Mendip District Council MENDIP TOWN CENTRE STUDY

VOLUME 1: FINAL REPORT September 2010

ROGER TYM & PARTNERS

11-15 Dix's Field Exeter Devon EX1 1QA t (01392) 210 868 f (01392) 210 869 e [email protected] w www.tymconsult.com

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RTP Job Number - A649

CONTENTS

EXECUTIVE SUMMARY ...... Introduction ...... Assessment of town centre performance ...... Current patterns of retail and leisure spending ...... Quantitative retail need ...... Qualitative need ...... Assessment of scope for other town centre uses...... Strategy and Recommendations ......

1 INTRODUCTION ...... 1 Scope and Purpose of the Study ...... 1

2 POLICY REVIEW ...... 3 PPS12 ...... 3 PPS4 ...... 3 Practice Guidance ...... 4 Competition Commission‟s Investigation of the UK Grocery Market ...... 4 The Requirements of the Current and Emerging Regional and Sub Regional Policy ..... 5

3 TOWN CENTRE PERFORMANCE ASSESSMENT ...... 8 Summary Performance Assessment of Frome ...... 9 Wells ...... 14 Summary Performance Assessment of Wells ...... 15 Shepton Mallet ...... 16 Summary Performance Assessment of Shepton Mallet ...... 17 Street Including Clarks Village ...... 19 Summary Performance Assessment of Street and Clarks Village ...... 20 Glastonbury ...... 23 Summary Performance Assessment of Glastonbury ...... 24

4 CURRENT PATTERNS OF RETAIL SPENDING ...... 27 Household Survey Methodology ...... 27 Convenience Expenditure ...... 31 Comparison Expenditure ...... 34 Shopping Linkages with Other Towns and Adjacent Area ...... 39 Patterns of Spend on Leisure Services ...... 40 Summary: Current Patterns of Retail Spending ...... 42

5 QUANTITATIVE AND QUALITATIVE RETAIL NEED ...... 45 Methodology for Assessing Quantitative Retail Need ...... 45 Findings in Relation to Quantitative Retail Need ...... 53 Qualitative Retail Need ...... 55 Summary: Quantitative and Qualitative Retail Need ...... 65

6 ASSESSMENT OF SCOPE FOR ADDITIONAL COMMERCIAL LEISURE AND CULTURAL FACILITIES ...... 67 Introduction ...... 67 Distribution of Leisure Expenditure ...... 67 Current and Future Leisure Expenditure ...... 68 Retention and Leakage of Leisure Spend in the Study Catchment ...... 69 Conversion of Expenditure Increases into Additional Leisure Requirements...... 70 Office Requirements ...... 82 Summary of Need for Additional Commercial Leisure and Cultural Facilities ...... 82

7 STRATEGY AND RECOMMENDATIONS ...... 85 Introduction ...... 85 Recommendations for Hierarchy of Centres in Mendip ...... 85 Town Centre Retail Strategy Development ...... 87 Findings from the Appraisal ...... 90 Comparison Goods and Other Town Centre Uses ...... 92 Convenience Goods Retailing ...... 97 Impact Assessment ...... 98 Retail Boundaries ...... 98 Role of Monitoring...... 99

1 ROGER TYM & PARTNERS

Fairfax House 15 Fulwood Place London WC1V 6HU

t (020) 7831 2711 f (020) 7831 7653 e [email protected] w www.tymconsult.com

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EXECUTIVE SUMMARY

Introduction

1 Mendip District Council commissioned Roger Tym & Partners (RTP) to undertake this study in January 2010. It will form an important element of the evidence base used to underpin the preparation of Mendip‟s Local Development Frameworks (LDFs) and in particular the Core Strategy. 2 The study is based on survey work including a household telephone survey and in-centre survey, as well as desk-based research, site visits and consultations.

