Camden Market Planning Application

Economic and Retail Report

Prepared by RPS On Behalf of Castlehaven Row Ltd

August 2015

ECONOMIC AND RETAIL REPORT

CAMDEN LOCK MARKET

ON BEHALF OF CASTLEHAVEN ROW LIMITED

August 2015

Our Ref: JCG19634

RPS 14 Cornhill EC3V 3ND

Tel: 020 7280 3200 Fax: 020 7283 9248 Email: [email protected]

rpsgroup.com/london

CONTENTS

1 INTRODUCTION ...... 1 2 EXISTING USE AND PROPOSED DEVELOPMENT ...... 7 3 ECONOMIC AND RETAIL PLANNING POLICY ...... 17 4 ECONOMIC PROFILE AND BASELINE ...... 37 5 ECONOMIC ASSESSMENT ...... 49 6 CONCLUSIONS ...... 59

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1 INTRODUCTION

1.1 This report has been prepared on behalf of Castlehaven Row Limited (the ‘Applicant’) in support of a planning application which proposes the refurbishment and enhancement of the existing Camden Lock Market within Camden Town. The Market is situated adjacent to the Regent’s Canal with primary frontage to Road and secondary frontage to Camden Lock Place.

1.2 The purpose of this report is to assess the application proposals in terms of their compliance with national and local economic development policies as prescribed by the National Planning Policy Framework (NPPF) and the development plan covering the application site.

1.3 The Applicant is an experienced operator of markets within Camden Town. Castlehaven Row Limited is a subsidiary of Market Tech Holdings Limited. Market Tech Holdings Limited purchased the famous Camden Lock Market in October 2014 from the Urban Market Company and the investment fund Brockton Capital. In addition to Camden Lock Market, Market Tech also owns and manages the Stables, Buck Street (Union Street) and Hawley Wharf (formerly the Camden Canal Market) markets. The Stables market has been subject to comprehensive redevelopment in recent years providing purpose built market buildings comprising a mix of retail, leisure and business uses. Hawley Wharf and benefits from planning permission for a comprehensive mixed use scheme of redevelopment including new market retail floorspace. Work to implement the scheme has recently commenced. Unifying these sites under single ownership represents a huge opportunity to significantly enhance and improve the existing market and its surroundings.

1.4 Camden Lock Market was originally established in early 1970s as a weekly arts and crafts market operating on Sundays. Since then it has grown into a major domestic and international visitor attraction and trades across all days of the week.

1.5 In recent years a number of improvements to the market have been sustained including; proactive and engaged management, the introduction of a programme of events and festivals aimed at both visitors and the local business and residential communities, an improved website providing detailed information for visitors as well as advice to potential market traders about how to obtain a stall, expectations and standards etc, introduction of a night market which further stimulates the evening economy and enlivens and maximises the use of the market and an improved food offer (the ‘Global Kitchen’) which has proved very popular with local workers. The latest proposals build upon these improvements but they specifically seek to address a number of inherent physical constraints which detract from the overall visitor and trader experience. Key issues identified include:

§ Improving entrances to the market including legibility § Access, wayfinding and circulation issues § Weather protection for traders and visitors § Re-use of under-utilised space such as the Eastern Vaults within the Interchange Building § Maximising the market’s waterside setting § Provision of a higher quality market offer § Improve the attractiveness, type, location and juxtaposition, size, number and flexibility of existing units § Increased seating areas and areas of public space § Addressing operational issues including those associated with the food and beverage operation

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1.6 The Applicant has developed a ten point plan (‘retail manifesto’) which has informed the nature, composition and direction of the application proposals. Key commitments include:

§ Make Camden Lock Market more relevant to local residents and the working community § Re-engage with a wider London audience § Enhance the eclectic and attractive mix of small, niche, independent retailers § Be a centre of production and consumption – ‘making, doing, selling’ § Provide a range of occupancy offers – pop-ups, to market stalls to shop units § Increase quality in everything we do, whilst maintaining the diversity of the offer § Enrich and grow the food and drink and leisure offer, thereby also enhancing the evening offer § Inspire the formation of a hub for creative enterprise and cultural industries § Expand on our engagement with local charities and organisations § Encourage people to come and enjoy Camden Lock for its cultural diversity and retail integrity

1.7 Despite the recent and ongoing improvements outlined above, such measures alone cannot address the physical constraints which are impeding further progress towards the transformation of the market in line with the Applicants’ vision. Physical improvements are needed to address:

§ Problems with accessibility and circulation and congestion within and around the market. § Providing space suitable for a diverse range of businesses to support the start, grow, sustain cycle § Improve the functionality of the market § Physical works should respect the built and cultural heritage of the market, making full use of heritage assets § Use of high quality architecture and design to deliver an iconic experience and environment § Creation of multiple and diverse spaces allowing for a variety of public uses

1.8 A key driver of the application proposals is to sustain and enhance the contribution of the market to the economic and cultural well being of Camden Town making the market inclusive to all and widening its appeal to a broader demographic. Creating a diverse environment where leisure, entertainment, shopping and business uses and activities co-exist. The mix of uses will ensure a range of activities both during the day and the evening and will help to maintain and enhance the unique sense of place that is Camden Lock Market. In particular the proposals present an opportunity to stimulate local business enterprise through the development and availability of a range of premises suitable for business start ups and the sustained growth of established local small businesses.

1.9 The proposed development seeks to enhance Camden Lock Market from the perspective of the local business and residential community, traders and visitors through the sensitive refurbishment and reconfiguration of existing buildings/floorspace and the addition of new floorspace primarily within the Middle Yard. In the process a range of new public spaces will be created. Not only will these spaces add to the quality of the market but functionally they will help to improve general circulation and navigation around the market and provide opportunities for relaxation and outdoor events space.

1.10 The proposed scheme will maintain the established mix of market stalls, small independent shops and flexible business units. There will be a particular focus and support given to traders that design, make and sell quality craft goods thereby helping to re-create the original ‘arts and crafts’ feel of the market on the site. In addition the proposals provide for a range of cafes and

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restaurants, food stalls, office/studio and workshop space suitable for meeting the demand from small businesses involved in creative industries together with a range of cultural and leisure activities and events.

1.11 Like the existing market, at any given time, the ‘market’ floorspace dedicated to particular uses/activities will change and therefore the planning application seeks sufficient flexibility to ensure the market is able to operate having regard to these fluctuations. Market stalls and small units are ‘let’ primarily on daily/weekly basis according to the demand expressed by traders on a first come first served basis provided that the nature and the quality of the product being sold meets the market’s strict standards. This flexibility is particularly beneficial to new and occasional traders as it allows them to trade with a minimal initial financial outlay and no ongoing commitment. It allows such businesses to experience the market, gain confidence by speaking to other traders and through the support given by market managers with potential to grow into a regular business.

1.12 Due to the popularity of the existing market, it regularly suffers from congestion and the layout and size of the units does not provide the operator or traders with the necessary flexibility in terms of the provision of a range of types and sizes of units including temporary, semi permanent and permanent units. Similarly, the current configuration of the floorspace and buildings/ space does not easily lend itself to create the right mix and juxtaposition of uses and activities which can have a detrimental effect upon the operation. This often results in a poor experience for visitors and traders alike. The application proposals will help to address such issues. As discussed above, whilst a number of improvements have been sustained to the operation of the market in recent years leading to significant benefits in terms of the attraction of traders and visitors, further improvements are difficult to sustain without the introduction of physical improvements to the built fabric of the market.

1.13 It is important for the market to provide a mix of different types and sizes of units to help foster small business start ups and help to sustain and support established business enabling them to grow. This ethos lies at the heart of the Applicant’s vision for the market. Indeed, the Applicant already has direct experience supporting the start up and growth of small businesses as is evident from the existing market. The proposed scheme is ideally positioned to support Camden’s established and growing tech, media and creative industries base.

1.14 As with any proposals of this nature, the proposed physical improvements to the market will result in the temporary displacement of some traders and businesses as the focus of the market is returned to its arts and crafts roots with an emphasis on design, making and selling products. As the Applicant owns a range of other markets within Camden Town, it is likely that existing businesses that are displaced whilst the proposed works are undertaken could be accommodated by the other markets i.e. Buck Street (Union Street) and Stables markets within the Applicants’ control.

1.15 The expected benefits of the scheme are explored in the subsequent sections of this report but, briefly, these can be summarised as:

§ The proposals are consistent with the Council’s policies which seek to foster economic growth with particular support given to small businesses engaged in creative and cultural industries.

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§ The proposals will create a range of local job opportunities including those associated with both the construction and operational phases. These jobs are envisaged to comprise a mix of full and part time jobs, including those associated with the management of the market and those created through support given to small business start ups etc. The jobs created will involve different skill levels and therefore they will be attractive to a wide spectrum of local people seeking employment.

§ Improved levels of enterprise including an increased level of young entrepreneurs/more workshop space and opportunities for growth

§ The market will have an improved appeal for local residents created by the mix of uses proposed and creation of new public spaces

§ The market will provide improved flexibility in terms of the types, range and size of units/stalls available. This will support business growth e.g. transition from a market stall to a shop unit etc.

§ There will be a greater diversity in the mix of operators within the market, however the overriding character will be comprised of small independent traders

§ Reduced congestion and better resilience in terms of crime/anti social behaviour through improvements to the design of spaces and circulation/ management of visitors.

1.16 The latest proposals have evolved through detailed discussions between the Applicant, their consultants and the Council’s officers together with consultation with local community groups and the market’s tenants and other relevant organisations and parties. Other reports submitted in support of the application proposals fully describe the nature of that consultation and the key outcomes/milestones.

1.17 The new Class A floorspace has been designed to maintain and fully integrate with the established character and feel of the market and the northern section of Camden Town which comprises small independent shops and markets. The scheme provides a diverse range and mix of units and stalls consistent with that established by the existing market. The overwhelming character is a scheme comprised of small Class A units (typically 15-50sqm in size). However a limited range of larger units (>100sqm) are proposed which are necessary to cater for larger space users and to enable smaller businesses to grow. This mix of units is evident in the existing market. Flexibility in unit size is necessary to ensure the scheme is attractive to a range and mix of traders. The proposed range and mix of uses and the layout of the scheme will make a positive contribution to the overall vitality and viability of Camden Town and its streetscape. Furthermore, the proposals will have significant benefits in terms of stimulating the local economy through job creation attracting new businesses and enabling established traders to grow. Importantly, the scheme seeks to strike a better balance between meeting the needs of the local business and residential community and those of visitors.

1.18 The proposed scheme should be favourably considered for the following reasons:

§ The proposed retail/leisure and business floorspace is primarily located within the defined town centre of Camden Town and includes primary retail frontage to . This is the preferred location for these types of uses.

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§ The proposals relate to the enhancement of an existing operational market. The market is in active use for Class A1, A3, A4, A5 and B1 uses. Accordingly, shopping and other trips are already occurring at the application site.

§ The market (and Camden Town as a whole) is a substantial tourist attraction, attracting visitors from a wide geographical area including domestic and international tourists. The Camden Town markets make a major contribution to the local economy and identity of the town centre. Accordingly, the proposals are not solely supported by locally generated expenditure.

§ It is important that the market evolves through improvements such as those being promoted by the application proposals in order to maintain and improve their appeal to the local business and residential community and visitors. The market will focus upon quality craft goods, with an emphasis upon traders who design, make and sell goods. In this respect the proposals will cater for a different type of visitor broadening the appeal of Camden Town whilst positively responding to the needs of the local business and residential community. In this respect the proposals do not seek to replicate the largely clothing based retail offer of Camden Town’s existing markets and unit shops. The market will therefore have a distinct identity defined by its mix and diversity of uses and activities, range of goods sold and its physical environment through the deployment of high quality architectural design and space making.

§ The market would provide good quality studio, office and workshop space to attract, sustain and grow small businesses likely to be attracted to the area due to Camden Town’s popularity and affordability as a hub for creative and cultural industries. The proposal also provides Class D1/D2 flexible space for exhibitions and events

§ Camden’s policies are supportive of the type of economic investment proposed and specifically recognise the significance of market uses in Camden Town and set out the need to protect and promote them as a strategic objective

§ The proposals have been designed to maintain the feel and the established character of this part of Camden Town by providing a range and mix of units for different uses (retail, business, food and drink and assembly and leisure uses). The predominant character is one of small flexible units. The provision of a limited number of larger units is necessary (in common with those available in the existing market) to attract large space users e.g. antiques and furniture etc. These larger units will be occupied by independent traders as opposed to high street retailers. Larger units will be strategically located to assist in creating an even distribution of footfall across the application site and the maximisation of available space.

§ It is important the Applicant retains maximum flexibility regarding the size, number of units and range of market uses in order to maximise the commercial viability of the scheme and respond to demand expressed by traders. The overall character of the scheme is one comprised of small units with a limited range of larger units.

§ The scale of the proposed development in terms of new floorspace is modest. The proposed floorspace is entirely in scale with the role, function and designation of Camden Town as a ‘major’ centre where the development plan envisages the bulk of new retail floorspace to be accommodated outside of Kings Cross, St. Pancras and Euston.

§ The Ministerial Statement on Planning for Growth and the NPPF explain that local planning authorities should support proposals which promote sustainable economic growth. The proposed development will create a number of employment opportunities, support local business enterprise and increase consumer choice. These positive benefits should be given considerable weight. Indeed, the NPPF makes it clear that the government places significant weight on proposals which generate economic growth and job creation except where the adverse impacts of allowing development would significantly and demonstrably outweigh the benefits. There are no adverse economic effects associated with the application proposals.

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§ The proposed scheme would generate a number and range of new employment opportunities delivered through full and part time positions both during the construction and operational phases. There will also be opportunities for construction apprenticeships. This report estimates that the scheme would result in 420 new jobs associated with the operation of the market and 163 construction jobs per annum (272 total construction jobs over the 20 month construction programme)

1.19 The remainder of this report is organised into the following sections:

§ Section 2 comprises a description of the site and surrounding area together with details of the application proposals and any relevant planning policy designations affecting the application site in so far as they are relevant to economic development § A full examination of the relevant economic and retail planning policy background is contained within Section 3 of this report § Section 4 provides a review of the economic profile of Camden Town § Section 5 considers the potential economic effects of the application proposals against national and local economic policies § Finally the conclusions are drawn in section 6.

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2 EXISTING USE AND PROPOSED DEVELOPMENT

a) Introduction

2.1 This section of the report briefly describes the application site and the surrounding area before examining the nature of the application proposals. The proposals seek to improve the market through a programme of refurbishment and reconfiguration works together with sensitive new build floorspace.

2.2 The purpose here is to draw out aspects of the proposals relevant to an assessment of their potential economic effects. Other reports submitted in support of the application proposals fully describe the nature of the existing uses and buildings on the site and the design of the proposed scheme.

b) Existing Site and Surrounding Area

2.3 The original vision for Camden Lock Market was launched in the early 1970’s with major redevelopment undertaken in the 1990’s which led to the development of the concept of mixing market stalls, workshops, bars and restaurants into a cultural/retail destination that is evident today. The Market has grown to become a major tourist attraction for both domestic and international visitors.

2.4 Over time, the Market has proved extremely popular and has in many ways become a victim of its own success. Consequently the current application proposals seek to address the problems which have been identified which are currently preventing the market from sustaining its attraction to a wide participant audience.

2.5 As acknowledged within the Camden Town Place Plan, the establishment of Camden Lock set the tone for attracting the highest concentration of creative industries outside of the Central Activities Zone to Camden Town.

2.6 Camden Lock Market is located within the northern part of Camden Town centre within the heart of the area known as the markets area. Camden Lock comprises six key components:

§ Market Hall – a covered market space which has retail and office occupiers § East Yard – the southern part of the market situated between the canal and the Market Hall providing the primary pedestrian visitor entrance to the Market § Middle Yard – this area faces the canal and comprises a large cobbled area occupied by a mix of temporary food stalls, retail units and food and drink outlets § West Yard – occupied by market stalls and used as an event space. The Waterbus service also operates from here. § Camden Lock Place – provides the main access route for servicing the market. The street is lined with small independent unit shops. The area also provides storage facilities for demountable market stalls § East Vaults beneath the Interchange Building – under-utilised warehouse space served by a water inlet from the canal

2.7 The Market comprises a range of different buildings (including the Market Hall) and spaces including those occupied by market stalls and streets. The current market therefore provides a mix of indoor and outside space from where goods are displayed, sold and consumed. The

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Market also accommodates a range of business premises situated mainly to the upper floors of Chalk Farm Road and Camden Lock Place.

2.8 The table below provides a summary of the mix of uses within the current market by floorspace.

Table 2.1: Existing floorspace by Use

Use Floorspace sqm (GEA) Shops (Class A1) 2,050 Restaurants (Class A3) 745 Flexible market use (Class A1/A3/A4/A5) 1,922 Employment (Class B1) 1,615 Events/exhibition space (Class D1/D2) 795 Total 7,127 Note: includes ancillary/backup floorspace by use. Excludes market stalls.

2.9 The Market has primary frontage to Chalk Farm Road and secondary frontage to Camden Lock Place. Local bus services run along Chalk Farm Road and Camden underground station is located a short walk to the south along .

2.10 The southern boundary of the market is defined by the Regent’s Canal. The application site is home to the London Water Bus Company where visitors to the market can arrive and depart via scheduled canal boat services. The western perimeter of the application site comprises the Interchange Building East Vaults which is used for market storage – a Grade II Listed warehouse building beneath which lies Dead Dog Basin (an inlet from the Regent’s Canal).

