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ARCHAEOLOGY
Ranulf Higden, a monk of the Abbey of Saint Werburgh,
said in the fourteenth century, as he gazed in awe at the physical remains of a great civilization;
When I behold the ground
work of the buildings in the streets, laid main strong huge stones, it seemeth that it hath been founded by the
painful labour of Romans, or giants ...
Archaeology already lost
The remains of the Headquarters (Principia) of the
fortress has already been lost, due to the construction work of the Forum Shopping Centre with only the remains
of the Roman strong room (aerarium) visible today.
The Elliptical Building which appears to be a unique building to Chester, as no other example of such a building
is known to exist in the whole Roman Empire, is of international importance. Its function is still not fully understood
any evidence from it is highly valued. During the refurbishment of the Forum (1995) its foundation was once again
uncovered, given that much of the building was destroyed during the construction of the underground car park beneath
the Market Hall in the 1960's, the City Council should be committed to preserving any future remains, should they
be found during excavation.
Archaeological remains are a valuable but fragile part of our heritage, and once destroyed can never be replaced.
The Secret of Hunter Street
Draft development brief 1989
25. Archaeology
25.5 Within area H no ground disturbance will be acceptable.
This statement refers
to the ground at the very bottom of Hunter Street (North-west corner) of such significance not even to allow disturbance,
however no details are being given of what remains in situ.
Three Roman Barrack Blocks
In the 1980's this part of the city was designated
an Area of Archaeological importance (AA1) as defined by the Ancient Monuments & Archaeological Area Act 1979.
It is one of only five towns in England to be specially protected in this way. This requires that opportunity be
given for excavations prior to development, Government Planning Policy Guidance Note 16 issued November 1990 has
stressed the importance of archaeology and the role archaeological consideration should play in the planning process.
But the site is not considered important enough to merit being protected by being recorded in the list of Scheduled
Sites and other rural sites of national importance in Chester District (as of 31 March 1992.
The Roman barrack blocks could enhance Chester's Roman profile, it is being suggested that the profile of the city
will be raised by the inclusion on site of a department store (13,331 sq. m.). Surely it's the excavation and displaying
in situ of the 2,000 year old Roman barrack blocks that hold the key to the future enhancement of Chester's image.
Trials have shown walls lying only 0.5 meters below existing ground level at the north - east corner of the bowling-green.
All barracks investigated so far have provided plentiful evidence of a reconstruction from ground level in the
opening decade of the third century. All of the barrack accommodation sampled to date have exhibited evidence of
at least one rebuilding in timber, before their eventual replacement with stone or at least with stone dwarf walls
supporting a timber superstructure. The excavation of sizeable portions of barracks conducted in the 1970's and
1980's yielded many examples of pieces of military equipment along with a wide variety of items illustrating aspects
of everyday life.
The Roman Barrack blocks situated on the land between Princess and Hunter Streets, should be considered for scheduling
as ancient monuments, normally English Heritage responsibility (The Ancient Monuments and Archaeological Areas
Act 1979 as amended by national Heritage Act 1983), yet it is the Secretary of State's schedule the distinction
between their status reflects policy, the criteria for displaying the remains in situ should be 'whenever worthy'
rather than 'wherever practicable'.
This is perhaps the only major site of a legionary fortress in Europe likely to be available
for excavation in the foreseeable future. The City Councils suggestion of leaving the barrack blocks buried under
the development for future generations to find seems absurd; if we are not to preserve them in situ for future
generations to see, then excavation of the site would provide outstanding gains for our knowledge of Chester, and
Roman archaeology as a whole. The provision for display on site or off site of artefacts and remains a requisite,
consideration should be given to finding a way of displaying a barrack block either on site or off to enhance Chester's
Roman image.
Civic & Public area
ING Real Estate the developer
and Chester City Council's are to redevelop one of Chester's conservation areas, the largest single development
ever proposed in mass and scale inside the historic core of the City.