Assessment of town centre performance

3 We have analysed the performance of five key towns, (namely Frome, Wells, Street, Glastonbury and Shepton Mallet), in relation to key indicators of vitality and viability. 4 Frome is the largest of the Mendip towns. Its historic character and artisan reputation have helped create a vibrant town centre with a wide range of shops and retail offer. It main role is a local service centre offering day to day access to a range of services and facilities. However there are a range of issues which could hinder the towns future, these include traffic and congestion, poor public transport facilities, lack of eating and drinking establishments, outdated shopping precincts and a large vacant and derelict site adjacent to the town centre. 5 Wells is England‟s smallest city and is an area steeped in history and dominated by its Cathedral. As well as a local service centre Well‟s attracts a large volume of tourists helping to maintain its lively and vibrant centre. The city centre has a good mix of retailers, although the comparison offer is viewed as being more limited. It also has a thriving market scene popular with both residents and tourists. However Wells‟ historic built environment whilst important to its attractiveness also hinders its growth, especially for larger retail units required by the retail sector. There has also been a lack of choice in the convenience sector and issues with congestion. 6 Shepton Mallet is an historic town with a strong sense of community. However, its town centre has been in long term decline, despite efforts to secure new investment and new development at the top of the town and beyond to the retail park. The retail offer is poor and the environment has suffered from a lack on investment (which is being rectified in some places) and has a large number of vacant units. 7 Street has been heavily influenced by the shoe industry. Initially, through its rapid development in the 1800‟s and latterly through the decline in the shoe industry and the resurgence of the town through the redevelopment of its former premises into a thriving discount shopping outlet. The shopping outlet ensures visitors are drawn to the town, which benefits the town centre and helps maintain a healthy high street which may otherwise had significantly declined. However, whilst the shopping outlet and town centre offer a wide range on comparison goods, convenience offer is more limited and there is a lack of food and drink outlets to service the evening economy.

8 Glastonbury offers a strong „alternative‟ offer which trades on its mystic history and its connections with Arthurian legend. The town centre has a large number of units for its size, a low vacancy rate and a strong independent sector. However it is reliant on the gift sector to service the tourist market and is under represented by high street stores, which maybe to the detriment of local shoppers. Set against this however, it can be argued that it plays a complimentary role to the outlets found at Street.

Current patterns of retail and leisure spending

9 The assessment of current patterns of retail and leisure spending is based on a telephone survey of 800 households undertaken by NEMS Market Research in February/March 2010. 10 88 per cent of convenience goods expenditure is retained within Mendip district. This equates to £162m. An additional £29m of convenience expenditure flows into Mendip foodstores from the outlying survey zones 5-8. A large proportion of inflow originates from Zone 7 (Westbury and Warminster) and is directed to ASDA and Sainsbury‟s in Frome.70 percent of convenience goods expenditure is directed toward just seven large superstores within Mendip. All of these stores are operated by the UK‟s four largest food retailers: Tesco, ASDA, J Sainsbury‟s and Morrisons. 11 The survey findings indicate a deficiency in Wells and Shepton, where despite there being one dominant food superstore in each town, there remains a large proportion of residents who undertake food shopping outside the local area – i.e. while local provision is adequate, lack of competition and choice is resulting in leakage and longer travel for food shopping. 12 Overall, some 55 per cent of the comparison goods expenditure is retained within Mendip. 32 per cent is leaked to other stores and centres and 14 per cent is attributed to SFT 13 Leakage of spend by Mendip residents tends to be to higher order locations further afield such as Bath, Bristol, Yeovil and Trowbridge. Frome is the dominant town centre within Mendip (£41m) although Street when combined with Clarks Village attracts £38m. Trowbridge only attains a market share of £9m from Mendip residents. Leakage to destinations and stores outside the study area and spend on SFT purchases account for significant amounts of spending. Below these two key towns, there is strong competition amongst all of the centres and freestanding stores – perhaps indicative of the fact that there is no higher order sub-regional centre within or adjacent to the study area 14 Visits to restaurants and cafes are fairly localised, as is use of pubs, bars and clubs - many residents favour their nearest local centre. In terms of visits to cinemas, the pattern of use is dispersed with locations outside the study area attaining the greatest market share, these are Bath, Yeovil, Bristol, followed by the local independent cinemas in Frome and Wells. There are few dedicated family entertainment facilities such as ten-pin bowling centres, ice rinks and adventure parks etc within the study area. As such, 70 per cent do not visit family entertainment facilities. For those that do, Bristol, Yeovil, Bath, Taunton and Longwell Green (also in Bristol) all compete for Mendip‟s market share. The survey revealed that 50 per cent of residents of the catchment do not visit theatres or concert halls. However, of those that do, spend is distributed to two main locations outside the study area: Bath (13 per cent) and Bristol (12 per cent). London is also important (5 per cent).