2.11 The market is one of several markets within Camden Town. To the immediate north is The Stables market and to the east situated on the opposite side of Chalk Farm Road is Hawley Wharf – the site of the former Camden Canal Market which benefits from planning permission for a new market including a range of retail, leisure and business uses. All three markets plus the Buck Street market (now renamed as Union Street market) are within the ownership of the Applicant and the latest proposals form part of an overall strategy for the improvement and enhancement of the Applicant’s markets portfolio. The strategy seeks to differentiate each market, by appealing to a different demographic through the development of unique selling points.

2.12 The existing market operates on a daily basis and stalls/shop units typically trade between the hours of 10am to 6pm although a number of uses and activities operate into the evening including a Night Market and/or Backyard Cinema during the summer season. The Market takes the form of a number of market stalls selling a range of goods together with a range of permanent small shop type units (although much smaller in size than a typical high street shop) located along Camden Lock Place, within the Market Hall building and to the perimeter of the various yards. There are dedicated areas selling food adjacent to the canal within the West and Middle Yards. There are a total of (up to) 267 stalls within the existing market at any given time depending upon demand.

2.13 With the exception of the Interchange Building the entire application site is situated within the Camden Town centre boundary as defined by the Policies Map to the Camden Local Plan. The inclusion of part of the Eastern Vaults which lie beneath the Interchange Building presents an opportunity to create a new and unique flexible space for the market and event use as well as a

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restaurant venue which extends into Dead Dog Basin. The opening up the market’s heritage to the public was popular during the consultation events regarding the proposed scheme. It is considered that the benefits of including and incorporating this area within the overall application proposals outweighs any perceived policy conflict associated the sequential approach. For the reasons explained in this report, locating its floorspace elsewhere (within the town centre) would not be appropriate having regard to suitability, availability and viability tests. Importantly, the new space will only be accessible via the Market (which is wholly within the defined town centre) and in this respect it will function as part of the town centre.

2.14 Camden Lock Market is a well known and popular visitor attraction and has been very successful in generating demand from a wide range of traders and businesses seeking representation at the market. In recent years, a programme of regular events and activities has become established improving the overall experience for visitors and extending its operating hours to boast the evening economy. Such events also help the market to develop links and engage with the local residential and business communities and local charities and help to create employment.

2.15 Camden Town is a major town centre. But unlike comparable sized centres it is more economically diverse and has a far greater number and range of jobs. This is fuelled by its attraction as a major visitor destination and its appeal to cultural and creative industries. Visitors and businesses are drawn to Camden Town by its unique blend of shopping, leisure and heritage assets and its comparatively cheap, quality flexible business space. The Town Centre is a Business Improvement District.

2.16 Camden Town is focused around a linear High Street which runs from north of Mornington Crescent to Chalk Farm Road in the north. The northern part of Chalk Farm Road is characterised by small scale retail uses, bars and restaurants and the music venue. The southern part of the town centre comprises a traditional high street where the majority of multi-national retailer and service uses such as banks and building societies are located. The middle section of the town centre situated between Camden underground station and towards Chalk Farm station has become known as the markets area. This area comprises primarily small unit shops operated by independent traders together with six main markets including:

§ Camden Lock Market § Stables Market § Hawley Wharf – currently closed pending redevelopment § Buck Street Market §

2.17 The mix of town centre uses complement each other and result in a very diverse and vibrant environment which creates the unique sense of place that is Camden Town. The mix and juxtaposition of uses ensures a range of activities which attract visitors (residents, business and tourists) throughout the day and the evening. No other London town centre emulates Camden Town. In this respect, the Council’s planning policies seek to retain and enhance this special character with special protection afforded to the markets and independent small shops.

c) The Proposed Development

2.18 The application proposals comprise a combination of the refurbishment (remodelling, reconfiguration etc) of the existing market floorspace together with sympathetic new floorspace including a new Middle Yard Building and associated new public spaces. Each building will

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comprise a mix of different and complementary uses which maintain the unique character and appeal of the existing market whilst reinvigorating the offer and restoring the market’s original identity with a focus on design make and sell. Like the existing market, a key requirement underlying the proposals is the creation of flexible space which can adapt according to needs/demand expressed.

2.19 The buildings and the blend of uses have been carefully designed to address existing issues identified with the operation of the market including the use of under-utilised spaces, poor circulation and accessibly, poor weather protection and the need to provide a greater range of quality flexible spaces for traders and businesses which meet the needs of ‘start ups’ as well as allowing established businesses to grow. The proposed development will also enable a range of new outdoor spaces to be created allowing for a full programme of activities and events which contribute to the vibrancy of the market and the wider appeal of the town centre.

2.20 The application proposals retain the existing broad layout of the market, i.e. the Market Hall, the West Yard, Middle Yard and East Yard but also include a new Middle Yard Building (5 floors), a basement (for use as an events/exhibition space) and the imaginative use of the Eastern Vaults as the unique setting for a restaurant venue and flexible market/events and exhibition space potentially suitable for accommodating businesses that require significant amounts of display space given the nature of goods sold etc.

2.21 The proposed development comprises the following key components:

§ West Yard – an open and flexible outdoor food market and a space with a festival atmosphere § Middle Yard – open and new public space and improved connectivity (Camden Lock Place to Regents Canal) § Market Hall – a reconfigured covered market space (East Yard) § Camden Lock Place – flexible space for market stalls, street festival and independent shops § Eastern Vaults– opening up hidden heritage and key destination for food, lifestyle, music and exhibition/events space § Market House – Middle Yard building – purpose built market building

2.22 The upper floors of the buildings would predominately be used as office/studio/workshop space and management functions including:

§ Market Hall Building (2nd, 3rd and 4th floors used for office/studio/workshops) § Middle Yard Building (new build)(2nd, 3rd and 4th floors used for office/studio/workshops)

2.23 The table below provides a summary of the composition of the proposed floorspace by use.

Table 2.2: Proposed Floorspace by Use

Use Class Description Floorspace sqm GEA* GIA Class A1 Shops 2,904 2,756 Class A3 Restaurants 1,882 1,751.8 Class A1/A3/A4/A5 Flexible market use 2,112 1,898 Class B1 Employment 2,626 2,384 Class D1/D2 Events/exhibition space 1,736 1,613 Class D1/D2/A1/A5 Flexible market/events/exhibition space 700 595 Total 11,960 10,999 Note: includes ancillary space associated with each use. Excludes market stalls except those within the Market Hall

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2.24 By comparing the overall floorspace set out within the above table (proposed) to Table 2.1 (existing floorspace), the proposed development will result a modest net increase of 4,833sqm GEA floorspace (circa 3,431sqm NIA) which can be broken down as follows:

§ Class A1 shops +854sqm GEA (excluding market stalls) § Class A3 +1,137sqm GEA (excluding market stalls) § Class A1/A3/A4/A5 flexible market use +190sqm GEA § Class B1 employment uses +1,011sqm GEA § Class D1/D2 events and exhibition space +941sqm GEA § Class D1/D2/A1/A5 flexible market, events/exhibition space +700sqm GEA

2.25 Table 2.3 below provides a breakdown of the proposed floorspace by typical use/unit size and by the various buildings. This represents a typical composition of the floorspace but the application proposals seek sufficient flexibility to enable the market to respond to needs/demand in much the same way as the existing market operates. This flexibility operates across the uses described in Table 2.2 above.

Table 2.3: Typical Proposed Floorspace by Building/Area and unit size

Building Use Class/Description Typical unit size Potential Total range sqm NIA Floorspace sqm GEA NIA Market Hall Class A1 4 – 75 881 782 Building Class A3 28 – 165 536 481 Class B1 7 - 93 1,368 1,157 Middle Yard Class A1 22 – 217 702 649 Building Class A3 18 – 170 530 464 Class B1 26 - 223 690 599 West Yard Class A1 13 - 26 206 200 Building Class A3 26 - 191 666 559 Class A5 8 – 106 103 127 Eastern Vaults Class A1/A5/D1/D2 585 699 585 Class A3 455 487 455 Basement Class A1* 6 – 121 579 502 Class D1/D2 718 841 718 Note: *basement Class A1 retail is linked to ground floor units within the Market Hall by spiral staircase effectively providing a single unit of occupation split over two levels. Includes ancillary space associated with each use. Excludes markets stalls.

2.26 As can be seen from the table, a range of different units will be provided. The majority of the units proposed comprise considerably less than 100sqm floorspace. There are a limited number of units which exceed 100sqm. These relate to the specific need identified to allow businesses to grow and/or to accommodate existing businesses which already operate from units >100sqm thereby sustaining their operating format. Importantly, large units have been designed and positioned so that they do not appear alien to the character of the market i.e. they comprise one or more floors and/or they do not have extensive visible shop fronts etc. An indication of the location of the typical larger units (>100sqm) are provided in Table 2.4 below.

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Table 2.4: Typical Large Units (>100sqm)

Building Unit no. Use Size New (sqm) Build/Refurbishment NIA Market Hall 001 Level 1 Class A3 165 Refurbishment 001 Level 2 Class A3 165 Refurbishment 006 Level 0 + 001 Class A1 104 Remodel/new build Level -1 0026 Level 0 + 009 Class A1 100 Remodel/new build Level -1 0029 Level 0 + 006 Class A1 131 Remodel/new build Level -1 Middle Yard 003 Level 0 Class A1 217 New build Building 001 Level 1 Class A1 120 New build 002 Level 1 Class A3 170 New build 001 Level 2 Class B1 223 New build 002 Level 2 Class A3 135 New Build 001 Level 3 Class B1 202 New Build 001 Level 4 Class B1 148 New build West Yard 016 Level 0 Class A4 106 New build Building 001 Level Class A3 191 Refurbishment Eastern 001 – 004 Level 0 Class A3 455 Remodel Vaults 005 Level 0 Class A1 585 Remodel Basement 001 - 010 Level -1 Class D1/D2 718 New build

2.27 Table 2.5 (below) provides details of the split between new build floorspace and refurbished/remodelled existing floorspace comprised within each of the buildings.

Table 2.5: Refurbished Floorspace v New Build Floorspace

Building Refurbished/ New Build Total floorspace remodelled floorspace Floorspace sqm sqm NIA (all sqm NIA (%)* NIA (%)* uses)* Market Hall Building 2,409 (82%) 374 (18%) 2,783 Middle Yard Building 0 (0%) 1,736 (100%) 1,736 West Yard Building 951 (87%) 119 (13%) 1,070 Eastern Vaults 1,062 (100%) 0 (0%) 1,062 Basement 0 (0%) 1,939 (100%) 1,939 Note: excludes market stalls

2.28 In addition, a range of market stalls (flexible market use – A1/A3/A4/A5) will continue to be provided, the details of which are as follows (note these are not included within the above floorspace calculations):

§ Market Hall Building (East Yard) –159sqm NIA § Middle Yard Building –65sqm NIA § Middle Yard Building –54sqm NIA § West Yard Building –123sqm NIA § West Yard Building – 100sqm NIA

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2.29 The total amount of ‘floorspace’ comprised of market stalls is 501sqm NIA which is comparable to the existing amount of stalls (595sqm GEA). The existing market includes a total of 267 stalls. The refurbished market will provide a similar number of stalls for flexible market use, the use of which will depend upon need/demand expressed by traders and planned events/activities.

2.30 The application proposals will result in the displacement of some users however the Applicant has the ability to draw upon opportunities within the other markets which it controls to enable businesses to continue to trade during the programme of phased physical works. The proposals will enable an improved juxtaposition of businesses which will be of benefit to traders and visitors improving their experience with a corresponding reduction of conflicts between different uses and reduced congestion and accessibility difficulties.

d) Market Operation

2.31 An important aspect of the overall proposals is the manner, in which the proposed market, much like the existing market, will be operated and managed. Effective management can enhance the productivity of a market and its appeal to visitors and traders alike. The Applicant is well versed in ways to manage markets and many of the existing control/management mechanisms will continue to apply and be enforced. As mentioned earlier, the Applicant believes in a transparent and open management style. The Applicant has published online the Market Traders Handbook which provides detailed guidance for traders how to trade.

2.32 The existing Camden Lock Market and Stables markets are managed and operated in a similar manner. These day-to-day management practices would be employed as part of an enhanced market offer. The management style is duly described below.

2.33 In recent years the Applicant has been successful in securing a number of improvements to its markets. The latest proposals are a further iteration of those improvements which fit within an overarching strategy for the future of the markets.

2.34 The Camden markets represent one of London’s most significant tourist attractions and are at their most popular at weekends and on Bank Holidays. Many of the stalls/units are also open at other times during the week depending upon the trader and location of the units. The refurbished market will seek to distinguish its retail offer from the other established Camden Town markets and therefore provide a unique and genuinely different and vibrant mixed use retail, leisure and business offer with an increased provision of outlets catering for local needs.

2.35 The daily operation of the market including the letting of individual units is strictly controlled by the Applicant. The application proposals seek to retain a similar number of market stalls. Clearly with such a large number of units/traders it is important to adopt a proactive management style to ensure the smooth operation of the market. This relies upon having a dedicated team of people to manage all aspects of the day to day running of the market. Accordingly not only do the application proposals result in indirect employment opportunities for traders, restaurants, small and medium business enterprises they will also result in direct employment relating to the management of the market. In this respect there will be a wide range of employment on offer including, security staff, cleaners, managers, designers, maintenance staff and trades persons. In additional there will be associated temporary construction jobs.

2.36 Matters such as tenant mix, retail offer, security etc can all be coordinated by a central management team in a manner that ensures the markets are attractive to visitors and traders

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alike and ensure that the operation of the market does not cause a nuisance to adjacent occupiers including the local business and residential community.

i. Lettings

2.37 Unlike major town centre shopping centres and high street shops where leases are typically granted to retailers for in excess of 10 years, units within the markets are let to individual traders on a much shorter period and on a flexible basis. Stalls are generally available on a casual basis and let on a daily basis although there are regular traders who trade most days. The larger unit ‘shops’ (operated by independent businesses) are let on a longer period e.g. monthly or more depending upon the nature of the business. Some of the larger units however involve more secure arrangements providing both the trader and Applicant with greater certainty given increased investment for both parties. There is a turnover of small units during the year providing new and interesting additions to the retail mix. There remains an extensive list of traders seeking positions within the market. The application proposals will assist in meeting that demand. However the availability of stalls/premises does not guarantee a successful letting, this will depend upon the nature and quality of the goods or services provided which need to meet strict guidelines and standards.

2.38 Weekly rental agreements afford considerable flexibility enabling traders to move, merge and sub-divide units and change uses. This system of lettings has proved particularly important in attracting new traders to the market and fostering new business start-ups. This letting strategy will be adopted as part of the refurbished market. The system enables new businesses to test trading conditions at the market without making any long-term commitments. Similarly, weekly lettings of small units enable the market managers to carefully monitor traders in terms of the range and quality of products being made available for sale and their relative attraction to customers. If the standard of goods sold by individual traders is found to be below the high standard expected then the management is able to give the trader notice to quit at relatively short notice. Conversely, the system allows successful traders to upgrade to more prominent or larger premises as and when suitable units become available. The application proposals will help to ensure a wider availability and variety of units and thereby assisting in retaining successful businesses which make a significant contribution to the overall vitality and viability of the market. Importantly, the design of the scheme will maximise the available space and ensure all units are of a good quality and are not compromised thereby in turn helping businesses to be successful in attracting customers with good visibility and proximity to key ‘anchor’ units.

2.39 The Applicant is selective in choosing traders to fill vacant units/stalls etc. In this respect the product range and type of trader has to fit with the character of the market. In this respect the refurbished market will seek to focus upon the design, make and sale of goods especially those associated with the market’s heritage i.e. arts and crafts. The Applicant manages the location of specific traders within the market, for example, to provide key attractors and then to co-locate complementary traders to maximise the retail offer and attraction to visitors. In this way, consideration is given to the location of individual and groups of market traders to ensure the best visitor experience.

2.40 Due to the high demand for market units, individual traders are required to submit a mood board detailing the look and feel of their retail concept plus details about their brand and social media channels together with samples of the goods that they intend to sell to the management team. In some cases, photographs of the products may be acceptable. If the goods are considered

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suitable (quality, range, fit with the existing retail mix etc) then a unit will be offered (subject to suitable units being available) otherwise traders will be placed on a waiting list.

2.41 There are strict rules and regulations that traders must abide by in relation to the rental of market units. These are set out with the latest edition of the Traders Handbook published on the Market’s website. The Handbook includes advice on the following matters.

§ Housekeeping matters: limits of the stall/shop unit, use of canopies, liability insurance, fire safety, use or gas and electrical appliances, lighting, deliveries, window displays etc § Casual Traders: set up times, stalls, electricity § Food traders: food safety, cleaning, waste, washing area, menu § Tenants: terms and conditions, fire safety, waste, maintenance etc § Works/Shop Fitting: fixings, decoration, notices, fire safety, electrical works etc § Health & Safety: CCTV, security hours, alarms, vigilance § Marketing and social media assistance

ii. Design and Fit out of market units

2.42 The Applicant ensures a very hands-on approach in relation to its property portfolio. The design and fitting out process of market units is undertaken by contractors on behalf of the Applicant in liaison with traders. In this way Applicant maintains complete control of the appearance of the market ensuring quality of materials, workmanship and compliance with regulations such as health and safety, planning etc. Again this ensures the smooth operation of the market and provides traders with certainty regarding running costs etc.

iii. Security

2.43 Security for both traders and visitors within the market is taken very seriously by the Applicant. The Applicant maintains a highly visible security presence within the markets, which helps to prevent crime, and ensure the health and safety of traders and visitors. Over the years the Applicant has developed good working relationships with other private security guards patrolling Camden and the metropolitan police.

2.44 The Applicant maintains 24 hour security for both the Stables and Camden Lock Markets. This includes the provision of CCTV with a central control room and the deployment of security guards. The presence of security personnel at weekends is increased. The proposals also include CCTV.

