Draft Local Heritage List

Planning legislation and guidance encourages local authorities to identify historic assets of special local interest and maintain a list of them. This list can include local historic assets which are not already designated scheduled monuments, listed buildings or registered historic parks and gardens.

Local listing provides the information base that enables local planning authorities to recognise historic assets of particular local importance in the development management process, through policies in the local development plan which can be supported by supplementary planning guidance. This can help local planning authorities to manage change so that local historic assets remain responsive to present-day needs and contribute to the vitality of the area without an adverse impact on their character. Local listing also highlights historic assets of special local interest and provides an opportunity for a community to get involved in their identification and in caring for them appropriately.

The assets identified for inclusion on the list should make an important contribution to local distinctiveness and have the potential to contribute to public knowledge. Their selection should be based on clear criteria, sound local evidence and consultation. More information can be found with the Cadw guidance Managing Lists of Historic Assets of Special Local Interest in Wales.

Cardiff has an existing Local List of Buildings of Merit containing around 200 entries, some of which cover several grouped buildings. The list was approved by Planning Committee in November 1997, with 323 buildings identified at that time. The list has not been comprehensively reviewed since, although around one third of the buildings identified at that time have since been listed by Cadw, giving them statutory protection.

Due to the relative lack of national planning controls afforded to local listing, some buildings have unfortunately been significantly altered, or in extreme cases demolished. The list therefore requires revision to accommodate these changes, include new additions and to bring in new controls over demolition and alteration where applicable.

Adopted Cardiff Local Development Plan (LDP) Policy EN9 notes that development will only be permitted where it can be demonstrated that it preserves or enhances a locally listed building’s architectural quality, historic and cultural significance, character, integrity and/or setting. Notwithstanding this policy, some types of development benefit from what are commonly called ‘permitted development rights’. These are set out in the Town and Country Planning (General Permitted Development) Order 1995 (as amended) (‘GPDO’). For example, Part 31 of Schedule 2 of the Order permits demolition of a building.

We intend to revise our entire Local Heritage List over the next few years, this currently contains some 200 entries and was last reviewed (and first adopted) in 1997. This process will seek to ensure these buildings and others identified are afforded the same protection from demolition as the pubs and clubs now put forward for review as part of phase one.  This review will also include consultation and Cabinet approval.

The relevant heritage policies will also be revised in the ongoing review of the LDP.

Commercial premises such as pubs and clubs do not benefit from most of the permitted development rights conferred upon householders – so planning permission is required for alterations that materially alter the building’s appearance (extensions, changes to roofs, windows or doors, for example). However, unlike buildings listed by Cadw (Grades 1,2* & 2), all those on the Local List are not currently subject to any specific planning controls over demolition. Currently, their status simply means that, when works to a locally listed building require planning permission, the building’s special local architectural or historical interest can be taken into consideration before making a decision. As demolition does not currently require planning permission, this leaves many of our local heritage assets particularly vulnerable to demolition.

High profile cases such as The Crooked House in South Staffordshire demonstrate the strength of public feeling associated with the loss of characterful pubs. To address this issue, this first phase review of pubs and clubs for inclusion within our Local List also proposes to restrict permitted development rights for their demolition (and external decoration), allowing the Council to take their local interest into account should any such development be proposed. Known as Article 4 Directions, this requires a specific consultation and confirmation process that will be undertaken following adoption of the Local List by the Council’s Cabinet. Owners of these buildings will receive further letters when these Directions are made later in 2024/5.

Unlike in England (since 2017), there are no automatic legislative means to resist the principle of demolition or the change of use for pubs in Wales (also see Assets of Community Value and protectpubs.org.uk). This means that, ultimately, the only way to keep these places alive in Wales is for the community to continue to use, support and cherish them. This project is concerned with protecting buildings that are important to the city’s history and identity, whether they are remain in use as pubs or not.

Details of those pubs, clubs and hotels (both existing and former) which are currently proposed to be added to our Local List can be found listed below. Entries can be filtered by ward or via a map.

Listed Buildings are designated by Cadw for their national importance.  They are graded II, II* or I depending on their significance in terms of architectural or historic interest. There are no permitted development rights for alterations to listed buildings, and change is managed through the Listed Building Consent process.

In contrast, there is no specific consent required to alter or extend locally listed assets, the Local Planning Authority will take their special interest into consideration when determining planning applications.

Unlike with listed buildings, Local Listing does not affect changes to interiors.

Other Cadw statutory designations protect nationally significant Scheduled Monuments and Historic Parks & Gardens. There is also a non-statutory register of Historic Landscapes.

The 71 buildings identified are considered be of sufficient interest for inclusion when assessed against the following selection criteria¹:

1. Aesthetic or Design Merit

Historic assets of importance to the locality or region for the interest of their design, decoration or craftsmanship, including well-preserved examples of locally representative building types or styles, or locally distinctive techniques of construction or use of materials.

2. Historical Value

Historic assets of all types which illustrate important aspects of the past life of the region or locality, particularly its social, economic, or cultural history.

3. Historical Association

Historic assets of all types which have close historical association with people, events or movements important to the region or locality. Key works by distinguished or notable architects.

4. Landmark Status

(a) Buildings which contribute significantly to townscape appearance e.g., pubs, churches, factories, cinemas, banks, etc.
(b) Buildings that are a focal point of social or visual interest e.g., prominent corner sites.

5. Group Value

Historic assets of all types which have a clear visual, design or historical relationship, or which make a positive contribution to the setting of other historic assets, or to the character of a settlement.

(a) Groups which as a whole have a unified architectural or historic value to the local area.
(b) Terraces, enclosing buildings (surrounding squares etc.), uniform rows etc.

6. Social and Communal Value

Historic assets which have social value as a source of local distinctiveness or social interaction; assets that contribute to local identity or collective memory; assets that have spiritual value, or symbolic significance. Such buildings may include churches, schools, village and town halls, chapels, public houses, memorials, places of employment and workhouses, which formed a focal point or key social role in the historical development of the area. Given their particularly unique contribution to collective memory, public houses (or purpose-built former pubs) will be prioritised for local listing where they also have both historic (generally pre-WWII) and architectural interest.

7. Age

Buildings surviving from the earliest phases of development (in Cardiff’s case prior to c.1875) and early C20th suburban development and surviving in anything like their original form. Superficial alterations which may be reversed in the future, e.g., reinstatement of timber windows, will not preclude inclusion on the list.

8. Rarity

Historic assets that provide rare surviving evidence of a particular aspect of the history and development of the locality.

Exclusions:

Buildings will not be proposed for local listing (or subsequent Article 4 controls) if they are:

• On the Cadw statutory list (grade II or above).
• Are protected by virtue of being within an existing conservation area – buildings will be added to the local list only where they do not contribute positively to the character or appearance of the conservation area – for example they offer a neutral contribution but are of merit in their own right.

¹Criteria approved at the September 2023 Cabinet Meeting

Consultation closed 18th September.

Owners and occupiers of the buildings were sent letters inviting comments.

All comments received will be considered and recommendations made to the Council’s Cabinet in due course.

A summary of consultation responses will be compiled and the proposed additions to the Local List will be reported back to Cabinet for adoption. The revised list entries will be registered as Local Land Charges (as the existing list is).

A further consultation exercise will follow relating to the introduction of associated Article 4 Directions. Owners of these buildings will receive further letters when these Directions are made later in 2024/5.