Quantitative retail need

15 There is a quantitative need for new floorspace in the study area beyond 2010. This need increases year on year and arises as a result of increases in population and consumer expenditure per capita. 16 In terms of the need for comparison floorspace there is a requirement of 4,439 sq m net between 2010 and 2016. Retail expenditure growth is thought to continue to grow from 2016 onwards and thus there is an increase in the amount of expenditure to support new retail space. In total there is a need for 35,019 sq m net between 2010 and 2031. However it should be cautioned against looking ahead of 2021, where the expenditure estimates rapidly amplify due to the compound growth of per capita increases in spending. 17 Due to the numerous foodstore commitments, there is limited capacity to support any additional floorspace over the study period. There is unlikely to be any expenditure capacity to support new floorspace before 2021. There is a total requirement of 1,769 sq m net, although this requirement falls between 2021 and 2031. The modest need is also due to the lower rate of growth in convenience goods – there is little scope to buy more food items compared to comparison goods.

Qualitative need

18 Frome‟s primary qualitative needs entail enhanced evening and leisure uses for the town centre and an increase in national multiples to balance the strong and supported independent sector. The Saxonvale development opportunity presents a potential opportunity to achieve this balance. 19 Wells is deemed to have less of a qualitative need due to a well performing comparison goods sector and evening economy. Permission for new food retail floorspace should address the existing convenience deficiency relating to competition and choice. Maintaining quality and the visitor experience is vital. It is thought that on retail grounds Wells could potentially support a high quality premium town centre scheme to provide a better and alternative shopping destination in the Somerset sub-region. 20 Shepton Mallet needs qualitative improvement to the town centre to improve patronage and trading vitality. It is thought that existing shops and retailers should be the priority and that any additional development at Townsend Retail Park is unlikely to help the town centre but may increase local spending rates. 21 Glastonbury has limited qualitative need; however there is scope for continued improvement for leisure and evening uses. Viability of A1 trading opportunities is limited due to the proximity to Clarks Village and the retailer requirement trend for gift and visitor orientated and niche outlets is likely to continue in the medium term. 22 The Street and Clarks Village would benefit from more A3-5 units to improve the leisure and evening offer. Greater town centre convenience provision would be welcomed to supplement the Crispin Centre‟s Tesco Metro.

Assessment of scope for other town centre uses

23 There is an estimated growth in leisure services expenditure for Mendip residents of £63m. Half of total annual leisure spend is made within food and drink establishments (e.g. restaurants, cafes and bars). The remaining leisure categories (e.g. cultural services such as cinema and theatre admissions, accommodation services, games of chance and recreation and sporting services) receive a far lower percentage of the total leisure spend at between 5- 14 per cent 24 Food and drink expenditure is estimated to rise by £51.6m to 2021, 25 new operators could be supported (3,600 sq m of A3, A4 and A5). The five towns would support the majority of this future capacity due to their current size and function. Smaller village / rural settlements could provide for a small increase 25 Only 9.3 per cent of family entertainment spend is retained in Mendip (£956,970 of the estimated growth within this sector to 2021). This could potentially support a new, small facility 26 Mendip retains 30 per cent of household expenditure on cinema admission spend. Majority of population is within the average cinema going 18 minute drive time. Screen density is 4.2 per 100,000 compared with SW average of 5.5 screens 27 Office space: There is a 6.2ha requirement for Mendip town centres, which includes office space for telecoms, professional and business service uses. Town centre office development is being sought as part of the Saxonvale scheme in Frome. Shepton is thought to have consent for around 1,000 Sqm and Wells 2,500 Sqm.