2.45 All traders are given direct contact numbers for security staff in the event of an emergency. Security staff regularly patrol the markets. Their movements are closely monitored by CCTV and 2 way radio. In combination these measures enable the location of individual security guards to be monitored so that in the event of an emergency the most appropriate guards (in terms of their location) can be deployed to assist. Simultaneously the system ensures the personnel safety of the security guards themselves. Security staff numbers vary between weekends and weekdays and day and night according to needs.

2.46 The above management practices will continue to be deployed in respect of the refurbished market and assist its smooth operation thereby ensuring an excellent visitor experience and protection of local residential amenity. Further details are contained within the Market Management Plan.

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e) Planning Designation

2.47 The statutory Local Plan covering the application site comprises the Camden Core Strategy, Development Policies DPD and Policies Map adopted in November 2010 together with the Site Allocations DPD (September 2013).

2.48 Camden Lock Market does not secure a land use designation for a specific planning purpose within the Camden Local Plan although it does lie within a wider area which is designated as forming part of a conservation area, Camden Town centre and primary (Chalk Farm Road) and secondary (Camden Lock Place) retail frontages. In additional the Local Plan includes a number of policies which apply directly to proposals, such as these, relating to Camden Town markets and the provision of small shop units. These policies are duly explored in the next section of this report.

2.49 Part of the application site (Eastern Vaults beneath the Interchange Building) lies outside (but immediately adjacent to) the defined town centre boundary.

2.50 The Core Strategy (policy CS1, CS3 and CS7) confirms that Camden Town (including the application site) is a suitable location for accommodating growth in retail floorspace and other forms of economic development including business retention and creation and leisure/entertainment uses.

2.51 The next section of this report examines the economic and retail planning policy background against which the application proposals need to be assessed.

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3 ECONOMIC AND RETAIL PLANNING POLICY

3.1 This section of the report provides a commentary on relevant national (National Planning Policy Framework), regional (London Plan) and local (Camden Local Plan) economic and retail planning policies against which the application proposals need to be considered.

3.2 In this case, the development plan (excluding site specific designations) comprises the adopted Camden Core Strategy and Camden Development Polices DPD (November 2010) together with the adopted London Plan (March 2015). In addition to which there are a range of non-statutory supplementary planning documents. There are also a number of Ministerial Statements relating to planning for economic growth and sustainable development. Such Statements are material considerations in the determination of planning applications and need to be read in conjunction with the NPPF and the policies of the development plan.

a) National Planning Policy Framework

3.3 The NPPF (March 2012) builds upon the Ministerial Statements on Planning for Growth (March 2011) and Positive Planning (June 2011). The NPPF combines the government’s economic, environmental and social planning policies. The NPPF is accompanied by Planning Practice Guidance (March 2014). The new Practice Guidance contains a condensed version of the previous guidance.

3.4 The Ministerial foreword to the NPPF states that the purpose of planning is to help achieve sustainable development. Sustainable development is defined as ensuring ‘that better lives for ourselves don’t mean worse lives for future generations’.

3.5 Fundamentally, ‘development that is sustainable should go ahead, without delay – a presumption in favour of sustainable development that is the basis for every plan, and every decision’.

3.6 The purpose of the planning system is to contribute to the achievement of sustainable development (paragraph 6). The NPPF states that there are three dimensions to sustainable development:

§ “An economic role – contributing to building a strong, responsive and competitive economy; § A social role – supporting strong, vibrant and healthy communities; and § An environmental role – contributing to protecting and enhancing our natural, built and historic environment.”

3.7 At the heart of the NPPF is a presumption in favour of sustainable development. In relation to decision making this means:

§ Approving development proposals that accord with the development plan without delay; and § Where the development plan is absent, silent or relevant policies are out of date, granting permission unless: − any adverse impacts of doing so would significantly and demonstrably outweigh the benefits, when assessed against the policies in this Framework taken as a whole; or − Specific policies in the Framework indicate development should be restricted.

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3.8 Economic development is defined in the Annex as ‘B Use Classes, public and community uses and main town centre uses (but excluding housing development).’ Main town centre uses in turn are described (consistently with the government’s predecessor to the NPPF as set out in PPS4) as, ‘retail development (including warehouse clubs and factory outlet centres); leisure, entertainment facilities the more intensive sport and recreation uses (including cinemas, restaurants, drive-through restaurants, bars and pubs, night clubs, casinos, health and fitness centres, indoor bowling centres, and bingo halls); offices; and arts, culture and tourism development (including theatres, museums, galleries and concerts halls, hotels and conference facilities).’

3.9 The Government proposes to deliver sustainable development by securing economic growth in order to create jobs and prosperity (paragraph 18). Indeed, paragraph 19 confirms that:

“The government is committed to ensuring that the planning system does everything it can to support sustainable economic growth. Planning should operate to encourage and not act as an impediment to sustainable growth. Therefore significant weight should be placed on the need to support economic growth through the planning system.”

3.10 Paragraph 21 advises that ‘investment in business should not be over-burdened by the combined requirements of planning policy expectations. Planning policies should recognise and seek to address potential barriers to investment’. In particular the NPPF emphasises:

“support existing business sectors, taking account of whether they are expanding or contracting and, where possible, identify and plan for new or emerging sectors likely to locate in their area. Policies should be flexible enough to accommodate needs not anticipated in the plan and to allow rapid response to changes in economic circumstances.”

3.11 The Government’s planning policies for town centres are set out at paragraphs 23 – 27. The NPPF, in the first instance directs new main town centre uses including retail and leisure uses to town centres. Proposals for retail, leisure and office uses outside town centres and not in accordance with an up to date development plan should be subject to sequential and impact testing (subject to certain thresholds).

3.12 Paragraph 23 recognises that it is important ‘that needs for retail, leisure, commercial...uses are met in full and are not compromised by limited site availability’ in relation to plan making. The same principal must reasonably be applicable to decision taking. This means that if there is a compelling need to locate uses outside town centres and that specific need cannot be met in a centre then the sequential test would be satisfied.

3.13 Furthermore, in relation to markets, paragraph 23 of the NPPF states:

“retain and enhance existing markets and, where appropriate, re- introduce or create new ones, ensuring that markets remain attractive and competitive.”

3.14 The sequential test applies to all main town centre uses outside town centres or not in accordance with the development regardless of the size of a proposal. The only exception relates to small scale rural development. The application site is predominately located within the defined town centre boundary of Camden Town (the balance of the site is located immediately adjacent

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to the town centre boundary) and indeed parts of the site form designated shopping frontage. Therefore, in broad terms the mix and range of uses proposed are fully compatible with the Government policy for town centres.

3.15 In respect of impact, paragraph 26 states:

“When assessing applications for retail, leisure and office development outside of town centres, which are not in accordance with an up to date Local Plan, local planning authorities should require an impact assessment if the development is over a proportionate, locally set floorspace threshold (if there is no locally set threshold, the default threshold is 2,500sqm). This should include assessment of:

§ The impact of the proposal on existing, committed and planned public and private investment in a centre or centres in the catchment area of the proposal; and § The impact of the proposal on town centre vitality and viability, including local consumer choice and trade in the town centre and wider area, up to five years from the time the application was made. For major schemes where the full impact will not be realised in five years, the impact should also be assessed up to ten years from the time the application is made.”

3.16 The application proposals relate to a site located predominately within the defined town centre of Camden Town. The balance of the proposals which lie outside the centre (flexible market, events and leisure uses) but immediately adjacent to the defined Town Centre Boundary comprise 1,062sqm NIA. This floorspace relates to the re-use of East Vaults which can only be accessed through the existing market which is located within Camden Town Centre. These are integral to the overall development proposals for Camden Lock Market. The development plan does not set a local policy threshold for testing impact below 2,500sqm therefore the NPPF default threshold applies. In this respect there is no NPPF policy requirement to examine the potential ‘impact’ of the application proposals associated with the limited amount of proposed flexible market, events and leisure floorspace proposed outside the town centre boundary.

3.17 In relation to plan making, the NPPF advises local authorities to have a clear understanding of business needs (paragraph 160). In respect of decision taking:

“Local planning authorities should look for solutions rather than problems, and decision-takers at every level should seek to approve applications for sustainable development where possible. Local planning authorities should work proactively with the applicant to secure developments that improve the economic, social and environmental conditions of the area.” (paragraph 187)

3.18 The proposals would enhance the existing market and its continued contribution to the vitality and viability of the wider town centre. In particular, whilst resolving existing operational conflicts, the re-use of underutilised and reconfiguration of existing space and other improvements to the visitor experience and trading environment, fundamentally the proposals will support and help to nurture a range of small businesses allowing them to grow. This growth will be achieved through a continuation of existing support mechanisms but also through the provision of more flexible floorspace including a range of different types of trading formats and sizes to suit businesses and

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individual needs whilst maintaining an attractive mix of occupiers which appeal to visitors. There will be an emphasis upon quality products, with a focus upon handmade arts and crafts. The combination of these measures will help foster a sense of place which is compatible with and directly supports Camden Town’s unique character and vibrancy. The proposals aim to make the market more appealing to visitors, businesses and residents alike ensuring the market fully engages with the local community. This would include an active programme of events to engage the local community and visitor and continue the diversification of the market so that it has a wide appeal through the day and evening.

Ministerial Statements

3.19 Planning for Growth (Ministerial Statement by Greg Clark, 23rd March 2011) was issued as part of a range of measures introduced by the 2011 Budget. It remains a material consideration in the determination of planning applications. The Statement establishes a clear presumption in favour of sustainable economic development. The Statement sets out a clear direction that planning applications which promote economic growth should generally be permitted except where proposals would compromise the key sustainable development principles set out in national planning policy.

3.20 Furthermore the Statement requires local planning authorities when deciding whether to grant planning permission should support enterprise and facilitate housing, economic and other forms of sustainable development. Where relevant local authorities should:

§ Consider fully the importance of national planning policies aimed at fostering economic growth and employment, given the need to ensure a return to robust growth after the recent recession. § Take into account the need to maintain a flexible and responsive supply of land for key sectors, including housing § Consider the range of likely economic, environmental and social benefits of proposals; including long term and indirect benefits such as increased consumer choice, more viable communities and more robust local economies (which may, where relevant, include matters such as job creation and business productivity) § Be sensitive to the fact that local economies are subject to change and so take a positive approach to development where new economic data suggests that prior assessments of needs are no longer up-to-date § Ensure that they do not impose unnecessary burdens on development.

3.21 The Statement advises local planning authorities to give appropriate weight to the need to support economic recovery and those applications that secure sustainable growth should be treated favourably.

3.22 The above advice is particularly pertinent to the application proposals. The proposals seek flexible Class A, B and D floorspace to enable the development to respond to prevailing economic conditions and also demand expressed by traders/businesses. The nature of the proposals means that flexibility is the key to the success of the scheme. This allows the market to adapt to the needs expressed by businesses at any given time.

3.23 The Statement advises local planning authorities to give appropriate weight to the need to support economic recovery and those applications that secure sustainable growth should be treated favourably.

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3.24 The proposals have a number of important economic benefits including:

§ Creation of an extensive number and range of local employment opportunities § Attract new businesses/traders to ‘start-up’ whilst simultaneously providing an opportunity for existing businesses to grow, retaining them within Camden Town and thereby contributing to the continued economic prosperity of the town § Retention of local retail and leisure expenditure § Promote tourism within Camden Town by providing significant investment in upgraded market facilities maximising the sites’ canal side setting and in the process maintaining and reinforcing the character and attraction of Camden Town § Provide an increased range and choice of retail/market units and local shops and services aimed at meeting the day to day needs of local residents as well as visitors with a focus upon placing the market at the heart of the local community in terms of a shopping, leisure and business asset § Improve the attraction of the market by shifting its demographic appeal

3.25 These are the types of benefits arising from economic development proposals such as these which are recognised by the Ministerial Statement as being clearly capable of stimulating growth in the local economy. Accordingly, such benefits should weigh heavily in favour of permitting the proposals. Furthermore, this growth can be sustained without harm to the established and unique character of Camden Town. The proposals reinforce the established character of the northern part of the town centre through the provision of small flexible units for a range of Class A and B purposes.

3.26 Furthermore, on 15th June 2011 the Planning Minister announced a major change to planning policy by the inclusion of a new ‘presumption in favour of sustainable development’. The Minister’s Statement advises; “the presumption in favour of sustainable development has a strong role to play in helping with the country’s economic recovery by ensuring proposals in line with plans get approval without delay”.

3.27 On the 9th May 2013 a Written Ministerial Statement by Eric Pickles confirmed the importance of bringing empty and underused buildings back into productive economic use. The policy effectively favours the re-use and adaption of existing under-utilised floorspace. In this respect the application proposals are entirely consistent with this statement. They seek to make efficient use of existing land and buildings with a favoured town centre location. Furthermore, the small element of the scheme which is integral but located outside (but immediately adjacent) to the town centre will bring back into full and productive economic use part of the Interchange Building as a unique restaurant/flexible market retail/events and exhibition space. The sole means of accessing this space will be from the market i.e. via the town centre thereby directly supporting the vitality and viability of both the market and the town centre consistent with policy.

3.28 The proposals will create a significant number of small retail units suitable to meet the needs of local residents, visitors and traders. There is currently a long waiting list of traders wishing to take units/stalls at Camden Lock and Stables markets. Furthermore, the design of and the mix and juxtaposition of uses comprising the proposed development has evolved from the established character of this part of Camden Town – the proposed development respects that established character but at the same time aims to provide a vibrant new type of attraction that will make a major positive and beneficial contribution to the vitality and viability of Camden Town. The proposals aim to strike a balance between meeting the needs of local residents and businesses.

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3.29 In summary, the draft NPPF sets out a strong support for planning proposals which accord with an up to date development plan and which deliver new sustainable economic development through the creation of new retail and leisure development in town centres. The Applicant’s proposals fully accord with these objectives.

b) The London Plan

3.30 Alterations to the London Plan were adopted by the Mayor in March 2015. The Plan sets out the planning policy basis for economic, retail and leisure development in London. The following paragraphs briefly explore the policy tests applicable to new town centre development such as that proposed at Camden Lock Market.

3.31 The overarching objectives of the London Plan are:

§ A city that meets the challenges of economic and population growth § An internationally competitive and successful city § A city of diverse, strong, secure and accessible neighbourhoods § A city that delights the senses § A city that becomes a world leader in improving the environment § A city where it is easy, safe and convenient for everyone to access jobs, opportunities and facilities

3.32 The Plan identifies the key forces driving change in London as population growth and economic and employment change. Increases in population will result in simultaneous increases in available retail and leisure expenditure and additional demand for new retail, leisure facilities and business space within London. In this respect, the application proposals will help to fulfil part of that need through the provision of additional retail, leisure and market and business floorspace in a format that is attractive to both local residents and visitors alike.

3.33 To meet this growing requirement, the London Plan establishes a network of town centres within its overall strategy, which can inter-relate with each other and the specific sub-regions that they serve. The London Plan defines five broad types of town centre within London, namely; International Centres, Metropolitan Centres; Major Centres, District Centres and Neighbourhood and Local Centres. Camden Town continues to be defined as a Major Centre.

3.34 Policy 2.15 states that town centres will provide:

§ The main foci beyond the Central Activities Zone for commercial development and intensification, including residential development § The structure for sustaining and improving a competitive choice of goods and services conveniently accessible to all Londoners, particularly by public transport, cycling and walking § Together with local neighbourhoods, the main foci for most Londoner’s sense of place and local identity within the capital

3.35 Development proposals in town centres are required to conform with policies 4.7 and 4.8 and the criteria set out in policy 2.15 (a) to (h) namely:

§ Sustain and enhance the vitality and viability of the centre § Accommodate economic and/or housing growth through intensification and selective expansion in appropriate locations § Support and enhance the competitiveness, quality and diversity of town centre retail, leisure, arts and cultural, other consumer services and public services

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§ Be in scale with the centre § Promote access by public transport, walking and cycling § Promote safety, security and lifetime neighbourhoods § Contribute towards an enhanced environment, urban greening, public realm and links to green infrastructure § Reduce delivery, servicing and road user conflict

3.36 The supporting text to the policy recognises a wide range of uses will enhance the vitality and viability of town centres. Leisure uses including those within Class A3/A5/D1/D2 contribute to London’s evening economy and ensure that town centres remain lively beyond shopping hours.

3.37 Annex 2 of the Plan provides strategic guidance on policy directions for individual town centres, including their potential for growth. Camden Town is identified as a regional/sub-regional night time economy cluster with a ‘medium’ policy direction meaning centres ‘with moderate levels of demand for retail, leisure or office floorspace and with physical and public transport to accommodate it’.

3.38 Policy 4.6 provides general support for the enhancement of arts, culture, sport and entertainment facilities within London. The application proposals will provide for an enhanced range of events and entertainment uses within a controlled and managed environment positioned away from sensitive receptors.

3.39 Policy 4.7 establishes a series of principles against which proposals for new retail and town centre development should be considered against. These include:

§ The scale of retail, commercial, cultural and leisure development should be related to the size, role and function of a town centre and its catchment § Retail, commercial, cultural and leisure development should be focused on sites within town centres, or if no in-centre sites are available, on sites on the edges of centres that are, or can be, well integrated with the existing centre and public transport § Proposals for new, or extensions to existing, edge or out of centre development will be subject to an assessment of impact.

3.40 The application proposals are consistent with the thrust of policy 4.7. They relate to the extensive refurbishment and enhancement of Camden Lock Market situated within the heart of Camden Town centre so that it is more attractive to visitors including the local business and residential communities.