The new Northgate development will stretch from
Northgate Street in the east and St Martins Way to the west and including parts of Northgate Street, Hunter Street,
Hunters Walk, Princess Street, The Forum, Trinity Street, Hamilton Place, Goss Street, Goldsmith House Service
Road and Crook Street and adjoining land and premises, together with new rights to oversail and use land and property
for the purpose of the construction of the scheme and as a temporary market; and to carry out works to the Moat
House Hotel and to the rear of properties in King Street including King's Building's and King's Court and Watergate
Street.
A development (53949 sq. m. gross) of retail premises (440,000 sq. ft.), to include a House of Fraser Department
Store (140,000 sq. ft.) three large Major Store Units, over sixty new shops and store units, leisure and entertainment
facilities.
It is a significant proposal the over riding pressures are once again economic; this complication was one of the
main factors why the 1960's Forum development never came up to expectations. Chester has an international and national
image; we need to carefully consider the implications on the existing traders of the city, and the image this scheme
will project. There are many controversial elements to this proposal.
The site encompasses many important public buildings and amenities, The Gateway Theatre, The County Library, The
Public
Market
Hall, The
Bus
Station, The United Services Club, The Registry Office, City Mission, car parking with public toilets.
The facade of Hunter Street is unimportant to the development, used for no more than an access road for service
vehicles.
TCR2 Cheshire Structure Plan 2011
Retail and leisure development should satisfy all the following criteria:
. there should be a proven need for the development;
. it should not either or combined with other existing, committed or proposed development, significantly affect
the vitality and viability of an existing city, town, district or local centre, nor the overall level of shopping
provision in rural areas;
. it should not create an unacceptable rise in the overall demand for car travel, or be located where it would
add to traffic congestion which cannot be satisfactorily resolved;
. it should be accessible by a choice of means of transport, including foot, cycle and public transport, from its
catchment area, or include measures to make it accessible in this way;
The Rows
Demand for representation in the city centre is
strong; retailers approached have expressed a need for new floor space and it is considered that the proposal for
the development is necessary to meet demand.
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However, continual provision of new accommodation
may have important consequences for the historic shops which may lead to long term vacancies. New development must
be carefully planned polarisation of modern retail space in Chester will result in strong retail zones separated
by the secondary accommodation creating a dumb bell effect.
The total number of retail businesses in the Chester city centre has fallen this decline is mainly concentrated
in the convenience sector. There are a significant number of outlets classified as vacant or under construction.
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At present Chester is still below the national average
nearly 80% of all shop units in the centre are 2,499 sq. ft (2321 sq. m.) or less, if this is added to by a further
76 (excluding the department store) units then we may see Chester move above the national average.
Given that many of the listed buildings occupied
by shop units form part of the Rows, the assumption is that the number of listed vacant shop units is rising. Chester
City Council's Property Data revealed that at the time of the study of 101 vacant shops 20% were listed shops.
The condition survey revealed that the total number of listed buildings at risk and occupied, vacant or partially
occupied and or vulnerable in Chester is 242 (approximately 33%)
2. 2.16 The Future of an Historic City
The most significant change has been the level of vacancies. There has been a steady increase in percentage terms
since 1988 with a significant increase since 1992. During the period 1985 to 1992 there has been an overall gain
of vacant properties of 4.64% and a gain of 45 units that have become vacant. Compared to the Goad Samistat profile
report, vacancies in Chester are marginally higher than the national average both in terms of shop count and floor space
and therefore not considered to be a significant problem despite the fact that historic vacancy levels have been
lower.
It is crucial, that any change is consistent and compatible with the historic character of the City, which is one
of the main reasons for its popularity and attractiveness both as a local and major regional shopping centre. An
acceptable balance must be maintained, therefore, between the provision of shopping facilities both within and
outside the City centre and in the range and variety of shops throughout the area.
Housing
The land at Hunter Street is at present allocated
for housing/residential (CH2 and CC12 Greater Chester Local Plan 1988) the most appropriate use, safeguarding the
residential environment of King Street the long term urbanisation of the city.
The original Forum complex contained eight penthouse flats, sadly these have not been retained as part of the site,
of phase one of the development, they have been relocated much to the annoyance at the King Street residents expense.