Strategy and Recommendations

Hierarchy of Centres 28 This report is guided by PPS4 and the definitions for each type of centre that are given in PPS4 (2009) Annex B. On this basis the following hierarchy has been identified:

Position in Hierarchy Centres Town Centre Frome, Wells, Street, Glastonbury, Shepton Mallet District Centre None Local Centre Badcox/Broadway (Frome)

Strategic growth recommendations 29 A number of options for the future of the town centres in Mendip have been put forward and tested in section 7 of the report. This analysis has indicated that strategy 3 which is to focus growth at Wells and Frome performed strongest in relation to key objectives of Mendip District Council. However whilst it is suggested that strategy 3 should form the basis of a broad approach other individual opportunities and deficiencies will still need to be addressed in the other towns. This reflects the relatively equitable nature of each of the five town centres in Mendip and the need to maintain relationships and a hierarchy between them. The distribution of comparison goods floorspace would therefore use the following principles:

. Maximise the town centre floorspace provision in Wells and Frome up to 2031, ensuring the new development is sensitive to the historic environment and that retail floorspace is able to complement and enhance to shopping functions of the two town centres . Acknowledging that Glastonbury has limited opportunity for town centre or edge of centre development and that their would be limited appeal or need for modern retailing in the town, some out of town retail has planning permission and further expansion of this could be considered to help deliver minor levels of residual floorspace requirements . Street and Clarks Village do not require any significant expansion or growth; however qualitative improvements and strategies should be identified and delivered. . New town centre retail is desirable in Shepton, there is need for general investment to the existing town centre area and opportunities should be maximised where possible. 30 On this basis the following distribution of floorspace is suggested for comparison and A3, A4, A5 floorspace. The limited convenience requirements mean that there is no need to identify locations for future convenience floorspace.

Frome 2010-16 2016-21 2021-26 2026-31 2010-31 A1 Comparison (sq m net) 1,330 2,770 3,040 3,360 10,500 A3, A4 and A5 (sq m gross) 580 500 510 510 2,100 Wells A1 Comparison (sq m net) 1,330 2,770 3,040 3,360 10,500 A3, A4 and A5 (sq m gross) 580 500 510 510 2,100 Shepton Mallet A1 Comparison (sq m net) 890 1,850 2,030 2,240 7,010 A3, A4 and A5 (sq m gross) 140 120 120 120 500 Street A1 Comparison (sq m net) 440 920 1,010 1,120 3,490 A3, A4 and A5 (sq m gross) 800 400 200 200 1,600 Glastonbury A1 Comparison (sq m net) 440 920 1,010 1,120 3,490 A3, A4 and A5 (sq m gross) 190 170 170 170 700

31 In addition to the retail floorspace requirements a number of other recommendations have been made for each of the centres. These include public realm enhancement, better pedestrian linkages, support improvements to the evening economy, transport improvements and endorsement of local community strategies and visions – further detail can be found in section 7 of this report.

Mendip Town Centres Study Final Report

1 INTRODUCTION

Scope and Purpose of the Study

1.1 Mendip District Council commissioned Roger Tym & Partners (RTP) to undertake this study. It will form an important element of the evidence base used to underpin the preparation of Mendip‟s Local Development Frameworks (LDFs) and in particular the Core Strategy. 1.2 The study seeks to: . Assess the impact of recent developments on expenditure, market share and floorspace requirements . Assess current town centre performance and existing patterns of expenditure . Consider requirements for other town centre uses such as leisure and entertainment, offices, arts, cultural and tourism activities . Assess the need for additional retail floorspace in 5 year periods to 2031 . Consider the most appropriate broad locations which could deliver new floorspace locations . Inform policy options and sites for future development 1.3 This study includes in-depth „health check‟ assessments of the five key towns of Frome, Wells, Street, Glastonbury and Shepton Mallet. The health checks have informed an analysis of whether the centres are meeting the retail needs of the local population and the relationships that exist between shoppers and residents in Mendip and other locations outside of the District. An empirical survey of households has been undertaken to help understand the current patterns of retail expenditure, which covers an area within and beyond the boundary of Mendip District, including parts of BANES, Wiltshire and South Somerset. Qualitative customer views of the five main towns have been collected through an in-centre, face-to-face survey of shoppers. Furthermore, a seminar session was held to feedback initial stages of this work to public and private stakeholders in order to take soundings on the findings to date and consult on the future retail requirements of Mendip. 1.4 This study is compliant with the requirement, as set out in Policy EC1 of Planning Policy Statement 4 (PPS4) 2009, to prepare robust evidence including an assessment of the need for retail and leisure floorspace and the capacity of centres to accommodate any additional growth.