3.41 Furthermore, policy 4.8 requires local planning authorities to take a proactive approach to planning for retailing and related facilities by:

§ Bringing forward capacity for additional comparison goods retailing particularly in larger centres such as Camden town § Support convenience retailing § Provide a policy framework for maintaining, managing and enhancing local shopping facilities and to develop policies to prevent the loss of retail and related facilities that provide essential convenience and specialist shopping § Identify areas under served in local convenience shopping facilities and services § Support the range of London’s markets, including street, farmers’ and, where relevant, strategic markets, complementing other measures to improve their management, enhance their offer and contribute to vitality of town centres

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3.42 Furthermore the policy specifically identifies a requirement to ‘manage clusters of uses having regard to their ‘positive and negative impacts’ on town centres including:

§ Broader vitality and viability § Broader competitiveness, quality or diversity of offer § Sense of place or local identify § Community safety or security § Success and diversity of its broader retail sector § Potential for applying a strategic approach to transport and land use planning by increasing the scope for linked trips § Role in promoting health and well-being § Potential to realise the economic benefits of London’s diversity

3.43 These are the types of issues which the application proposals seek to address. A number of issues (as identified by the previous sections of this report) have been identified by the Applicant which have a detrimental effect on the operation of the existing market many of which relate to the operation and physical configuration of the market. These detract from the overall visitor experience and impact upon business. The application proposals seek to maximise benefits for traders and visitors by improving the overall quality and function of the market. The physical works will improve cohesion, accessibility and legibility whilst simultaneously upgrading the space available in which to foster small business development and growth.

3.44 A number of initiatives have been introduced in recent years to improve the experience for visitors and businesses including an active programme of events, new trading formats, handbook for traders providing best practice advice, e-commerce, improved security etc. However, a number of inherent problems remain and cannot be resolved without a significant programme of investment in the physical refurbishment and enhancement of the Market’s floorspace. The current application proposals provide this opportunity. The original market was established as an arts and crafts market. The Applicant wants to support creative industries in a unique environment with a mix of related uses and activities. The proposals allow for the introduction of a greater number and variety of permanent premises, supplemented by a range of temporary trading formats and events designed to encourage and foster a mix of businesses with a strong emphasis on business which design, make and sell quality products. In addition, building upon the successful transition achieved in recent years, the food offer will be further improved.

3.45 The supporting text identifies (paragraph 4.48) larger centres as being appropriate locations for accommodating much of the growth in comparison goods retail expenditure and floorspace. The availability of accessible local shops and related uses meeting local needs for goods and services is also important in securing ‘lifetime neighbourhoods’ – places that are welcoming, accessible and inviting to everyone. The application proposals have been designed in the spirit of this policy objective.

3.46 Paragraph 4.49 recognises that street markets can make valuable and distinctive contribution to meeting Londoners varied dietary requirements and extending competitive choice and access to a range of goods, as well as contributing to the vitality and wider offer of town centres. The application proposals will ensure that the character and integrity of the existing market area is retained and enhanced through the measures described above.

3.47 Policy 4.9 concerns small shops. The policy seeks contributions through planning obligations from large retail developments (defined as typically >2,500sqm) for the provision of affordable

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shop units suitable for small or independent retailers. The supporting justification set out at paragraph 4.51 states:

“The Mayor is committed to supporting a dynamic, competitive and diverse retail sector and supporting small and medium sizes enterprises. In parts of London, small shops are in short supply and affordability is a key concern, particularly for independent retailers and small enterprises. In considering proposals for large retail developments (typically over 2,500sqm), the Mayor and boroughs may impose planning conditions or seek to negotiate planning obligations where appropriate, feasible and viable, to mitigate the loss of, and/or provide or support affordable shop units suitable for small or independent traders. ”

3.48 The Class A/market floorspace proposed is predominately in the form of small units, suitable for a range of traders thereby preserving the status quo of the existing market. The proposed scheme, consistent with policy and demand expressed by traders, will provide a range of unit sizes which will be attractive to a variety and mix of traders. The overwhelming character will comprise small units typical 15-50sqm. Some large premises are also proposed consistent with the mix of unit sizes found at the existing market. The proposed mix of unit sizes is required to create a limited number of hub units and will allow business to grow thereby retaining a presence within the market. This is consistent with the Applicant’s commitment to support creative industries, a process of support and nurturing. The format of the market allows individuals to start a business with a very limited initial outlay, for example by hiring a temporary market stall. As a business becomes more successful and established the scheme provides those businesses an opportunity to upgrade their business premises but again with a similar guarantee regarding fixed costs. This contrasts with typical high street retail schemes where tenants are required to commit to long leases and unforeseen costs.

3.49 The London Plan is supplemented by a range of guidance including the Town Centres SPD (July 2014) and research reports which are relevant to the application proposals including:

§ London Town Centre Health Check (2013) § Consumer Expenditure and Comparison Goods Floorspace Need in London (2013) § London Small Shops Study (2010) § London’s Retail Street Markets (2010) § Camden Town Night Time Economy Research Study (2004)

3.50 In particular the Town Centres SPG recognises that (paragraph 3.5.1):

“Markets can deliver tangible social and economic benefits to communities and local business. They can support regeneration, economic development and tourism and provide access to culture, fresh food and specialist foods. Markets can also make a significant contribution to the vitality and diversity of London’s town centre offer.”

c) Camden Development Plan Documents

3.51 The development plan at the local level relevant to the application proposals comprises the Camden Core Strategy (2010) together with the Development Policies DPD (2010) and Policies Map (2014). The Core Strategy and Development Policies are underpinned by a range of evidence base documents including:

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§ Camden Employment Land Review 2014 § Camden Retail Study Update 2008 § Camden Retail and Town Centre Study 2013 § Camden Employment Land Review 2008 § Camden Business Premises Study 2011 § The Role Markets Play in the vitality and viability of Camden Town (2006)

3.52 There is also a range of supplementary planning documents including the Camden Town Place Plan and the Camden Planning Guidance 5 on Town centres, retail and employment (2013).

3.53 In addition, The Camden Plan (2012-2017) is relevant to proposals such as these. The Plan provides a vision for the Borough and sets five strategic objectives. The most relevant objective to the consideration of the application proposals relates to creating conditions for and harnessing the benefits of economic growth namely, ‘to create the conditions for business success in Camden so that existing Camden-based businesses grow and we attract new businesses that we see flourish’. The application proposals will make a significant contribution to meeting this strategic objective.

3.54 The Camden Local Plan is currently being reviewed. Further consultation on a replacement Local Plan is expected later this year.

3.55 The Camden Core Strategy covers the period 2010-2025 and includes a range of policies relevant to the consideration of the application proposals. Policy CS1 sets out the distribution of growth within the Borough. The policy seeks sustainable development which makes the most efficient use of limited land and buildings. The policy directs new development to be concentrated in ‘growth areas’ and other ‘appropriate development at other highly accessible locations’ including Camden Town. The current application proposals are consistent with these aims.

3.56 Paragraph 1.15 expands upon the policy stating that ‘these areas are considered to be particularly suitable locations for uses that are likely to lead to a significant increase in travel demand (for example, retail, offices, leisure and tourism), although the scale of development at these locations is expected to be less than that in the growth areas’.

3.57 Specific sites and opportunities for growth are set out within the Camden Site Allocations DPD (2013). The application site is not specifically identified within this document unlike the Applicant’s other market at Hawley Wharf.

3.58 Policy CS3 of the Core Strategy provides additional guidance on the other highly accessible areas. Paragraph 3.3 confirms that:

“The boundaries of the Borough’s town centres are drawn fairly tightly around their main retail areas and, with the exception of Camden Town, there are generally limited development opportunities within designated centres themselves…Camden Town is expected to be the location of a significant amount of additional shop floorspace over the lifetime of the Core Strategy…”

3.59 Policy CS7 of the Core Strategy promotes Camden’s centres and shops, including the provision of additional retail floorspace. The Core Strategy recognises a need for between 27,000sqm and 31,000sqm new retail floorspace in the borough by 2026, in addition to that planned for King’s Cross and St. Pancras. This is significant and the application proposals albeit providing a

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different type of retail experience are clearly well placed in terms of helping to meet the identified need for new retail floorspace in the Borough. Policy CS7 states:

“The Council will promote the following distribution of retail growth across the borough: b) in the range of 20-30,000sqm additional retail at Euston and Camden Town, with the majority expected to take place at Euston.

We will apply a sequential approach to retail and other town centre uses outside of these areas to support the network of centres:…

We will also support:

§ limited provision of small shops outside centres to meet local needs; …. § Protecting and enhancing Camden’s centres

The Council will promote successful and vibrant centres throughout the borough to serve the needs of residents, workers and visitors by:

e) seeking to protect and enhance the role and unique character of each of Camden’s centres, ensuring that new development is of an appropriate scale and character for the centre in which it is located; f) providing for, and maintaining, a range of shops, services, food and drink and entertainment and other suitable uses to provide variety, vibrancy and choice; g) protecting and promoting small and independent shops, and resisting the loss of shops where this would cause harm to the character and function of a centre; h) making sure that food, drink and entertainment uses do not have a harmful impact on residents and the local area, and focusing such uses in Camden’s Central London Frontages, town Centres and the King’s Cross Opportunity Area; i) supporting and protecting Camden’s local shops, markets and areas of specialist shopping; j) pursuing the individual planning objectives for each centre, as set out below, including through the delivery of environmental, design, transport and public safety measures.”

3.60 Paragraph 7.12 confirms that:

“The Council will require an impact assessment for large scale retail development proposals that are not in accordance with the approach in this Core Strategy and

§ Would be in an edge of centre or out of centre location, or § Would be in an existing centre and could have the potential to have a harmful impact upon other centres.”

3.61 The application proposals are in scale with the role and function of Camden Town and given their unique nature, would not have trading consequences for other centres. Indeed, as evidenced within our review of the NPPF, government policy no longer requires town centre development to consider impact upon centres. Furthermore, neither the Core Strategy nor the policies contained

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within the Development Policies DPD define ‘large scale’ retail development. Accordingly, the policies of the NPPF apply namely that impact assessments are only required for proposals outside town centres which create new retail and/or leisure floorspace in excess of 2,500sqm. In this case, only a small element of the overall scheme is physically located outside but immediately adjacent to the defined town centre boundary of Camden Town. This element of the proposals will bring back in active use underutilised floorspace in a unique setting. Accordingly, it is not necessary for the applicant to ‘test’ the proposals in terms of retail/leisure impacts. Similarly, whilst the policies of the NPPF require main town uses such as retail and leisure uses to be located in accordance with the sequential approach to site selection, the nature of the application proposals and the desire to incorporate the East Vaults into the overall proposals mean that this floorspace cannot be reasonably be located elsewhere (i.e. within the defined town centre). To do so would result in a missed opportunity to include this element within the overall proposals which seek to enhance through a programme of physical improvements and refurbishment, the existing market and put Camden Local Market back at the heart of the local residential and business community thereby providing a significant improved offer and experience for local people, businesses and visitors in a unique setting and one which preserves and enhances both the character and appearance of the market and its contribution to Camden Town as a significant cultural, leisure and community asset.

3.62 In relation to centre specific planning objectives for Camden Town, the third bullet point relates to the protection of the special character and attractiveness of Camden Town through the provision of small shops and states:

“Development schemes in the upper part of Camden High Street/markets area (north of Inverness Street and south of the railway bridge) will be expected to provide small shop units consistent with this part of the centre, which is characterised by small ground floor premises. Larger units in this location would be harmful to the character and diversity of Camden Town, and to the viability of small, independent traders. As a guide, units larger than 100sqm will not be permitted in this part of the centre. Larger shop units will be supported in the southern part of Camden High Street”.

3.63 The policy is clearly designed to prevent high street multi nationals occupying large shops in this part of the town centre. Large shops are defined as comprising units in excess of 100sqm. In contrast the application proposals are designed specifically to support small and unique businesses that maintain and enhance the existing character of the market.

3.64 Supporting paragraph 7.17 states:

“Small and independent shops contribute to the character and diversity of Camden’s centres by adding to the choice and variety of shopping facilities available, and avoiding centres being dominated by national multiple retailers. The contribution of small and independent shops to the character and attractiveness of many of Camden’s centres is highlighted in the Camden Retail Study. The Council will seek to promote the provision of small units where appropriate and independent shops where possible. We will also seek to protect shops, including those on small shopping parades, where their loss would cause harm to a centre or local area. Our detailed approach to protecting shops and

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promoting small and independent businesses is set out in Camden Development Policies (policy DP10).”

3.65 Policy CS7 sets out a range of centre specific planning objectives for Camden Town. It identifies Camden Town as the:

“borough’s biggest centre with the largest range of shops and services, and is designated as a major Centre in the London Plan. The centre does not have a single character but broadly contains three parts – the commercial heart in the markets and around ; the southern section which provides more traditional ‘high street’ shopping and serves a more local role; and Chalk Farm Road to the north with its mixed street frontage of restaurants, bars and specialist shops. A cluster of creative industries in the areas around Camden High Street also adds to the centre’s vibrancy.”

3.66 The Council’s approach to supporting and promoting Camden Town includes:

§ Improving the street environment and pedestrian movement, and reducing negative traffic impacts generated along Camden High street § Making Camden Town feel safer through community safety measures § Seeking to protect the special character and attractiveness of Camden Town by pursuing the continued provision of small shop units § Supporting and promoting the creative industries sector in Camden Town § Managing the balance of retail and leisure uses § Ensuring that Camden has a well-managed night time economy § Retaining the special built character of Camden Town by promoting high quality design of buildings, shopfronts, signage etc. § Promoting and protecting Camden Town’s markets § Supporting transport improvements § Identifying development opportunities

3.67 Paragraphs 7.23 – 7.26 relate to Camden’s specialist markets. Paragraph 7.23 explains that:

“Camden is well served by markets, ranging from street markets such as Inverness Street, Chalton Street, and Queens Crescent to the world famous Camden Town markets (e.g. the Stables and Camden Lock markets). Markets add greatly to the variety, interest and attraction of shopping in the borough and are a source of local employment, often providing more flexible and casual work opportunities. Street markets can be an important source of fresh food, often grown more locally than food from supermarkets. They can also help to meet the specialist food needs of ethnic communities; black and minority ethnic groups tend to make significantly more use of local markets than the general population.”

3.68 In relation to creative industries the Plan explains (paragraph 8.17) that:

“Camden Town has one of the largest concentrations of creative businesses in inner London with over 500 creative workplaces and around 5,000 employees. Creative businesses are attracted to the area because of its value for money – rents are lower than in other creative locations such as Soho and Shoreditch, and also because of Camden Town’s unique character, which attracts a young and creative workforce.”

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3.69 The Economic Impact Assessment 2009 for Camden Town identified a number of barriers which have had a negative impact on the growth of this sector with a general lack of depth and quality of the business offer. The report recommended a number of interventions including:

§ Address shortage in supply of quality premises, suitable for creative industries, under 1000sqft (93sqm); § Improve the quality of the streetscape environment; § Re-energise the retail/leisure sector to diversify offer; § Address place identity and resolve conflict between visitor/business identity

3.70 The application proposals will assist in addressing the above issues through the provision of flexible space within the Market Hall Building and the Middle Yard Building in the form of business/workshop/studio units (Use Class B1) ranging in size from 13sqm to 93sqm. In addition, a range of larger premises are provided within the Middle Yard Building (223sqm, 202sqm, 148sqm).

3.71 Policy CS8 seeks to promote a successful and inclusive Camden economy. The policy states:

The Council will secure a strong economy in Camden and seeks to ensure that no-one is excluded from its success. We will: a) promote the provision of 444,000 sq m of permitted office floorspace at King’s Cross as well as in the range of 70,000 sq m of office provision at Euston with further provision in the other growth areas and Central London to meet the forecast demand of 615,000 sq m to 2026; b) support Camden’s industries by: - safeguarding existing employment sites and premises in the borough that meet the needs of modern industry and other employers; - safeguarding the borough’s main Industry Area; and - promoting and protecting the jewellery industry in ; c) expect a mix of employment facilities and types, including the provision of facilities suitable for small and medium sized enterprises, such as managed, affordable workspace; d) support local enterprise development, employment and training schemes for Camden residents; e) recognise and encourage the concentrations of creative and cultural businesses in the borough as well as supporting the development of Camden’s tourism sector whilst ensuring that any new facilities meet the other strategic objectives of the Core Strategy; f) recognise the importance of other employment generating uses, including retail, markets, leisure, education, tourism and health.

3.72 The supporting justification to the policy highlights the particular lack of high quality premises suitable for small businesses. The application proposals include a wide range of ‘employment generating’ uses including retail (market orientated offer), workshops/business units, food and drink outlets. As the policy recognises these are the types of uses which are important to the local economy in terms of employment opportunities.

3.73 In terms of retail policies the Camden Development Policies DPD includes policies relating to helping and promoting small and independent shops (policy DP10), markets (policy DP11) and

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supporting strong centres and managing the impact of food, drink, entertainment and other town centre uses (policy DP12). These are duly examined below.

3.74 Policy DP10 states that:

“The Council will encourage the provision of small shop premises suitable for small and independent businesses by: a) expecting large retail developments to include a proportion of smaller units; b) attaching conditions to planning permissions for retail developments to remove their ability to combine units into larger premises, where appropriate; c) encouraging the occupation of shops by independent businesses and the provision of affordable premises….”