The proposed plan further reduces the residential use of the plan area by the loss of the City Mission caretakers
house and Rosedale on Hunter Street. The land at Hunter Street is at present allocated for housing / residential,
this development should not have a detrimental affect on the amenities of people living nearby It should not compromise
the conservation or protection of features or areas of particular historic, archaeological. It should at least
maintain and where possible improve the standard of the environment by harmonising with its surroundings especially
in design, scale and type of materials used.
Policy No - CC 11 Greater Chester Local Plan (
App
2.10)
Policy No - CC 12 Greater Chester Local Plan
The Masonic Hall site, Hunter Street is allocated for residential development
Gen 3
Structure
Plan 2011
All development will be required to minimise adverse impacts on the beauty, heritage value and amenity of its site
and surroundings and where possible improve the quality of the environment, and should satisfy the following requirements:
. it should be appropriate to its surroundings in design, height, scale and materials; should take into account
local character and traditions; and should enhance degraded environments. Developments which have a major adverse
impact on adjacent areas, particularly Areas of Special County Value and the Peak District national Park, should
not be allowed;
. its layout should make good provision for access by walking and cycling, including cycle parking, and provide
for good access to public transport;
. it should not give rise to an unacceptable risk of flooding, or increase the risk of flooding elsewhere;
it should promote energy and resource conservation through its layout, orientation and landscaping;
. where measures are required to accommodate the additional traffic movements which will be generated by the proposed
development, or to provide other necessary infrastructure, or to meet the requirement of no net loss of environmental
value, the cost of planning, promoting and implementing these measures will be met by the developer.
URBAN GRAIN
Chester City council have adopted "park and
ride sites", limited parking in the city centre, we have seen the pedestrianisation of the City centre streets.
All these have had a significant impact on retaining Chester's Historic core.
Large developments increase the density of activity in the centre with its attendant traffic and other impacts,
the capacity guideline therefore is that where historic plot sizes can be identified any development and redevelopment
should respect those sizes. Where the plot size has lost its historic pattern, redevelopment should be in sympathy
with the historic plot sizes of the City. The loss of critical, streets, paths and alleyways is as important to
the urban grain as the loss of historic buildings and plots.
The
Future
of an Historic City
Guidelines and Principles (v) Urban Grain p76
In those sectors of the central area where large development has not already taken place, the prime aim should
be to retain the scale and texture of the urban fabric. The relationship of solid (i.e. buildings) and void (i.e.
spaces between buildings) is of great importance to such an aim. Historical research has revealed how this relationship
has changed, in some cases to a point where the qualities of Chester's urban grain have been lost completely. Therefore
in assessing development opportunities in the central area it is suggested that the solid and void relationship
created or affected by the development should carefully considered. A general guideline of 60% building footprint
to 40% space between buildings would be appropriate starting point for these considerations. Where modern development
has already depleted the qualities of urban grain the same general guideline could be applied to future redevelopment.
Open Space
We have an important green space, the Bowling Green
this significant element needs to be retained as it is one of the last remaining green areas within the city walls
on the western side. The new squares are inconsequential in relation to the considerable loss of open space. The
proposed development with regard to an intended "Open Street" layout is questionable, with an enclosed
character being created
Some major areas of open space have been identified as critical environmental features.
(
The
Future
of an Historic City)
"it is fundamentally important that these areas are given the strongest protection from the possibility of
incursion of development . It is also recognised that other areas of open space make a cumulative contribution
to the overall character of the City and are particular significant to local neighbourhoods. The loss or retention
of such space will need to be considered in the context of the local area as well as the over all requirement established
by the City standards. Provision of new development that includes public open space, the general upgrading of existing
public open space, and the selective transfer of private open space to public open space can all contribute to
this aim.''
Policy DENV 3 Consultation Draft Chester District Local Plan
New development which retains and enhances existing open spaces, or creates new open spaces, including traditional
features such as street furniture, surface materials and trees will be permitted.
Detrimental
impact
In many cases large developments have a detrimental
impact upon the historic buildings, character and heritage, general environment and amenity of the City.
The proposed development is not compatible with
the conservation and enhancement of the historic fabric. It should not be permitted because it will harm the unique
character of the city its visual, architectural and historic merit.
Hunter Street
Elevations Architecture and Design
Hunter Street is to be used for no more than an
access road for service vehicles exasperating the existing problems that the site already has with traffic, with
additional problems generated, by the inclusion on the site of a Department Store.