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2 POLICY REVIEW

2.1 The following chapter details the policy context within which this study is set.

PPS12

2.2 PPS12 introduces a „test of soundness‟ for the development of the Council‟s Local Development Framework, in particular the Core Strategy Development Plan Document. The „test of soundness‟ is as follows: . To be „sound‟ a Core Strategy should be justified, effective and consistent with national policy. . „Justified‟ means that the document must be: founded on a robust and credible evidence base the most appropriate strategy when considered against reasonable alternatives. . „Effective‟ means that the document must be: deliverable, flexible and able to be monitored.

PPS4

2.3 Planning Policy Statement 4: Planning for Sustainable Economic Growth (PPS4) was published in December 2009 and replaces previous guidance contained in Planning Policy Guidance Note 4: Industrial, commercial development and small firms (PPG4, 1992) and Planning Policy Statement 6: Planning for Town Centres (PPS6, 2005). 2.4 The Government‟s objective as set out in PPS4 is to achieve sustainable economic growth by: . Building prosperous communities by improving the economic performance of cities, towns, regions, sub regions and local areas . Reducing the gap in economic growth rates between regions, promoting regeneration and tackling deprivation . Delivering more sustainable patterns of development . Promoting the vitality and viability of town and other centres as important places for communities . Raising the quality of life and the environment in rural areas by promoting thriving, inclusive and locally distinctive rural communities 2.5 Policies EC3 to EC5 are plan making policies regarding town and other centres. Regional Planning Bodies (RPBs) and Local Planning Authorities (LPAs) are required to: . Set out a strategy for the management and growth of centres over the plan period . Promote competitive town centre environments and provide consumer choice, . Identify a range of sites to accommodate identified need

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Practice Guidance

2.6 Planning for town centres: practice guidance on need, impact and the sequential approach was published in December 2009 alongside PPS4. It supports the implementation of national policy, but does not set out new policy. The main objectives of the Practice Guidance are: . To promote development in Town Centres. . To provide advice on preparing need and impact assessments and assist in determining planning applications. . To illustrate how sequential approach can be applied. . To encourage a greater degree of consistency and transparency to assist in preparation of need and impact assessments. 2.7 The Practice Guidance states that consideration of need, sequential site assessments and impact assessments should be undertaken regionally to inform the RSS and locally to prepare the LDF. It recognises the importance of identifying need, both quantitative and qualitative. Throughout this study we have taken into account the principles set out in the Practice Guidance.

Competition Commission‟s Investigation of the UK Grocery Market

2.8 The Competition Commission published the findings of its investigation of the UK grocery market in April 2008. The Commission‟s key recommendations are that: The Department of Communities and Local Government (CLG) should take such steps as are necessary to make the Office of Fair Trading (OFT) a statutory consultee for all applications for grocery stores in excess of 1,000 Sqm sales area (including applications for extensions which would cause the post-implementation sales area to exceed 1,000 Sqm). 2.9 The OFT should provide advice to the LPA on whether a particular retailer has passed or failed a „competition test‟. A grocery retailer would fail the test if: . it was not a new entrant to the local area (defined by a ten minute drive time); and . the total number of fascias in the local area were three or fewer; and . the retailer would have 60 per cent or more of the groceries sales area in the local area. 2.10 However, Tesco asked for a judicial review over the test drawn up by the Competition Commission. The appeal was overruled in March 2009 by the Competition Appeal Tribunal (CAT). Mr Justice Barling, Head of The CAT, explained „The CC failed properly to consider certain matters which were relevant to its recommendation that the competition test be imposed. None of the matters in question could be dismissed as incapable of affecting the commission‟s recommendation.‟ 2.11 As things stand, there is no competition test per se within Government guidance. However, the principles of competition are important and are already recognised within

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PPS4. Thus in preparing this study, we have carefully considered how competition can be improved within the District.