3.75 The supporting text (paragraph 10.4) to the policy explains that:

“The council will expect the provision of small shop units as part of large retail developments, provided that this is considered appropriate to the centre. The character of our centres and the council’s general approach to them is set out in policy CS7 of Camden’s Core Strategy. Whilst the need for the provision of small units will vary on a case by case basis, we will consider the need for the provision of small units for schemes of 5,000sqm of retail or more. As a guide small units are considered to be those that are less than 100sqm gross floorspace, although we will take into account the character and size of shops in the local area when assessing the appropriate scale of new premises…”

3.76 The current proposals comprise a net increase in Class A1 market retail floorspace significantly less than the 5,000sqm policy trigger (1,051sqm GEA assuming all flexible market floorspace A1/A3/A4/A5 is used for Class A1 retail purposes, in reality there will be a mix of uses including Class A1). Even so, the nature of the application proposals is such that they are geared towards improving an established market (refurbishment and reconfiguration) together with the creation of new space in the form of small units (the majority of which will comprise <100sqm floorspace). The mix and range of units will help to maintain the market’s status quo with units suitable for a variety and mix of independent traders. The supporting text to the policy also confirms that the Council may, where appropriate, impose conditions to prevent the amalgamation of smaller units to create large shops units. The supporting text continues by stating:

“…The centre-specific policies that support Core Strategy policy CS7 set out locations where the Council will expect the provision of small units where this is relevant to the character and function of particular centres (for example to the north of Camden High Street), and also where the provision of larger units will be supported (for example at Kilburn High Road and to the south of Camden High Street).

3.77 Policy DP11 concerns the contribution that markets make to the vitality and viability of the Borough’s town centres. The Camden Town markets (including the Camden Canal Market) are noted as major visitor attractions within the Borough. Policy DP11 should be read in conjunction with the advice provided by policy CS7 of the Camden Core Strategy as described above. Policy DP11 states:

“The Council will promote and protect markets in Camden by:

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a) resisting the permanent loss of market uses unless comparable replacement provision is made or there is no demand for continued market use; b) taking into account the character of the existing market when assessing proposals for the refurbishment and redevelopment of markets; c) supporting new markets that will not cause individual or cumulative harm to the local area

When assessing planning applications for new markets we will consider

d) their effect on local residents and environmental conditions; e) their impact on transportation and pedestrian movement, including the effect on access and circulation, highways, parking and servicing; f) their effect on local centres and shopping provision; g) the storage and disposals of litter and refuse; h) community safety and noise; and i) toilet provision”

3.78 The supporting text to the policy set out at paragraph 11.3 states that:

“The character of a market depends on many factors including the type, range and quality of goods sold, the size of stalls and pitches and its environmental quality. Changes to markets can affect their character and consequently the character and attraction of the local area or centre. Where a market is refurbished or redeveloped we will take into account its existing character, and its importance to the character, vitality and viability of the centre or area in which it is located. We will expect proposals to consider and, where appropriate, reflect this character.”

3.79 Furthermore, paragraph 11.4 continues by stating:

“Alongside their benefits, markets can, when poorly designed or managed, cause harm to surrounding areas, for example in terms of congestion on footpaths and roads; litter and refuse storage; and noise. Proposals for markets should therefore include provision for careful management, design out opportunities for crime and, where appropriate, contribute towards environmental and street improvements and initiatives such as improving areas for parking and servicing. We will use conditions and/or legal agreements when granting planning permission to ensure the operation of markets does not have harmful impacts and require detailed layout plans to be submitted as part of planning applications for market uses to allow us to consider whether these matters have been properly addressed.”

3.80 The Applicant will run and manage the proposed development in a style consistent with the existing Camden Lock Market albeit there will be a greater focus upon quality, arts and crafts and fostering small businesses including creative industries providing suitable small (size and quality) premises for businesses to design, make and sell products in a unique setting. The proposed enhancement and refurbishment will enable more effective management of the market by addressing inherent physical constraints with the exiting market. The previous section of this

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report has explained the management style deployed in the existing market which ensures a high quality mix and range of traders, types of goods and security.

3.81 Policy DP12 relates to food and drink uses which have the potential to impact upon the local area:

“The council will ensure that the development of shopping, services, food, drink, entertainment and other town centre uses does not cause harm to the character, function and vitality and viability of a centre, the local area or the amenity of neighbours. We will consider: a) the effect of non-retail development on shopping provision and the character of the centre in which it is located; b) the cumulative impact of food, drink and entertainment uses taking into account the number and distribution of existing uses and non-implemented planning permissions, and any record of harm caused by such uses; c) the impact of the development on nearby residents uses and amenity, and any prejudice to future residential development; d) parking, stopping and servicing and the effect of the development on ease of movement on the footpath; e) noise and vibration generated either inside or outside of the site; f) fumes likely to be generated and the potential for effective and unobtrusive ventilation; g) the potential for crime and anti-social behaviour, including littering; To manage potential harm to amenity or the local area, the council will, in appropriate cases use planning conditions and obligations to address the following issues….”

3.82 Paragraph 12.6 of the supporting text confirms that the Council will not grant planning permission for development that it considers would cause:

“…harm to the character, amenity, function, vitality and viability of a centre or local area. We consider that harm is caused when an impact is at an unacceptable level, in terms of trade/turnover; vitality and viability; the character, quality and attractiveness of a centre; levels of vacancy; crime and antisocial behaviour; the range of services provided; and a centre’s character and role in the social and economic life of the local community. We will consider the cumulative impact of additional shopping floorspace (whether in a centre or not) on the viability of other centres, and the cumulative impact of non-shopping uses on the character of the area.”

3.83 The application proposals have been designed to ensure the careful placement of food and drink uses within the market in order to minimise impacts. Furthermore, the active management of the market will ensure on a day to day basis that relevant licenses, legislation etc are complied with. This is aided by the Traders Handbook which sets out how individual businesses are expected to operate. The application proposals seek to maintain and enhance the character of the existing market through a programme of refurbishment and creation of new floorspace that will help to improve functionality of the market ensuring that it operates more effectively and efficiently

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providing a better experience for the business and residential community, visitors and traders alike.

3.84 Policy DP13 relates to employment premises and sites. The policy states:

The Council will retain land and buildings that are suitable for continued business use and will resist a change to non-business unless: a) it can be demonstrated to the Council’s satisfaction that a site or building is no longer suitable for its existing business use; and b) there is evidence that the possibility of retaining, reusing or redeveloping the site or building for similar or alternative business use has been fully explored over an appropriate period of time. Where a change of use has been justified to the Council’s satisfaction, we will seek to maintain some business use on site, with a higher priority for retaining flexible space that is suitable for a variety of business uses. When it can be demonstrated that a site is not suitable for any business use other than B1(a) offices, the Council may allow a change to permanent residential uses or community uses, except in Hatton Garden where we will expect mixed use developments that include light industrial premises suitable for use as jewellery workshops. Where premises or sites are suitable for continued business use, the Council will consider redevelopment proposals for mixed use schemes provided that: c) the level of employment floorspace is maintained or increased; d) they include other priority uses, such as housing and affordable housing; e) premises suitable for new, small or medium enterprises are provided; f) floorspace suitable for either light industrial, industry or warehousing uses is re-provided where the site has been used for these uses or for offices in premises that are suitable for other business uses; g) the proposed non-employment uses will not prejudice continued industrial use in the surrounding area. The Council will support the provision of live/work premises provided they do not: h) result in the loss of any permanent residential units; or i) result in the loss of sites in business or employment use where there is potential for that use to continue.

3.85 Indeed paragraph 13.6 confirms that:

“Where premises or sites are suitable for continued business use, the Council will consider redevelopment schemes which maintain the employment floorspace and provide other priority uses, such as housing. The re-provision of employment floorspace should be able to accommodate a range of business types and sizes (e.g. new businesses, small and medium sized enterprises (SMEs) and creative businesses). Applicants must demonstrate to the Council’s satisfaction that the commercial element is appropriate to meet the likely needs of the end user. The provision of inappropriate business space (e.g. inappropriate floor to ceiling height or poor access arrangements) will not be acceptable as this often fails to attract an occupier, which can lead to vacancy. Clear separation of the residential element and effective management of the business space will also be important. This is in line with the approach to flexible and affordable workspace that is taken in the Core Strategy policy CS8 – Promoting a successful and inclusive

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Camden economy. Further information on new workspace can be found in Camden Planning Guidance.”

3.86 The application proposals seek to improve the range and quality of existing accommodation suitable for business use. In this respect the proposals are consistent with the key objection of policy DP13 which is to retain employment floorspace. In addition the range of Class A1 market retail and food and drink uses provide accommodation for a range of businesses.

3.87 The Core Strategy and Development Policies are supplemented by a range of SPDs including those which give specific advice in relation to food, drink and entertainment uses in Camden Town. This is briefly examined below.

Supplementary Planning Guidance

3.88 Camden has prepared a Supplementary Planning Document (SPD) in respect of Town Centres, Retail & Employment (CPG 5)(September 2013). The guidance states how the policies in the Camden Core Strategy and Development Policies DPD should be implemented in relation to Camden Town. CPG 5 includes guidance on the following topics:

§ Retail uses (chapter 2) § Town centres (chapter 3) § Small shops (chapter 5) § Food, drink & entertainment uses (chapter 6) § Employment sites and business premises (Chapter 7)

3.89 In relation to retail uses, the guidance confirms that major new retail uses should be focused within growth areas and town centres and that the Council will apply specific guidance to each centre. Furthermore, new retail uses should be appropriate to the size, character and role of the centre in which it is to be located.

3.90 In relation to Camden Town, the guidance confirms the centre is known for its markets and music venues but there are concerns regarding increasing impacts associated with food, drink and entertainment activities. In order to reduce impacts, the guidance designates three types of street frontage in order to guide appropriate development; namely, core shopping frontages, secondary frontages and areas; and sensitive frontages. The application site is designated Core Frontage (Chalk Farm Road) and Secondary Frontage (balance of the application site). Within the Core Frontages the Council’s policy is to maintain a minimum of 75% Class A1 retail uses. Within secondary frontages the CPG confirms that the Council will generally resist proposals that result in less than 50% of the premises being in retail use. The application proposals are consistent with the Council’s policy.

3.91 The CPG consistent with the Development Policies DPD supports the provision of small shops, defined as <100sqm in size. Key considerations are identified as size and location, users and affordability. In relation to users, support is directly given to the establishment of independent shops, defined as businesses with no more than 5 stores. There is also a focus upon provision of services direct to local residents. In terms of affordability, the guidance states that there is no universally accepted definition of affordability. Consequently the Council states that it will determine affordability upon the merits of individual applications. The application site comprises the existing Camden Lock Market. The proposals seek to improve the existing market through a programme of physical refurbishment, reconfiguration and sensitive new build floorspace. Fundamentally the ‘offer’ will essentially remain the same but improved i.e. a market comprised

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of a variety of small retail units/stalls, together with a mix of food and drink uses and workshop/business/studios. The market stalls/small units will continue to be let on the same flexible terms as existing with a clear ‘all inclusive’ pricing structure which is available to view via the Market’s website. Larger units have different arrangements in place given the commitment from traders and the Applicant to showcase established ‘Camden brands’ which help to create a focus around which other uses/traders are planned to maximise the experience both for visitors to the market but also for traders.

3.92 Chapter 6 of the CPG relates to food, drink and entertainment uses and recognises the contributions that such uses can make to the vibrancy and vitality of town centre. The Guidance also seeks to control the potential negative effects associated with the operation of such uses if not carefully positioned, operated and controlled. The Market will continue to be actively managed in a manner consistent with practices to ensure minimal impact upon the surrounding area. The management strategy for the market is discussed in the previous sections of this report. The CPG includes specific guidance upon the positioning of air conditioning units, placement of tables and chairs, smoking, amplified music, hours of operation, litter, fumes, noise and vibration and off site management and access. The market and the programme of events/activities planned as part of the proposals are distant from residential areas and screened by the Chalk Farm Road frontage. Importantly the Market is actively managed meaning that problems can be quickly identified and rectified.

3.93 Finally, chapter 7 of the guidance relates to employment sites and businesses premises. The thrust of the Council’s policies is to protect the limited supply of light industrial, industrial and storage and distribution premises and special character protection areas such as Hatton Garden. The application site is not a designated employment site nevertheless both the existing market and the proposals provide for the needs of the local business community and in particular seek to attract small businesses and start ups in the creative industries sector. The application proposals will ensure high quality flexible space for business use and will stimulate the local economy through the provision of a range of employment opportunities.

3.94 Having provided an overview of the relevant economic development planning policies it is now necessary to examine the economic profile of Camden Town and in particular to examine the unique and vibrant mix of uses that comprise Camden Town and the ‘fit’ of the application proposals.

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4 CAMDEN TOWN ECONOMIC PROFILE AND BASELINE

a) Introduction

4.1 The purpose of this section of the report is to provide an overview of Camden Town’s economic profile including reference to retail and business activities.

4.2 The town centre is characterised by a unique mix of uses including high street shops, market retail, creative industries, service and food and drink uses. Camden Town attracts visitors from a wide geographical area.

b) Physical Composition

4.3 Camden Town comprises three distinct adjoining areas which contribute to the centre’s economic diversity and well being.

§ The northern area – focused around the Roundhouse which is characterised by small scale retail units, bars and restaurants.

§ The Market area – comprises a range of markets including the application site and other markets owned by the Applicant together with small largely independent unit shops focused around Camden Lock and Chalk Farm Road/northern part of Camden High Street

§ Camden High Street – traditional high street including larger format shops operated by multiple national retailers, banks, pubs, restaurants and office space.

4.4 Within the town centre there are a range of businesses including markets, retail, leisure, workshops and office space. The markets have significantly influenced Camden Town’s success as a town centre. Given its location and relative affordability compared to neighbouring districts, the town has been successful in attracting a growing number of small businesses particularly those involved in media and creative industries. A number of reports prepared in recent years illustrate the success of the town centre, the key findings of which are discussed below.

c) Demographic profile

4.5 Camden Town is within the Camden Town and Ward. In 2011 the Ward was recorded as having a population of 12,613 comprising 5,905 households. The Ward has a density of 108.2 which is higher than the Borough (101.1) and significantly in excess of the average for London (52). In 2013, a total of 9,198 people were of working age (16 – 64) with an almost equal split between males and females.

4.6 The following bullet points record the main characteristics of the population as derived from the 2011 Census:

§ A total of 6,905 (74.7%) people were economically active in 2011 compared to an average 71.1% for Camden. Unemployment within the Ward was 7.1% compared to 8.2% for the Borough. The balance of economic inactivity is accounted for by retired persons (2.3%), students (10.4%), carers (4.7%), long term sick or disabled (4.8%) and other (3.1%). 77.8% of those employed were in full time employment.

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§ The Camden Town and Primrose Hill Ward has a much higher proportion of employed persons in professional and higher level occupations (72%) than Camden (67.8%) or London (50.4%).

§ A significant number of people are employed in professions involving; wholesale and retail repair of motor vehicles and cycles (9.2%), information and construction (11.4%), financial and insurance activities (9.2%), education (9.1%) and social work activities (9.4%), however the stand out employment category is professional, scientific and technical activities (20.1%). The latter is double the London average. In terms of qualifications, the Census demonstrates that in excess of 55% of the population has a higher level qualification which is significantly greater than the London average. This is evidence that the Ward has a highly skilled workforce.

§ Owner occupancy within the Ward is almost half (33.9%) that of the national average (63.4%) and much lower than the Borough (48.2%). The levels of social rented accommodation within the Ward are 30.6% compared to 33.1% (Camden) and 24.1% (London). In terms of private rented accommodation, the Ward achieved 33.4% in 2011 which is similar to the Borough (32.3%) but much higher than the London average (25%). The majority of residential accommodation within the Ward is provided in the form of flats/apartments.

§ In June 2015, the percentage of residents claiming job seekers allowance was 1.8% which is comparable to the Borough and London averages (1.8% and 1.9% respectively). 20.6% of residents claimed job seeker allowance for over 12 months compared to the 27.1% Camden average.

d) Retail Activities

4.7 A number of shopping studies and surveys have been undertaken in recent years, both specific to Camden Town and the Borough as a whole. In particular the most relevant studies are those prepared by way of background documents to support the Camden Local Plan (and its predecessors), namely the Camden Retail Study published in November 2004, updated in October 2008 and more recently the Camden Retail and Town Centre Study (November 2013) together with the report entitled The Role the Markets Play in the Vitality and Viability of Camden Town published in October 2006. In addition, a Camden Town Night Time Economy Study was undertaken in 2004. These studies provide a useful background in terms of illustrating the attraction of Camden Town as a major shopping, tourist and entertainment centre. The studies illustrate the wide appeal of Camden Town.

4.8 It is perhaps helpful to first examine the nature and range of town centres within the Borough and their position within the established retail hierarchy in the Central London sub region. The London Plan establishes a London wide hierarchy of centres. Centres are defined in order of their role and function as international, metropolitan, major, district and neighbourhood centres. Camden contains a range of centres, the largest centre being Camden Town, which is defined as a major centre. Nevertheless, it is important to recognise that the Camden Town markets are a major tourist attraction and make a substantial contribution to the local economy. Other centres include (district centre), / (district centre), West (district centre), Hampstead (district centre) and Kilburn (major centre).

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4.9 The London Plan states that regular health checks will be undertaken to ensure that each centre is performing its role and function within the retail hierarchy. The Mayor published the latest series of health checks in (London Wide Town Centre Health Checks Analysis Report). The health checks are comparable to those undertaken by the GLA since 2006/7 and those previously prepared by the London Planning Advisory Committee (LPAC) in 1994 and 1999/2000. The analysis is based upon research undertaken over the period 2000-2012 and draws upon various sources of data, including that produced by Goad etc. The Mayor’s health checks are largely quantitative in nature, but provide a useful benchmark against which improvements/decline over time in retail rents, yields and vacancy rates etc can be measured.

4.10 Key headlines in respect of Camden Town arising from the Mayor’s latest town centre health check (2013) include:

§ Strong growth in town centre floorspace over the period 2007 – 2012 (+13%)

§ Ranked as the 16th largest London town centre

§ Camden Town performs a specialist leisure role. 38% of floorspace is within leisure use

§ Camden Town has seen the greatest increase in cafe/restaurant and hot food takeaway uses of all London town centres

§ Camden Town is ranked the 4th largest centre in terms of office floorspace (239,324sqm)

§ Camden is ranked 3rd in terms of the number of markets however it is fair to record that the type and size of markets varies considerably across London town centres

§ Camden Town is ranked 20th in relation to a 45minute catchment for population and access to jobs over the period 2011 -2031. This demonstrates the anticipated continued attraction of the town centre as a place to live and work

§ Camden Town is ranked 9th in terms of growth

4.11 Similarly, health checks were undertaken as part of the Camden Retail Study in order to assess the vitality and viability of centres within the borough and establish the need for additional retail and other town centre floorspace within each centre.

4.12 The health checks confirm that Camden Town is unlike any other centre within the Borough in terms of its overall retail offer which predominantly comprises a mix of independent fashion retailers, many of whom trade from the six markets within the town centre, namely:

§ Buck Street (Union Street) Market (also owned by the Applicant); § Inverness Street Market; § Camden Lock Market (the application site); § Hawley Wharf (currently closed pending redevelopment)(also owner by the Applicant); and § Stables Market (also owned by the Applicant).

4.13 Each of the markets is different in terms of scale, character and shopping experience. Most of the markets retail offer is underpinned by the sale of fashion and clothing goods. The market units are much smaller than traditional high street shops and therefore there is a wide range of traders represented with the town, for example many market traders operate from very small units (e.g. <20sqm) which is significantly smaller than the 100sqm threshold defined by

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Camden’s development plan policy as ‘small’. The markets provide flexible units in terms of their size (i.e. units can be merged and sub-divided) and use according to demand expressed by traders.

4.14 The application proposals will maintain the established character of the existing market where the predominant size of units created are very small. These will be supplemented by a limited number of larger units which will be of a similar style and nature as those found elsewhere within the Camden Town markets. This mix of units is necessary to ensure the attractiveness of the scheme to a range of traders and also to address the physical constraints of developing the application site, particularly the need to secure viable and productive use of basements and upper floors.

4.15 The proposed mix of units will help to fulfil demand from traders enabling them to grow their business. Indeed, in common with other markets, it is important to provide a diverse mix of units in order to attract suitable traders and provide an interesting and stimulating environment for visitors to the market. Indeed, this is consistent with the evolution of other markets in Camden Town which have themselves undergone considerable transformation in recent years where a mix of unit sizes is provided but where the overall character is formed of very small units.

4.16 In addition Camden Town has a traditional high street retail offer comprised of a limited number of high street multiple national retailers. Such outlets are predominately focused to the south of the Camden underground station. The town centre is characterised by the presence of the markets and independent shop fascias. The centre is noted as being at its busiest during weekends when considerable numbers of visitors are drawn to the town. Indeed the centre is within the top 5 tourist attractions by visitor numbers.

4.17 There are few opportunities within Camden Town on which to locate new retail development. There are very few vacant units within the primary shopping frontage of the town centre (to the north) and where vacancies do occur these are generally short lived and are often the result of refurbishment works pending the arrival of a new tenant.

4.18 Vacancies to the south of the Camden Town underground station are more prevalent as you travel towards Mornington Crescent. This area of the town centre comprises secondary shopping frontage and is less attractive to potential retailers and other users. Indeed the focus of activity within the town centre lies firmly around the Camden underground station and Camden Lock and Stables markets. These are the principal attractors of the centre.

4.19 In contrast, other centres within the Borough with the exception of Kilburn perform a more local shopping role distinct from that of Camden Town. No other centres comprise markets comparable in nature to those of Camden Town although there are a number of small fruit and vegetable and indoor clothing markets similar to what you would expect to find in most small shopping centres.

4.20 Chapter 4 of the Camden Retail Study 2008 provides a review of the profile of visitors to Camden Town amongst other centres. This is based upon empirical research in the form of an on street survey (conducted in September 2003) specially commissioned for the purposes of the assessment. In the absence of more recent surveys, RPS considers that the survey findings remain valid today given the character of Camden Town has not changed. Although the survey

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only conducted 100 interviews within each centre it nevertheless is a useful guide to informing visitor patterns.

4.21 Significantly, the survey results illustrate the wide appeal that Camden Town has across London as a whole. Just 39% of respondents were from the Borough. Significantly 25% of people were from outside London and the UK. In terms of the main reason for visiting Camden Town, there was a fairly even split (47%/53%) between those undertaking shopping and non-shopping activities. 89% of those interviewed did not consider Camden Town as their main centre for comparison goods shopping purposes. This confirms Camden’s specialist retail offer mainly in the form of markets selling clothing and fashion accessories and as an entertainment/leisure destination. Indeed 18% of those visiting Camden Town stated the primarily reason was to visit the markets. The concluding remarks set out in paragraph 4.68 of the 2008 Retail Study state:

“The survey shows Camden Town is a centre that attracts proportionately far more visitors from elsewhere in the UK and from abroad than any other surveyed centre in Camden or Islington. Camden Town also has a fairly even spilt, by visitor numbers, between convenience and comparison expenditure and a larger proportion (28%) of visitors travelling by tube than any other Camden or Islington centre in the survey.

The centre’s strength derives from comparison and A3 expenditure and leisure activities. Of the eight centres included in the Visitor survey, Camden Town is proportionately the most popular for indoor leisure activities and the second most popular for meeting in cafes, bars and restaurants…”

4.22 Paragraph 6.5 of the Camden Retail Study (2008) notes:

“in terms of A1 floorspace, Camden Town is the largest centre in LB Camden, with 55,250sqm. A very low proportion of this is in service use. The centre’s street markets are a national and international tourist attraction. The scale of these, combined with the attractive environment in the market areas, provides Camden with its unique selling point. The market area is to the north west of Camden underground station towards Chalk Farm, and is renowned for an emphasis on fashion and clothing provided by in large measure independent traders, which adds to the uniqueness and interest and attracts a young clientele. Away from the market area in the south of the centre the high street area is increasingly dominated by multiple traders who are attracted by Camden Town’s fashionable image, and whose impact continues to be to drive up rents. The two areas offer quite different shopping and attract different groups of shoppers.”

4.23 Paragraph 6.10 provides an overview in relation to the role and function of Camden Town and states:

“Much of the new retail development in recent years has involved consolidating a number of smaller units into larger stores for the national chains, such as Virgin and Gap. The expansion of the multiple traders northwards towards the market area could in the future threaten the viability of market traders housed in the smaller units as rents are driven higher because of the supply- side shortages…”

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4.24 The report reaches the following conclusion in respect of the opportunities for growth in Camden Town (paragraph 6.11 refers):

“Camden Town is predominately a linear centre with little opportunity for expansion within its existing boundaries, and the provision of large modern retail floorplates that are attractive to the national chains may only be possible through the comprehensive redevelopment of existing buildings. However, any development proposals that sought to expand the mainstream retailer area northwards into the markets area may lead to an erosion of Camden Town’s uniqueness. On the other hand, there may be spin-off benefits from redevelopment in key locations. Consideration should therefore be given to opportunities for relocation of displaced market stalls should redevelopment proposals for parts of the existing markets be brought forward.”

4.25 It is clear therefore that redevelopment opportunities whether they are located within the markets or elsewhere within the northern parts of the town centre need to be carefully ‘balanced’.

4.26 The latest Camden Retail and Town Centre Study (November 2013) prepared by GVA on behalf of the Council notes the following in respect of Camden Lock Market:

“The markets have their own individual characteristics, offers and vibrancy. Camden Lock Market on the western side of Camden High Street opened in 1975 and provides permanent shops and temporary market stalls within former timber yard buildings, courtyards, and a glass-roofed central market hall. The Lock Market provides arts and crafts, fashion and food and drink and is an attractive, pleasant and well maintained market shopping environment fronting Regents Canal.” (paragraph 2.28)

4.27 The 2013 reaches the following observations in respect of the health of Camden Town centre:

“Camden Town is defined as a ‘town centre’ in the Core Strategy, and is the largest town centre in the Borough. The centre is internationally renowned as a tourist destination; famous for its extensive range of markets, its wealth of independent retailers and creative industries, as well as legendary music and entertainment venues.” (paragraph 5.2 refers)

4.28 Furthermore, key findings from 2013 health checks identify that Camden is, “a successful, vibrant and unique retail and leisure destination, combining an eclectic mix of bohemian shops, thriving street markets and legendary music and entertainment venues which attract a significant number of tourists each year, as well as shops and services catering to the needs of local residents and workers. There is a particularly strong leisure offer including restaurants, cafes, bars and clubs which make Camden a distinctive daytime and evening visitor destination in its own right” (paragraph 5.8).

4.29 Paragraph 5.9 acknowledges one of the key strengths of the performance of Camden Town is that over three quarters of the units are operated by independent retailers, “the high proportion of independent retailers who are established in the centre, the extensive market provision which attract high numbers of tourists and the strong leisure service offer which adds vibrancy to the centre. The unique and strong performance of Camden Town is reflected in a strong ‘inflow’ of trade from beyond the Household Telephone Survey Area, which has been identified to be 51% for comparison goods” (paragraph 7.4 refers).

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4.30 Overall, the report reaches the following conclusion, “...Camden Town is performing very strongly in terms of convenience, comparison and service provision, achieving a low vacancy rate and performing well against other key indicators.”

4.31 The application proposals will help to maintain and enhance the vitality and viability of Camden Town centre.

4.32 The commissioned Roger Tym & Partners to prepare a study that examines the role and function of the various markets within Camden Town. The findings of that report are therefore directly relevant to the consideration of the application proposals. The report entitled, The Role the Markets Play in the Vitality and Viability of Camden Town (the ‘Markets Report’) was published in October 2006. The report was prepared following a public inquiry into proposals that sought the redevelopment of the Buck Street market to allow Camden Town underground station to be upgraded to overcome capacity issues with the current station. Accordingly, the main focus of the study is to determine the specific role that the Buck Street has and the contribution it makes to the vitality and viability of the town centre. In doing so, the study also considers the wider role of the various markets within Camden Town.

4.33 The Markets Report is based upon the findings of two separate surveys; one undertaken on- street to canvass visitors views on the markets (406 interviews across four separate locations) and the other a survey of market managers.

4.34 The report provides a review of each of the markets within the town centre in terms of location, ranges of goods sold, environment, accessibility etc. In relation to Camden Lock Market paragraph 4.8 of the Markets Report states:

“...has a mixed market and retail environment, including a large indoor market hall and courtyards focused around the canal. The market contains a range of stalls, many of which trade specialist homeware (e.g. soft furnishings, lighting, prints), clothing and jewellery goods. The market hall provides a pleasant shopping environment, backing onto a paved courtyard surrounded by specialist shops. The market includes a strip of cheaper fashion stalls (similar to those at the at Buck Street), outside the market hall to the north.”

4.35 The commentary provided in relation to the Stables Market states (paragraph 4.11 refers):

“…The market is the largest in terms of both market area and number of stalls, and provides a vibrant and busy shopping environment, consisting of purpose built wooden and glass fixed units around cobbled areas. These sell clothing, furniture and specialist goods. There are also shops in the ‘catacombs’ (railway arches), a group of food stalls and a seating area and public toilets. The market has an attractive character and includes the listed former Horse Hospital Building.”

4.36 The on street survey indicated the most popular markets were Camden Lock and Stables markets.

4.37 Table 4.2 of the Markets Report provides a comparative analysis of the floorspace provided by each of the Camden markets, calculated by reference to Ordnance Survey floorspace data. The

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Camden Lock Market was identified as providing 22% of the overall market floorspace within Camden Town compared to Stables (60%) and Camden Canal Market (7%).

4.38 Paragraph 4.19 records:

“There is currently minimal capacity to accommodate further traders at the weekend. While the quantity of vacant stalls increases substantially during the week, many of these stalls are fixed lock-up style units, which traders tend to rent on a weekly basis and so lock their stock in all week long. As such it may not be feasible for many of these stalls to accommodate a second separate trader on weekdays.”

4.39 The application proposals will assist in addressing this demand providing opportunities for established businesses to expand and also to attract new businesses to the market through the provision of high quality and flexible units.

4.40 It is clear from the on street survey results that over 76% (75% on weekdays and 85% at weekends) of visitors to Camden Town visit the markets. However this contrasts with the main purpose of trips which is to visit town centre shops (67-80% on weekdays and weekends). Furthermore, the survey shows that there is a reasonably even spread of visitors to each of the main markets located within Camden Town. Most people (>70%) travel to Camden Town via the underground suggesting that many of the visitors are from outside the local area. Indeed, in answer to the question ‘where do you live’ the following answers were recorded on weekdays; 10% locally (Camden), 54% elsewhere in London, 28% outside London, 9% outside the UK. There is little fluctuation at weekends although it is however notable that the number of local people visiting Camden Town drops to just 5%. Indeed, the survey notes that just under 40% of those interviewed which visited the markets lived outside London. This points not only to the wide draw of Camden Town but also suggests that the town centre is not particularly attractive to local people and at weekends the influx of visitors means that local people are even less likely to visit. This suggests a balance in retail provision needs to be struck, one which provides a more even distribution and mix of uses and activities across the site but which maintains the unique character of this part of the town centre. The application proposals seek to broaden the demographic of the market and in the process make the market more attractive to both the local business and residents community.

4.41 In relation to the survey of market managers, the report reaches the following conclusions (paragraphs 5.41-5.42):

“Most traders in all six of the Camden markets are permanent operators with some form of long-term tenure...

The Camden Canal and Stables Markets do not accommodate any casual traders...meanwhile ...Camden Lock... [does] accommodate a small proportion of causal traders. In the case of Camden Lock the market manager estimated the proportion to be about 10%”

4.42 In relation to the changing demand for market units the report makes the following observations:

§ Demand for units is particularly strong in the pre-Christmas period. § Markets have broadly expanded in recent years creating greater capacity for stalls, although demand has remained fairly strong

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§ At Stables market, demand for space was high however the market has a vetting process for traders. Potential traders need to show samples first to ensure goods are unique and suitable for the market § Demand for stalls has increased in recent years

4.43 The survey and observations derived from the 2006 Study pre-dates the change in ownership of Camden Lock Market and the management style of the market and therefore does not strictly reflect the operation of the current market at Camden Lock. Retail assessments prepared for Camden (2004, 2008 and most recently 2013) and the Greater London Authority (2004, 2009 and 2013) examine the need for additional comparison goods retail floorspace within Camden. However, these reports do not explicitly consider the need for market type retail floorspace. Nevertheless, it is clear that there remains a ‘capacity’ for additional retail floorspace generally within Camden Town centre.

4.44 The 2013 Camden Retail Study identified a Borough wide requirement for 2,922sqm net comparison goods retail floorspace by 2023, rising to 20,724sqm by 2031. There is no requirement for new floorspace up to 2018. In relation to Camden Town, the Study identifies capacity for an additional 609sqm net by 2018 rising to 7,428sqm by 2031. The capacity assessment takes into account the commitment at Hawley Wharf and other major schemes for example King’s Cross and Euston. The 2018 capacity is similar to the proposed increase in pure Class A1 unit shops (+854sqm GEA).

4.45 In summary, the above analysis demonstrates that Camden Town has a different role and function to other centres within the Borough and beyond. Its character is underpinned by its ‘market’ offer which acts as a significant draw for both Londoners, domestic and overseas visitors. This helps to distinguish the retail offer from that of other centres. The application proposals seek to build upon the established market character of Camden Town through the refurbishment and sympathetic enhancement of the existing Camden Lock Market to provide high quality flexible units suitable for a variety of local businesses including market traders.

e) Employment and business uses

4.46 The Borough of Camden and Camden Town comprise a diverse range of businesses. As evidenced above, Camden Town is particularly attractive to small businesses engaged in the creative and cultural industries.

4.47 A large proportion of the overall commercial floorspace within Camden Town is comprised of offices. This floorspace however is not very apparent from the retail core. Much of the office/business floorspace is located at upper levels and/or located behind primary retail frontage. Camden Lock Market is one such example where office/business/studio space is located to the upper floors of Chalk Farm Road and Camden Lock Place. These businesses help sustain and support the range of retail and leisure uses within the town centre. Conversely business uses choose to locate in Camden Town because of its unique identify, character and vibe.

4.48 Camden’s Creative and Cultural Industries Report (May 2009) records the importance of the sector for Camden’s local economy. Camden Town is home to the second largest concentration of creative and cultural industries within the borough with circa 370 business representing 10% of the borough total. The report identified Camden Town as attracting businesses involved in jewellery, radio, music and television, performing and visual arts, film and photography.

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According to the report, in 2009 Camden Town employed circa 4,500 people in businesses engaged in creative and cultural industries. This is expected to be closer to 5,000+ employees in 2015. The Council has designated Camden Town as a priority area for creative industries.