The facade of Hunter Street is unimportant to the
development; the street is to be used for no more than an access road for service vehicles. The appearance is that
the developer wishes to their back on Hunter Street offering a disturbing insight into the future outlook, differences
in scale of land mass. Due regard must be shown to the amount of traffic that will attracted to a development of
this scale.
Streets, Paths and Alleyways
This proposed development scheme
depends on the draw of trade and retailers, from the existing city centre shops, it will change the flow of pedestrians
pulling them away from established routes.
Pedestrian routes should be well - designed but
not over - engineered to the point where an artificial undercover labyrinth is produced.
Since 1872 a number of streets, paths and alleyways have been lost mainly due to development. examples of these
include , the severance of Newgate Street as a result of the Grosvenor development; the widening of Nicholas Street
and St Martin's way and the loss of north /south routes between Princess Street and Watergate Street as a result
of The Forum 60's development . In order to retain as much as possible of the urban grain of Chester no development
should effect the historic pattern of the remaining streets , paths and alleyways We must avoid the creation of
a monolithic structure, the streets should remain an open invitation.
The
Future
of an Historic City "Street patterns and frontages as with the urban grain, the same aim should apply
to the way in which Chester's critical streets, paths and alleyways, building frontages are treated in considering
new development. Their loss or severance has had a significant effect in the City. In order to protect the essential
qualities of historic Chester key buildings and street patterns should be identified and used to guide the form
of the development.''
Overhead Walkways
The covered walkway from the car park to the Department
Store and the one to the Hotel isolate the proposed new walk ways by creating an artificial undercover labyrinth.
Large Development effect the flows of the pedestrian, and existing street patterns.
RETAIL
Retail accounts for circa 20% of all jobs, £500
million to Chester's economy, with over 13,000 people employed in the sector. Chester's retail influence extends
to the northern part of the Wirral, Crewe to the east, Oswestry to the south, and Llandudno to the west.* The City has seen significant changes in shopping patterns
in recent years, reflecting trends in shopping both at a national and regional level. This is particularly evident
in the central area. Banks and eating places have sought to locate in the main retailing streets around the Cross,
shops have been lost to offices, banks and building societies, especially in Bridge Street and Watergate Street
and the trend towards large multiple retail stores replacing the small, independent specialist shop is particularly
evident along Foregate Street.
Growing Competition
Growing concern about the quality of new development
has prompted a national debate on the issue. Planning Guidance note 1 'General Policy and Principles' places a
strong emphasis on good design and encourages development with 'local distinctiveness'.
Since the mid-90's, over 232,000 square metres of new retail development has been constructed within an hours travel
time of Chester
*
. Shopping has been decentralised by the retailing of food
and bulky goods such as furniture, DIY, and leisure, with many consumers preferring the ease of parking at these
out-of-centre stores. The development at Sealand Road of retail warehousing and superstores has reduced the desire
to shop in the city centre. There has also been development outside the cities jurisdiction, Cheshire Oaks, (Ellesmere
Port) adjacent to the M53, ASDA (Queensferry Clwyd), Bretton Farm (Broughton). These have reduced the influence
of Chester city centre, drawing significant proportions of their trade from Chester. It is also expected that further
permissions will be given for new retail development outside the plan area but within the catchment area of the
City centre. Developments outside the city centre have absorbed a significant element of growth in comparison spending.
This raises the question could further development trigger an irreversible decline in City centre retailing?
Before providing
provision
for superstores, retail warehouses, or new large retail
shopping centres, we need to take account of the following factors. The Economic effects, including employment,
and the impact on the vitality of the City or nearby town centres. The environmental effects on the locality, and
the existing shopping centres, an essential requirement is good road access, accessibility by public as well as
private transport and good parking.
Sequential
approach
The governments guidance (PPG note 6) adopts a 'sequential
approach' this means that the first preference should be for town centre sites, where suitable sites or buildings
suitable for conversion are available. It also indicates that developers should be encouraged to provide high standards
of design. "This
recognises the need for balance in providing for retail development between town centre and out of centre retail
facilities. It emphasises the role of existing centres and local shops in minimising the need to travel and encourages
planning authorities to provide positive policies to encourage uses that will contribute to town centre vitality
and viability." (Chester District
Local Plan Consultation Draft 6.6.)