The Requirements of the Current and Emerging Regional and Sub Regional Policy

Regional Planning Guidance 10 2.12 The current Regional Spatial Strategy is Regional Planning Guidance 10 (RPG10) published in 2001. It provides a broad development strategy for the South West Region up to 2016. The RSS presents a vision and 12 key objectives which include improving economic competitiveness; promoting economic development in locations where it can best contribute to meeting local needs; addressing variations in prosperity through regeneration, meeting people‟s requirements for jobs and facilities; and improving accessibility. They are based around national sustainability objectives and are generalised in nature and as such are of limited benefit to the local-level policy approach. 2.13 RPG10 presents a number of policies pertinent to retail and Town Centre uses in Mendip. In particular, the RPG seeks to develop the local economic and service functions of towns and direct rural development to towns within rural areas and limit the expansion of out of town shopping destinations. 2.14 In particular Policy EC6 outlines a range of more specific provisions in relation to Town Centres and the location of retail development. Policy EC6 advises that LPAs should: . Locate larger retail, leisure, commercial and public facilities in the centres of the Primary Urban Areas and in other designated centres for growth specified in the spatial strategy; . Encourage developments of an appropriate scale in the market towns and larger settlements; . Ensure that such development is located where it will contribute to the regeneration and environmental improvement of Town Centres; . Ensure the protection of the vitality and viability of existing centres, including suburban centres, and . Ensure that development is located where it can help to reduce the need to travel, encourage journeys by modes other than the private car.

Emerging Regional Spatial Strategy for the South West 2.15 Whilst the Regional Spatial Strategy (RSS) is not going to progress, we have considered some of the outcomes from the consultation and examination as these are still pertinent to Mendip in terms of its future strategy for retail and town centres. 2.16 There was criticism of the RSS failure to provide guidance on the overall quantum of floorspace required for retail and other town centre uses across the region and advice on the competitive relationship between town and city centres. Whilst it is unlikely that such guidance will ever come forward, it is good practice to consider these relationships.

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2.17 Thus, in this study we will seek to address this point by not looking at Mendip in isolation but take into account the role of its centres and those surrounding within the context of future retail development requirements and the wider regional network of centres.

Somerset Structure Plan 2.18 The current Structure Plan guidance covering Mendip is the Somerset and Exmoor National Park Joint Structure Plan Review (hereon in referred to as the Structure Plan), which was adopted in October 1991 and runs to 2011. 2.19 As part of the changes outlined in the Planning and Compulsory Purchase Act 2004, Structure Plans are to be replaced by the Regional Spatial Strategies as noted above. However as the new RSS is yet to be formally adopted, and the existing RPG does not pay sufficient consideration to some land use policy areas, the Structure Plan remains a statutory policy document. Under the changes outlined in the Planning and Compulsory Purchase Act Structure Plans were to cease validity on 27th September 2007, however all policies in the Structure Plan have been „saved‟ beyond this date following a Secretary of State direction. 2.20 The Structure Plan highlights the significance of the shopping and town centres to the Somerset economy, the key objectives relating to town centres and retailing are: . to secure the long term future of town centres by maintaining, enhancing and promoting them as principal areas for general retail activity; and . to maintain accessibility to retail facilities for all sections of the population. 2.21 Policy 20 – the retail framework states that: „Retail development should be well related to settlements. The overall scale of retail facilities in, or adjacent to, any particular settlement should be commensurate with the strategic importance attributed to that settlement by the strategic policies of the plan. In providing for development which has the potential to create change in the pattern of shopping centres, the vitality and viability of existing town and local centres, including centres providing local shopping facilities in rural areas, should be prime considerations‟. 2.22 The Structure Plan policy advocates a sequential approach to planning for retail facilities; maintenance and enhancement of centres‟ roles within the settlement hierarchy; and support of retail facilities in rural areas.