4.49 Camden’s latest Employment Land Study was prepared by URS in August 2014. At the outset, the study notes that:

Economic growth in LB Camden is expected to be much faster than London as a whole. The draft Further Alterations to the London Plan (2014) estimates that by 2036 employment in LB Camden will have grown by 22.4%, almost 5% higher than the London wide rate. This is perhaps unsurprisingly since some of London’s most important development proposals, including Crossrail, and growth areas such as King’s Cross and Euston Station, are located in LB Camden. Recent confirmation that Google Inc. are to develop their UK Headquarters at King’s Cross is testament to the borough’s locational advantages and attractiveness to multi-national companies, and indicates the potential for a step change in employment space growth. The aim of this ELR is to evidence what the potential scale of employment growth could be for B uses in LB Camden and how this growth could be accommodated. The scale of demand will vary over the economic cycle of the Local Plan period and will be intrinsically linked to the delivery and completion of major development projects. It is important therefore that this ELR and planning policy recommendations is focused and encouraging balanced growth over the long term. The scope of this employment land study focuses on the B use class orders, that is: B1a (Offices), B1b (Research and Development) and B1c (Light Industry); B2 (General Industrial); and B8 (Storage or Distribution). Wider employment users of employment land, such as utilities, land for transport, waste management and retail, are also taken into account as per NPPF and GLA Land for Industry and Transport SPG guidance” (paragraph 2.1)

4.50 Specifically in relation to creative and cultural industries, the Study notes:

Our work for Camden Council in 2011 found that the creative and cultural (CCI) sector is particularly important to LB Camden in terms of employment and wealth creation. The borough is home to 4,090 CCI enterprises, which form 17% of all Camden businesses by number, or approximately 7.5% of all CCIs in Greater London. The largest CCI sector is Music and Visual Performing Arts of which there are around 1,010 businesses. Other key sub-sectors include: software & electronic publishing; video, film& photography; advertising; publishing; and radio and TV, which collectively account for around two thirds of all CCIs enterprises in LB Camden.” (paragraph 4.5)

4.51 Furthermore, in relation to small businesses the study states:

“Small businesses contribute significantly to employment within the borough with 21,050 businesses employing between one and nine employees, comprising 83% of the 25,495 companies registered within the borough. The proportion of SMEs in the economy is similar to that of Greater London, with SMEs accounting for 99.4% and 99.5% of businesses respectively. There

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are 145 businesses employing more than 250 employees in the borough, which represents 0.5% of businesses.” (paragraph 4.6)

4.52 The Study states that Camden will experience a high degree of population growth to 2031 which will have a significant impact upon the economic productivity of the borough. A key consideration will be the availability of suitable and sufficient employment land and premises to accommodate the anticipated demand from business growth over this period. The study records that a survey of employment land found that, “aside from a few key employment sites there is little in the way of employment ‘clusters’; the majority of LB Camden’s employment land being provided as individual employment sites situated within town centre and town centre fringe locations” (paragraph 5.2 refers). The Study includes a reference to Gilbey’s Yard (site C18) as a non- designated site which is situated adjacent to the western boundary of the application site.

4.53 A key finding of the Study is that the majority of employment land within Camden Town is within B1c use, typically with small workshops and warehouse space provided to occupiers engaged in clean, light industrial processes. A very limited amount and concentration of B2 and B8 uses were observed within the Camden Town area (paragraph 5.6 refers).

4.54 The Study confirmed that Camden Town is the largest and most vibrant commercial centre within the Borough. Its office market is noted as being relatively small but important. Paragraph 6.2 states that:

“The town centre continues to evolve, and land values are marginalising some activities. The centre is very popular with tourists, particularly for Camden Market, and the area around Camden Tube Station, at the junction of High Street, Kentish Town Road, Parkway and Camden Road has a flourishing retail offer, with a broad offering of bars and restaurants. Camden Town sits adjacent to the central London market area and, to some degree, benefits from the expansion and increasing land values in that area, as occupiers relocate from higher to lower cost premises. This is particularly the case with creative and lower margin businesses”

4.55 Furthermore, paragraph 6.4 continues by stating that:

“Camden Town is something of an enigma in office property terms. While it might be expected to benefit greatly from its proximity to the enormous concentration of offices in the central London area (in terms of demand form occupiers and developers), it has remained in essence a secondary office market location. There is relatively little large, modern corporate office space and the bulk of the office market comprises converted light industrial buildings. One consequence of this supply-demand dynamic is that the area has a vibrant and thriving market catering for smaller businesses, with concentrations of creative and media occupiers looking for more cost effective, simpler buildings and flexible buildings. While providing easy access to the West End, the area’s stock of space is very varied, in terms of condition, age, unit size and leasing terms, and this provides for a wide range of occupier requirements. Those businesses that have moved to the area are mostly creative types, including: Getty Images, H Bauer Publishers, Jim Henson Organisation, MCI WorldCom, MTV and Viacom Outdoor. Indeed, a strong broadcast media cluster has developed in Camden Town.”

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4.56 The Employment Land Study states that there is strong demand for smaller, local offices, including studios, start-up space and for micro businesses. Critically, the Study concludes that:

“If Camden Town performs a role of nurturing small businesses in economic and flexible space, then it is performing a critical role. The key point here is that Camden Town provides a focus for specific sectors of demand which are important to LB Camden overall. Its attraction to creative industries and start-ups is a defining feature of the Camden Town market. Providing the kind of space to nurture these kinds of businesses will be more important than competing with schemes providing larger corporate buildings in the central London market area.” (paragraph 6.4)

4.57 The application proposals directly support this conclusion. The proposals provide for the refurbishment of the existing market, in the process enabling a greater supply of quality flexible business space particularly suitable for small businesses engaged in creative and cultural industries for which there is strong demand.

4.58 Indeed, paragraph 6.9 recognises the importance of the provision of new space for such business:

“There is no question that start-ups are an important component of LB Camden’s economy, and the real issue is in ensuring that the type of property is provided that will appeal to start-ups and SMEs in terms of scale, form and location. Such space is normally provided in ‘managed space’, ‘incubators’ and ‘co-working’ paces’, among others. Such spaces have spread widely across London in recent years. They are most well known in East London (around Tech City), but are widespread elsewhere within the CAZ boroughs and CAZ fringe locations.”

f) Leisure uses and the evening economy

4.59 The existing Camden Lock Market (and the adjacent Stables market) already makes a significant positive contribution to the thriving evening economy of Camden Town with its range of bars, restaurants and entertainment venues e.g. Dingwalls. In recent years, the introduction of a night market and evening activities such as outdoor cinema and music events ensure that the market is active throughout the day and into the evening. The application proposals will maintain this programme of events through an enhanced contribution to the evening economy primarily enabled through the creation of new spaces and other physical improvements.

4.60 There are a range of uses within the town centre which ensure activity during the evening which sustain a range of local employment opportunities. Such uses include restaurants, bars and entertainment venues and clubs for live music.

4.61 The evening economy is a significant attraction of Camden Town. Indeed, Camden Town’s night time economy was the subject of a specific study back in 2004.

4.62 The next section of this report examines the application proposals against the socio-economic background examined above and the relevant policies of the development plan.

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5 ECONOMIC ASSESSMENT

a) Introduction

5.1 This section of the report considers the application proposals in terms of their economic effects. As evidenced by the policy analysis provided in section 3 of this report, the application proposals are consistent with national and local economic policy, they are a form of sustainable economic development and maximise the efficient use of land within a preferred town centre location. Furthermore the proposals will make a positive contribution to the vitality and viability of Camden Town consistent with the policies of the development plan.

5.2 Importantly, the proposals will improve the appearance, functionality and performance of the existing market and in doing so they will help to attract a range of new businesses through the provision of high quality flexible space which is particularly suited to the type of demand being expressed by market traders and businesses engaged in the creative and cultural industries. Furthermore, the proposals will maintain and enhance the character of the existing market and Camden Town.

b) Employment Opportunities

5.3 The application proposals will have a number of important benefits in terms of the provision of a range of employment opportunities, many of which will be available to local people and businesses. A range of employment types and skills will be provided both directly and indirectly by the application proposals.

5.4 In order to ascertain the potential employment generating benefits of the proposals it is necessary to examine current employment levels within the market by use/activity and then to compare these to any uplift in employment provided through the use of additional floorspace or intensification of uses etc.

5.5 In order to calculate existing and proposed employment levels, RPS has adopted a standardised approach utilising recognised data sources and common methodology. Given the market accommodates a range of flexible uses which operate at different times and intensities it is not fully possible to capture with 100% accuracy the existing and proposed levels of employment at the site. Nevertheless the commentary and calculations set out in the following paragraphs provide a guide to the typical levels of employment likely to occur within the market today and in the future following the implementation of the development proposals.

5.6 New employment opportunities will be delivered in a phased manner consistent with the construction programme. The construction programme, consistent with proposals of this nature, would involve the development of existing floorspace meaning that existing users will be temporarily displaced to enable works to be completed. The Applicant will seek to assist existing occupiers in finding alternative accommodation within its other markets as required.

i. Operational Development

5.7 In order to calculate the number of people currently employed across the existing market, RPS has had regard to the Employment Densities Guide prepared by the Homes and Communities Agency and Drivers Jonas Deloitte (2010, 2nd edition). Whilst this Guide is a little dated it remains

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a recognised and accepted resource commonly used in the calculation of employment numbers arising from development proposals such as these. The Guide provides a range of employment densities attributable to different types of uses. These densities act as a ‘guide’ but in each case the particular characteristics of individual proposals need to be taken into account and the densities adjusted accordingly. In this case, the market provides a unique offer in terms of the mix and diversity of flexible uses. Accordingly RPS has adjusted the densities suggested by the Guide so that they more closely reflect the type of activities/uses at the existing market.

5.8 RPS has had regard to the Employment Densities Guide and also other reports prepared in support of proposals for similar markets to determine appropriate employment densities for the range of activities/uses carried on within the existing market. In particular RPS has had regard to the Applicant’s proposals for the Hawley Wharf site (Economic Report, September 2012, Quod), research undertaken by Regeneris in respect of their report entitled London’s Retail Street Markets (June 2010) and the 2006 Markets Report prepared by Roger Tym & Partners.

5.9 Taking the above into account, RPS has adopted the following employment densities for each of the uses within the market (existing and proposed):

Table 5.1: Employment Densities

Use Employment Density per sqm Class A1 retail 19 (NIA) Class A3 restaurants 18 (NIA) Flexible market use (A1/A3/A4/A5) 12.5 (NIA) Class B1 employment 12 (NIA) Events / exhibition space (D1/D2) 36 (GIA) Flexible market / events/ exhibition (D1/D2/A1/A5) 25 (GIA) Market stalls* 1.5 (per stall) Note: * reflects observations at the market and information provided by the Applicant

5.10 By applying the employment densities described in the above table to the existing market floorspace provides an indication of baseline employment levels. Not all of the market stalls are in use during market trading hours. Accordingly in order to reflect this, RPS has assumed that the market stalls will be fully occupied at weekends and on Friday but at only 50% capacity during Monday – Thursday. This means that the average weekly occupancy of stall across the week is circa 71%. RPS has applied a comparable assumption in respect of the refurbished market.

5.11 Table 5.2 (below) demonstrates that the existing market (based upon the assumptions described above) generates a maximum of 599 jobs including market stalls.

Table 5.2: Gross Employment Existing Market

Use Class Floorspace sqm Density persons Jobs GEA GIA NIA per sqm A1 2,050 1,917 1,438 19 76 A3 745 659 494 18 27 A1/A3/A4/A5 1,922 1,680 1,260 12.5 101 B1 1,615 1,417 1,062 12 89 D1/D2 795 750 563 36* 21 D1/D2/A1/A5 0 0 0 25* 0 Market Stalls 267 1.5 jobs per stall 286 Total 599 Notes: NIA calculated as 75% of GIA * calculate by reference to GIA floorspace all other uses calculated by NIA in accordance with Guidance

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5.12 Similarly, Table 5.3 applies the same assumptions to the proposed development to calculate the number of jobs created in terms of the operation of the market.

Table 5.3: Gross Employment Proposed Market

Use Class Floorspace sqm Density persons Jobs GEA GIA NIA per sqm A1 2,904 2,756 2,067 19 109 A3 1,882 1,752 1,314 18 73 A1/A3/A4/A5 2,112 1,898 1,424 12.5 114 B1 2,626 2,384 1,788 12 149 D1/D2 1,736 1,613 1,210 36* 45 D1/D2/A1/A5 700 595 446 25* 24 Market Stalls 267 1.5 jobs per stall 286 Total 799 Notes: NIA calculated as 75% of GIA * calculate by reference to GIA floorspace all other uses calculated by NIA in accordance with Guidance

5.13 Table 5.3 assumes that all jobs will be new jobs (gross) and that they will all be available to those living within the local area. The tables also assume that all jobs will be full time positions in respect of the permanent floorspace. In reality the number of jobs is likely to exceed the amount stated if part time working practices are assumed.

5.14 The proposed increase in gross employment between the existing and the proposed market is 200 jobs. This is the gross increase in jobs. In order to calculate the net increase in jobs RPS has had regard to the relevant advice set out in the Additionality Guide published by English Partnerships (2010). In this respect RPS has taken account of matters such as leakage, displacement and multiplier effects namely:

§ Leakage – jobs taken by people located outside Greater London. In this respect RPS has assumed, in accordance with the Guidance, a 13% discount which assumes that the majority of employment benefits will be for local people

§ Displacement – people employed at the market may, in the absence of the proposals, have worked elsewhere. RPS has assumed that displacement effects will be low and therefore a 25% adjustment has been applied consistent with the Guidance

§ Multiplier effects – this refers to knock on effects generated by the scheme in helping to retain expenditure locally which in turn helps to promote additional job creation in the local area. Given the strength of Camden Town and London as a whole a 1.7 multiplier has been applied as per the Guidance.

Table 5.4: Net Operational Employment effects of the Proposed Market

Employment Greater Outside Total London London Gross direct employment (13% outside) 695 104 799 Displacement (25%) 174 26 200 Net direct employment 522 78 599 Indirect and induced employment (1.7%) 365 55 420 Deadweight (existing employment) 521 78 599 Total net employment 365 55 420

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5.15 Taking the above assumptions into account, Table 5.4 calculates the net operational job creation of the proposed development as 420 jobs.

ii. Construction Jobs

5.16 In addition to jobs associated with the operation of the market, there will be a range of construction jobs. Estimates of construction jobs can be calculated by reference to the scheme value and the adoption of an average rate of gross output per construction industry employee. The proposed scheme value is in the order of £30M and according to the latest Annual Business Survey (published June 2015) output per construction employee is £152,399 per annum. The construction of the scheme will take place in one phase over a total period of 20 months.

5.17 Having regard to these variables, the construction phase of the proposals is expected to deliver 128 jobs per annum (328 jobs over the duration of the construction programme). However, as per the operational phase, account needs to be taken of leakage, displacement and multiplier effects to ascertain the net employment benefit of construction jobs generated by the proposed scheme. Table 5.5 duly shows that the proposed development will create a total of 163 net construction jobs per annum (272 jobs for the duration of the construction), of which 142 jobs will be available within London per annum (237 jobs for the duration of the construction programme).

Table 5.5: Net Construction Jobs per annum – 20 month construction programme

Employment Greater Outside Total London London Gross direct employment (13% outside) 111 17 128 Displacement (25%) 28 4 32 Net direct employment 83 12 96 Indirect and induced employment (1.7%) 58 9 67 Total net employment 142 21 163

5.18 The existing market is composed of a significant number of independent small businesses. One of the key constraints imposed by the existing market is that there are limited opportunities which allow small businesses to grow. The application proposals will directly address this lack of suitable premises. Accordingly, by providing a range of flexible premises the Applicant’s proposals will help safeguard existing local jobs retaining successful businesses within the market. This is an important component of the package of economic benefits which will be delivered by the application proposals.

5.19 Simultaneously, the proposed scheme also provides the opportunity to attract new business start ups including support for self employed persons. The proposed flexible business floorspace provides the type of units that are ideally suited to the needs of small business operating in the creative and cultural industries sectors in the local area.

5.20 In each case, the proposed business and market floorspace will provide more flexible and attractive space to meet demand expressed locally as reported in a range of studies.

5.21 The application proposals support the Council’s strategic objective to foster economic growth particularly through support given to small business enterprises. The application proposals will provide a range of flexible business premises providing opportunities for sustained growth in an

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engaging environment where the benefits of grouped provision are available. The proposals build upon the established character and success of the existing market and in the process will assist in the nurturing of small businesses. The scheme will provide a total of 2,626sqm GEA Class B1 employment floorspace, representing an increase of 1,011sqm GEA floorspace compared to the existing market.

iii. Summary of Employment Benefits

5.22 In summary, the proposed development is expected to create in the order of 692 net jobs. 420 of these jobs are associated with the operation of the market whilst the balance (272) relate to construction jobs. Construction jobs will be temporary and limited to the period of construction (circa 20 months). Not all construction jobs therefore will be available at the same time.

5.23 Given the wide range of uses within the market, there will be a corresponding range of jobs at different skill levels. This will range from professional and skilled jobs including managers to manual jobs such as cleaners, security and maintenance staff (direct employment). In addition, the range of flexible business accommodation will support business start ups and growth of existing businesses and market traders (indirect employment).

c) Visitor Attraction

5.24 The application proposals seek to broaden the markets appeal to the local residential and business communities. The current market attracts visitors from a wide area however it has limited appeal to local residents. The new market, through its mix and range of uses and activities at different times of the day is geared towards retaining greater local expenditure on retail and leisure goods and services. The new market will therefore be more inclusive, in the process shifting the demographic profile of the typical visitor.

5.25 Tourism is a very significant contributor to economic activity in Camden Town. Indeed, the Camden Core Strategy recognises the importance of this contribution to the local economy of Camden Town (policy CS8). The application proposals are consistent with the Council’s policies. The essence of the existing market is maintained however the introduction via the application proposals of a broader appeal will assist Camden Lock in differentiating itself from the other markets, thereby reinforcing its appeal to a wider audience as opposed to providing more of the same. In addition the proposals maximise the markets canal side setting with improved linkages and connections through the site improving permeability and legibility and reduced congestion.

5.26 The refurbished Camden Lock would improve the offer of Camden Lock and attract a broader profile of visitor, increasing spending in the local economy including with local businesses. In turn this would support local employment. The proposals assist in increasing the dwell time of visitors to the market through a range of complementary uses and activities throughout the day and the evening.

5.27 The existing market tends to focus upon low value mass produced goods which are typically found in a number of markets. Accordingly there is nothing to distinguish these from other markets. The offer of the proposed market will be carefully controlled by supporting the design, make and sale process whereby there will be a focus upon high quality craft goods which are readily distinguishable from the retail offer of other markets. In addition, the quality of the food offer will be further enhanced. The introduction of these changes is expected to benefit the long term success of the market and importantly will help to attract more visitors and increase the

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markets appeal to local residents and business users. The overall offer will therefore balance the market between visitors and local people. This is consistent with the Council’s policies. Furthermore, the character of the market and this part of Camden Town will remain dominated by small units operated by independent businesses.

5.28 The application proposals will build upon the successful management deployed in recent years at the existing market. Effective and engaged management together with physical improvements will help to ensure that the market provides benefits to all users. This will help to attract and retain business including market traders and sustain the appeal of the market to visitors.

d) Retail & Leisure Effects

5.29 The majority of the application site is located within the defined boundary of Camden Town centre (the preferred location for this type of development) and also include both primary and secondary retail frontages to Chalk Farm Road and Camden Lock Plan. The NPPF does not require town centre schemes including retail and leisure uses (Class A and D) to be tested either in terms of impact or the sequential approach to site selection.

5.30 The only part of the scheme that is located outside but immediately adjacent to the town centre is the floorspace that is to be comprised within the Interchange Building incorporating the East Vaults. This floorspace comprises 1,062sqm GIA. This is well below the 2,500sqm threshold prescribed by the NPPF for testing impact outside town centres and there is no lower threshold set by the policies of the Local Plan. The floorspace is proposed to be used for Class A3 and flexible market uses (Class A1/A5/D1/D2).

5.31 The NPPF (and policies of the development plan) strictly requires this floorspace to be considered in terms of the sequential approach to site selection. However, in this case it is considered that there are a number of special circumstances which dictate that the sequential test is satisfied given the nature of the proposals. Indeed there is general policy support for the type of economic benefits (including retail and leisure uses) that would stem from the application proposals including; provision of small shops, creation of flexible business space, provision of a number and range of jobs etc.

5.32 The proposed floorspace within the Interchange Building forms a small, but nevertheless an important and integral part, of the overall proposals. It provides a unique opportunity to create an exciting restaurant and flexible market space including exhibition/events space overlooking Dead Dog Basin. The proposals maximise the re-use of underutilised existing floorspace in an imaginative way which is in keeping with the spirit of the overall proposals for the rejuvenation of Camden Lock Market. Importantly the proposed space will form a natural extension of the market and cannot be disaggregated. There is no comparable space within Camden Town centre capable of developing the proposed restaurant and flexible market space. Indeed no other space would ensure the productive re-use of this floorspace. Significantly, the space is only accessible via the market (i.e. from within the town centre) and therefore it would operate in a manner which fully supports the vitality and viability of both the market and Camden Town centre. In these clear terms, it is considered that the proposals fully comply with the sequential test namely, that the need in this case dictates that only the application site is capable of accommodating the proposed restaurant and flexible market floorspace.

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5.33 The NPPF focuses upon a sustainable development agenda, at the heart of which is an urgent need to stimulate the economy. Simultaneously, government policy seeks to lessen the planning burden upon developers proposing new town centre schemes such as this. Indeed, the government requires local planning authorities to approve development proposals that accord with statutory development plan unless the adverse impacts of allowing development would significantly and demonstrably outweigh the benefits.

5.34 The application site does not secure a specific land use designation within the Camden Local Plan. Similarly the type of proposals subject of the current planning application are not envisaged however there is significant support for the proposals in terms of retail and economic policies of the Local Plan and the London Plan.

i. Scale of the development

5.35 The application proposals involve the refurbishment of an existing market within Camden Town centre. The proposals are only modestly larger in scale than those which they replace (+4,833sqm). The application site is an appropriate location upon which to provide additional Class A and D floorspace. The proposals are designed to address identified operational constraints and the demand expressed generally including that from existing occupiers and potential traders and businesses.

5.36 The nature of the proposals mean that they would preserve and enhance the unique character of Camden Town but enable a greater ‘balance’ to be struck in terms of the retail offer for visitors, local residents and businesses. This will be achieved by appealing to a wider demographic through the introduction of a higher quality craft orientated retail and food offer together with a programme of regular event and activities within the new public spaces created by the proposed development.

5.37 The scale of the proposed uplift in Class A and D floorspace compared to the existing market is modest (+3,822sqm GEA). This level of floorspace is entirely consistent with the role and function of Camden Town as a major centre. Accordingly the proposals satisfy policy 2.15 and 4.7 of the London Plan. Indeed, the Council’s policies seek to focus new retail and leisure floorspace such as this within Camden Town. The proposed Class A floorspace is predominately comprised within small units (<50sqm) albeit there will be a range of larger units. This mix is necessary in order to provide opportunities for growth but is nevertheless consistent with the format presented by the existing market. Ultimately, the proposals maintain the character of the markets area of the town centre consistent with policy.

ii. Nature of the proposed floorspace

5.38 Consistent with policy, the application proposals will retain and reinforce the distinctive market feel of this part of Camden Town. The application proposals respond positively to this challenge through the continued provision of a diverse range and mix of units and uses. The overall character of the scheme is one comprised typically of small flexible units suitable for a range and mix of businesses. These units will only be attractive to specific occupiers e.g. independent market type traders and small businesses.

5.39 A limited number of larger units are also proposed. These assist in addressing the physical constraints imposed by developing the site and help to retain businesses within the market as they grow and their space needs increase due to their success. The retention of such traders is

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important in nurturing new small businesses. The creation of a mix of units is also important in assisting the distribution of visitor footfall and enhancing the overall visitor experience and trading environment. The proposals also assist in extending the dwell time with associated benefits to traders.

5.40 The proposed scheme provides additional capacity and flexibility enabling the market to adapt and evolve according to business requirements.

5.41 The proposed development will meet the demand for flexible retail units within Camden Town expressed by both existing and new traders/retailers including those seeking to start up businesses within the local area. The proposals also include a significant number of retail units which would be particularly suited to craft persons who make and sell products on the premises.

5.42 The application proposals present a significant opportunity to provide Camden Town with an enhanced retail offer including replacement market floorspace which maintains the character and contributes to the unique retail environment of Camden Town, distinct from other major town centres within the borough and London.

5.43 The Applicant and their consultants have engaged with the Council and local community groups for a considerable period of time through the formal pre-application process in order to achieve an appropriately designed scheme which seeks to retain the charm and feel of the Camden markets but which provides businesses with the type of space they require with additional benefits such as better on site visitor facilities and weather protection, improved circulation and accessibility.

5.44 The proposals will not result in a ‘new’ market but rather new flexible Class A and D floorspace that is better suited to meet current and future needs. Neither would the proposals result in the permanent loss of a market. The new market will be distinct from the retail offer of other Camden Town markets. This will assist is altering the demographics of visitors to Camden Town – creating a diverse visitor attraction and a more engaging experience and one which maximises the markets heritage and unique canal side setting. In these respects the proposals are consistent with the Council’s policies.

5.45 The application proposals will provide a range of new food establishments e.g. restaurants, café and takeaways within a controlled environment. Such uses should not result in congregations of people late at night, which has the potential to cause general disturbance to nearby residential areas.

5.46 The application proposals will provide a unique blend and mix of uses. Furthermore, the intention is to attract operators that are of high quality and thereby distinguish their offer from other establishments currently trading within Camden Town. In this way, the application proposals will have a limited impact upon other businesses within Camden Town.

iii. Impact Issues

5.47 The flexible market uses (Class A and D) comprises 9,334sqm GEA floorspace, an increase of 3,821sqm GEA floorspace.

5.48 The proposed development will provide for the physical regeneration of the site and will help to improve the overall retail offer of Camden Town including the provision of a range of units for

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Class A and D purposes which will maintain the feel and character of Camden’s markets. Numerous studies highlight a shortfall in shops for local people within Camden Town, particularly in the area that is dominated by the markets which tend to attract a greater number of visitors from outside the town and the Borough. The application proposals will assist in ‘balancing’ these needs. The floorspace is intended to be let to a range of local businesses. The floorspace is easily adaptable to meet the needs of specific businesses and is proposed for flexible Class A and D uses.

5.49 Notwithstanding the fact that the application proposals are not required to be tested in terms of impact, RPS is conscious of the need to provide reassurances regarding the scale of retail floorspace proposed, its nature, composition and ‘fit’ with the existing retail offer, role and function of Camden Town. RPS views on these matters are informed by our assessment of the vitality and viability of Camden Town. Our conclusions mirror those of the Council’s retail study, namely that the centre is healthy. It is however important to recognise that a significant proportion of shoppers drawn to the proposed development will be visitors from outside the Borough including domestic and international tourists.

5.50 The proposed market retail offer seeks to attract a different type of visitor to Camden Town and thereby improve the demographic range of visitors. This will be achieved through attracting and selecting traders which sell different types of goods in accordance with the Applicant’s vision for the market i.e. a shift away from a dominant clothing offer which characterises so many of the existing markets within Camden Town.

5.51 Camden Town is the largest and only ‘major’ centre within the borough. Accordingly it is appropriate that any large scale development such as this is directed to the centre. The following observations are pertinent to our assessment:

§ Larger centres have a diverse range and mix of town centre uses § Many centres have evolved to provide a niche/specialist retail offer § Other centres do not have the capacity to accommodate any significant level of additional retail floorspace

5.52 The unique nature of the application proposals means that any impact would fall upon comparable facilities within Camden Town as opposed to shops within other centres. However any impact would be negligible as the proposals would mainly draw from the growing pool of available expenditure rather than divert trade from existing markets/shopping facilities. Furthermore, the attraction of the centre means that expenditure will be drawn from a wide geographical area, including a significant proportion of domestic and international visitors.

5.53 In this case there is a unique set of circumstances that assist in limiting any effects on centres. These can be summarised as follows:

§ The application site is an established retail destination (Camden Lock Market) to which shopping trips are already occurring § Some of the proposed floorspace will be offset through the loss of existing retail floorspace. Consequently there will be a transfer of trade between the existing Class A1 floorspace and that of the proposed development § The proposed retail floorspace will draw trade from the growing pool of available expenditure. The Camden Retail Study does not provide a specific estimate for market retail floorspace need in Camden Town however it is relevant that that study concludes that Camden Town is the only centre that could realistically accommodate significant additional

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comparison goods floorspace. The conclusion mirrors the GLA’s study London Town Centre Assessment. Both studies suggest significant additional retail floorspace can be accommodated within Camden. It is well documented that Camden Town draws visitors from a wide geographical area - across London and beyond. § A number of existing market traders also operate from other locations within Camden Town. Accordingly the temporary closure of the existing market during the course of the construction will not result in those businesses being unable to trade. § The proposed units would help to meet the demand for additional retail units in a manner which preserves and enhances the character of the town centre. § No other centre within Camden provides the same diverse and unique mix of retail and other uses as Camden Town. The application proposals will enhance the vitality and viability of Camden Town

5.54 In summary, it is clear that the application site is a preferred location and RPS believes that there can be no in principle dispute regarding the acceptability of the proposed mix of retail and leisure uses on the site. Indeed, these are the types of uses directly supported by policies of the Camden Local Plan.

5.55 The character of the application proposals is defined by the provision of small units suitable for a variety of traders. The majority of the units will typically comprise 15-50sqm which is significantly smaller than the size of units envisaged by development plan policy (<100sqm). The result is a far greater number of small units which significantly add to the vibrancy of the scheme and this part of Camden Town.

e) Summary

5.56 In summary, the application proposals will deliver a wide range of economic benefits consistent with the aims and objectives of national and local planning policies. The proposals will particularly benefit small businesses providing space for business start ups with opportunities for sustainable growth with a unique mixed use market orientated development. Importantly, these benefits can occur without any harm either in terms of the established character of Camden Town or adverse impacts upon the local business and residential community.

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6 CONCLUSIONS

6.1 The previous sections of this report assess the application proposals against the economic policies of the NPPF and the development plan. In summary the following conclusions can be drawn regarding the economic effects of the application proposals:

§ The application proposals comprise a comprehensive mixed use scheme based upon the refurbishment and enhancement of the existing Camden Lock Market. The proposals include the re-configuration of existing floorspace and the layout of the market, creation of new flexible space including a range of unit formats and sizes and the re-use of under-utilised space. The refurbished market will address current physical constrains and in doing so the proposals will provide a greater range of opportunities to foster new business start ups whilst also enabling existing businesses to expand in an environment that will be particularly suited to creative industries

§ The market will continue to provide a range of premises suitable for a variety of different businesses including market retail (Class A1), food and drink (Class A3 and A5), workshops/studios/offices (Class B1) and events/exhibition space (Class D). These types of uses replicate the offer of the existing market and therefore maintain the market’s unique vibrant mix of uses and activities

§ The application proposals will preserve the unique character, diversity and vibrancy of Camden Lock Market and thereby maintain and enhance the markets’ contribution towards the vitality and viability of Camden Town. In particular the proposals will improve the visitor experience and the markets’ integration with the wider business and residential community. The enhanced market will appeal to a wider cross section of visitors, business and local residents.

§ The physical improvements planned to the market will significantly aid navigation and circulation around the market which will directly benefit visitors but also businesses/traders.

The application proposals involve a relatively modest increase in floorspace (+4,833sqm GEA). This additional floorspace will be comprised of a mix of different uses and will allow a greater number of businesses to operate from the market and/or provide increased flexibility in terms of providing flexible space suited to the needs of different sizes of businesses and the activities which they carry out. The proposed increase in floorspace is entirely in keeping with the scale of the retail/leisure offer of Camden Town. Furthermore, the nature of that floorspace limits its potential effect on other centres.

§ The proposals could potentially result in a number of new employment opportunities associated with both the construction and operational phases of the development. However given the nature of the types of businesses that are likely to be attracted (including the retention of established businesses that currently operate from the market) there is likely to be a great variance in the number of people employed. This report estimates that up to 692 net jobs may be created (420 associated with businesses operating from the market and 272 jobs relating to the construction of the scheme, in each case having regard to matters such as flexibility, displacement etc). Furthermore, as the evidence base demonstrates, there is high demand for the type of affordable and flexible business floorspace proposed. That floorspace is also consistent with the strategic objective set out within The Camden Plan which seeks to create ‘conditions for and harnessing the benefits of economic growth’ and the work of the Camden Business Board.

§ The proposed flexible market uses are predominantly located within the defined Camden Town centre – the preferred location for new main town centre uses such as these. The balance of the retail/leisure floorspace is located immediately adjacent to the town centre (East Vaults) and forms a natural part of the overall regeneration of the market. Importantly,

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these uses help to secure the imaginative re-use of currently under-utilised space within the Interchange Building. The relocation of these uses elsewhere (for example elsewhere within the town centre) would not meet the requirement to re-use the building and create a natural extension into the Interchange Building thereby providing a unique waterside dining venue and a dedicated large flexible market/events/exhibition space. The relocation of these uses within the scheme is not physically possible and they cannot be accommodated elsewhere within the town centre given the need for them to be provided as an integral part of the offer of the market.

§ There is a substantial demand from traders for quality market floorspace within Camden Town. The application proposals will help to meet that demand in a manner consistent with the established market’s character and that of the northern part of Camden Town. The proposed floorspace will provide a range and mix of Class A units suitable for a variety of traders.

§ There are important qualitative benefits that would stem from the proposals including the provision of modern floorspace that is both attractive to a range of independent traders/businesses and visitors coupled with enhanced facilities and a wider range and quality food and drink establishments positioned in optimum locations taking full advantage of the market’s lock side setting. The proposed A3/A5 uses can operate without detriment to the amenity of local businesses and residents.

§ Consistent with policy requirements, the predominant size of units will be small, in many cases 15-50sqm – maintaining the established character of the market. These are supplemented (in the same way are the existing market) by a limited number of larger anchor/hub units which enable the most successful businesses to grow thereby helping to retain them within the market. These businesses serve to showcase the market to smaller start up businesses and demonstrate what can be achieved and enables an exchange of knowledge between businesses to occur with support from market management

§ The market will continue to have a transparent pricing structure for units/stalls. In order to assist the start up of small businesses, smaller units/stalls are offered on a flexible inclusive basis e.g daily, weekly, monthly rates. This information is readily available via the Camden Lock Market website and the published Traders Handbook.

§ The proposals strike a balance between accommodating the needs of local residents and those of visitors. The proposals will deliver the necessary variety in retail provision (i.e. different sizes and types of units and both formal and informal market layouts)

§ Maintaining flexibility in terms of the range and mix of uses within the market is extremely important to allow the market to adapt to requirements expressed from end users. This means that providing a rigid structure of unit sizes and uses is not feasible. At any given time, the stalls/small units could be occupied by a range of different business. Each of these will have different employment and floorspace needs.

6.2 For the reasons set out within this report, it is considered that there is no economic planning policy reason to resist the granting of planning consent for the application proposals. On the contrary, the NPPF and the policies of the development plan support proposals such as these which seek to enhance an existing market which lies at the heart of Camden Town centre. The proposals will make the market more attractive to its users (local businesses, residents and visitors alike) and will resolve the physical constraints currently experienced by the existing layout and configuration of the market. The proposals also afford an opportunity to make better use of currently underutilised space and will help to position and re-focus the market in terms of its arts and crafts heritage. Importantly, the proposals will provide a range of appropriate premises for small businesses (including start ups and small to medium enterprises), particularly those

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engaged in creative industries. In summary, as this report identifies there are a range of economic benefits which stem from the application proposals which are consistent with the aims and objectives of the Council’s policies for Camden Town.

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