Thus the emphasis in national policy has changed, in favour of town centre sites and against out-of-centre development.
However, this needs to be achieved in a way that not only enhances the range of retail provision but adds to the
attractiveness of Chester as a shopping destination.
The reason in the first place for giving permission for out of centre retail facilities in Chester was the existing
problems of congestion and overcrowding in the City centre
(See Chester:
The
Future
of an Historic City
page 74, (7.2.4.) line 3)
The assessment of the retail implications of Phase II for the earlier proposed development by Chester City Council
& Scottish Widows (much smaller than the proposed development only 36 retail units) adds to the concern a development
of this size will have on the City
Phase II by Scottish Widows
*
"We forecast a range of growth options for the consumer market and the catchment which indicate that the retail
market could expand by between 46% and 50% in the 1991-2000 decade. In contrast, sales floor space could also increase
by some 60% if all the new floor space in the retail warehouses in Chester, the Cheshire Oaks Centre, and the Phase
II proposals for the Forum are included. Thus simplistically, more space will be competing for relatively less
money. This does not necessarily cause concerns: many businesses in the city centre are already trading at a high
level and some reduction in their business to relieve pressure was in fact intended by the original Structure Plan
designation of the Cheshire Oaks' site for retailing.''
page 46 Phase II,
"With regard to
the edge and out of town retail market, the major expansion of retail warehousing in the Sealand Road area since
1990 now means that Chester has a very good provision of such facilities. We estimate that the floor space stock
has increased by some 61% between 1991 and 1993 producing nearly half a million sq. ft. net (4645 sq. m.).''
Regions outside Chester have upgraded they are reducing Chester as a major sub-regional shopping centre. Chester
has a relatively small primary population (118,000). By limiting
parking
and bus
services
,
with no provision for traffic relief by the completion of the Western Bypass or new Dee crossing, can the City
support a development of this
size
inside the historic core of Chester?
Over provision
of floor space
It is importance to maintain the historic fabric
of Chester there is a danger of an over provision of comparison shopping floor space in the City Centre from the
building of the new retail units, with an adverse affect on the historic shops of Chester. Developments outside
the city centre have absorbed a significant element of growth in comparison spending, the importance of maintaining
the historic fabric of Chester means that it is inadvisable to develop a significantly greater amount of floor space
than can be justified by the growth in spending.
Policy No - CEN 2 Greater Chester Local Plan Conservation Areas (
App
2.9)
The
Chester Shopping Study A2.114
Demand for representation in the city centre is strong, but despite the quantity of vacant units there exists a
lack of suitable accommodation in the prime area. Retailers approached have expressed the need for new floor space
and consider the proposals for Forum Phase II are necessary to meet demand. However, continual provision of new
accommodation may have important consequences for older stock which may lead to long term vacancies. New developments
must be carefully planned if polarisation of modern retail space in Chester results in strong retail zones separated
by the secondary accommodation creating a dumbbell effect. Allied to new retail accommodation concern has been
expressed regarding car parking provision in terms of quality, amount and cost. As a result proposals for schemes
such as Cheshire Oaks would receive favourable interest if developed as sub-regional centres which would function
as akin to "in town " provision .
Policy Greater Chester Local Plan February 1988 (
App
2.1)
Policy No - CS 6 Greater Chester Local Plan February 1988 (
App
2.2)
The Chester Shopping Study A2.113
Chester has an above average proportion of large units particularly in the 20,000 - 40,000 sq. ft. (1858 sq. m.
- 3716 sq. m.) range, small units under 1,000 sq. ft. (92.9 sq. m.) and large units over 40,000 sq. ft. (3716 sq.
m.) Vacancy levels have increased since the 1990 study particularly as a result of the recession and partly as
a result of high Zone A rents and a mismatch between available stock and requirements.
The Shopping study considered that development should not exceed 27,900 sq
m - 55,740 sq m (300,000 - 600,000 sq. ft.) before 2011.
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