Mendip Local Plan 2.23 The Mendip Local Plan was adopted in 2002. As part of the changes outlined in the Planning and Compulsory Purchase Act 2004 Local Plans are to be replaced by Local Development Frameworks. During the transitory period it has been agreed with the Secretary of State that certain policies are „saved‟ and so still relevant to the planning process. 2.24 There are seven saved policies in relation to town centre vitality. These are governed by the objectives to:

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. Promote town centre vitality through strengthening the shopping function, ensuring high quality development in the town centre and preventing development which will compete with town centre investment . Build upon the town centres‟ identity, built character and environment, tourism profile, community and leisure uses and evening economy . Ensure that adequate provision is made for anticipated new development and a framework for dealing with unexpected opportunities 2.25 To this end the policies generally aim to protect and enhance and protect the primary shopping areas in Frome, Wells, Street, Glastonbury and Shepton Mallet and village centres elsewhere. All of the Mendip policies have been saved in relation to Town Centre uses.

Emerging Mendip LDF 2.26 New plan documents are being prepared for the Mendip Local Development Framework 2006-2031. The content and timetable for preparing the Mendip Local Development Framework 2006-2031 are included in the Local Development Scheme (LDS). 2.27 The Core Strategy is under production, the RLS will be used to inform preparation of town centre and site selection policies.

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3 TOWN CENTRE PERFORMANCE ASSESSMENT

3.28 This section of the report summarises the current strengths, weaknesses and qualitative issues for the five main town centres in Mendip. Full health checks are presented in the Volume 3 Report (separate volume). To support the detailed health checks, fieldwork, consultation, town centre surveys and health check data for each of the five study town centres have been collated as part of a detailed data gathering exercise. Frome Town Centre

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Summary Performance Assessment of Frome

Context 3.1 Frome is the largest of the Mendip towns. The town features steep sided roads and streets within the valley of the River Frome. Much of the town centre is of a Medieval market town, comprising a large number of listed buildings. More recent modern additions to the town include the two precincts of Westway and Kingsway which correspond to a period of sustained growth over the last 50 years which have seen a doubling of the town‟s population to circa 26,000. 3.2 Frome is thought by many to have functional relationships with the West Wiltshire towns and Bath, more than it does with the other principle settlements within Mendip. However, the town does serve a rural hinterland of Mendip residents to the south and west of Frome.

Strengths and Weaknesses

Strengths Weaknesses . Historic character of the town centre . Traffic and congestion are a major problem and . Wide range of shops for the size of the are of concern for residents/stakeholders town . Bus stops a key issue . Good range of markets . Hilly nature is difficult for people with a . Strong convenience offer in the town centre disability to navigate . Excellent opportunity to boost town centre . Under provision of eating and drinking trade through development of employment establishments – weak evening economy and retail space at Saxonvale . Town could benefit from being more of a . Good provision of pedestrianised shopping destination areas . Struggling and dated Westway and Kingsway . Good transport connections by bus and rail precincts . Community events and performance centre . Poor use of the riverside area/setting . Artisan image of a creative town . Vacant Saxonvale site adjacent to the town centre – number of issues to be resolved - . Adequate parking close to the town centre undermining deliverability . Local community perception of shabby and unkempt town centre . Under-representation of high street stores to balance independents – little opportunity until redevelopment of Saxonvale

Role and Function 3.3 Overall the town performs a role for service provision, convenience retailing and lower and middle order comparison retailing for both local residents and the wider rural area. It is recognised that there is competition with Trowbridge, Westbury and Warminster and

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that reciprocal flows of spending by residents of these towns occurs. Indeed the town has a subservient relationship with Bath where many commuters leave Frome for work purposes and residents seek to undertake higher order shopping in Bath.

Impact of the Recession 3.4 As a whole, Frome appears to have weathered the recession to date relatively well. As described, vacancy levels are slightly lower than they were during the last health check (2005) and although 29 units are vacant, the small unit sizes in the town centre means that vacant floorspace is slightly below the national average (as of February 2010). Commercial property owners and agents have suffered the most during the recession and consultations indicate that demand for retail space is limited, with prospective tenants negotiating hard to secure cheap deals. Agents commented that it is the secondary and tertiary locations (such as Kingsway and Bath Street) in Frome that have suffered the most with significant reductions in rental values and general lack of interest from new retailers – agents reported that vacant units are taking longer to let. The Saxonvale development has remained undeveloped, although the outline masterplan was submitted in April 2008. The credit crunch and subsequent recession have been being significant factors alongside ongoing refinement of the overall design. 3.5 While the UK economy officially emerged from recession in January 2010 there are a number of factors that may yet threaten the recovery of the High Street. Buoyancy of consumer spending will be important for recovery but the following factors are likely to squeeze retail spending: . Forthcoming rise in the rate of VAT . Possible rise in unemployment . Rising inflation and potential rise in interest rates . Tight availability of credit . Low pay rises . Uncertain residential property market . Continued rise in e-tailing (online retail purchases) 3.6 Under such conditions it is possible that trading will struggle both locally and nationally in the coming months and years. Furthermore, a longer recovery will increase the gap between successful and unsuccessful retailers and may introduce a void between primary and secondary shopping locations.

Frome Neighbourhood Centres 3.7 There are four clusters of shops and services outside of the town centre which the district council consulted upon as areas where suburban residents may be better able to access day to day needs. The aim was for these locations to be improved over time as clusters of commercial and public activity to meet, for example, everyday shopping needs, access points for public transport, cashpoint services and some types of public services, such as healthcare.

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3.8 These are considered below with an assessment of their potential to be enhanced into „Local Centres‟ as defined in PPS4.

Badox/Broadway 3.9 Badox/Broadway is the largest of the potential Local Centres and is situated adjacent and west of Frome town centre. Badox/Broadway features 25-30 small units which predominantly comprise A1 convenience and service uses including a café, two pubs and several take-aways. The health check revealed that the neighbourhood centre has a good quality butcher, a bakers, newsagents and hairdressers with a limited number of comparison retailers (antiques, haberdashery, auto supplies). 3.10 Badox/Broadway although very close to the town centre clearly provides a local convenience and amenity role for nearby residents and the steep descent down Catherine Street into the town centre acts as somewhat of a barrier, ensuring vitality and viability is upheld. Figure 3.1 Photo Images of Badox/Broadway Neighbourhood Centre

3.11 While the neighbourhood centre does not have a post office or pharmacy it does appear to have a good range of local convenience and service uses serving a local catchment. On this basis it does already appear to be performing the role of a Local Centre as defined in PPS4. The future policy direction and role of all neighbourhood centres is considered further in the Strategy and Recommendations Section.

Tesco Express off Stonebridge Drive 3.12 This potential Local Centre (PPS4 defined) is anchored by a small Tesco Express with three other small retail units comprising; a fish and chips take-away, florist and pharmacy. The centre is close to the sports centre and nearby public open space as wells as footpaths and public transport.

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3.13 Whether the centre currently comprises a Local Centre is questionable. There is a limited range of retail units and floorspace, however the Tesco will sell a variety of convenience products to meet daily needs. Ideally the centre would also include additional services (such as health centre), hairdressers and post office. The initial health check identified limited or no opportunities to expanding this neighbourhood centre.

Rodden Road and Berkley Road 3.14 This small centre surrounds the junction of Rodden Road and Berkley Road and includes a McColls newsagents and off-licence, NHS dental surgery and veterinary surgery. Nearby there is substantial open space at Fromefield and the centre is near to the community hospital, the proposed Frome Central GP surgery and Selwood School. Berkley Road is a popular through route connecting Frome to the A361 bypass. