Brief of 2004 is the key document in setting the required standards. The requirement is for

;a well-integrated design and layout, reflecting the character of the town and respecting the conservation area, carried out by architects with a proven track record

;variety in scale and an attractive roofscape when viewed from Bailey Park towards the Town Hall and iconic clock tower, and a sympathetic design when looking along Lion Street with its conservation frontage

;a safe, prominent and attractive pedestrian avenue between Market Street and Bailey Park, with provision for a cycle route

;partial retention of the abattoir complex

;willing implementation of the principles of 'Defensible Space' ( Secure by Design).

;full public transport provision designed into the scheme e.g. by the provision of bus-bays and a taxi rank

The Forum does not have a preference between a 'traditional' and a 'contemporary' approach to design. Design quality is all-important.

The Chairman of the Design Commission called for the creation of a new 'urban quarter'. This implies a development which will in time become part of the town and its attraction rather than remain a discordant commercial addition. We support this.

Taken together with conviction and flair, these issues amount to a major opportunity.

BEYOND THE SITE

In support of the development the Forum would expect to see

;a comprehensive plan for access, linking the site with Cibi Walk, Brewery Yard, Market Street and the important Tithe Barn

;a vibrant and convincing functional linkage to generate more retail and social activity in Market Street and its offshoot between Greyhound Vaults and Kopykatz.

;positive support for the regeneration of the Bethany Chapel and its potential footfall

;positive early action on the regeneration of BT/Post Office/St.Johns Square to balance the town's layout and avoid the so-called 'out of town' threat.

THE REPLACEMENT MARKET.

The Forum recognises that the MCC policy, followed by successive administration over some nine years has been to close the existing livestock market. It also recognises that the Council has agreed sites at Raglan and Llanfoist as suitable for relocation.

In support of the objective to maximise the economic well-being and regeneration of Abergavenny the Forum strongly prefers a local solution, and records its wish to see relocation to the approved site at Llanfoist. (The 'turkey factory' site off the Hardwick Roundabout, may offer an unexpected and economic alternative.)

CONSULTATION

There is a widespread view in the town and in wider circles that previous consultation on the market project was late and inadequate. By contrast the consultation process for the Brewery Yard has been well- received..

In the spirit of Welsh Assembly Government's Making the Connections the Forum wishes to be actively consulted in a genuine partnership with MCC and its chosen developer, whichever that might be. To that end the Forum seeks an 'open book' approach to costs and design . This request is entirely reasonable and appropriate given the current secure status of Henry Boot as the contracted developer.

CONCLUSION

This document offers flexibility in terms of the accommodation brief, and demonstrates serious opportunities, amidst the constraints, for achieving a quality development. Without genuine partnership and commitment by all parties the window will close and the opportunities will be lost.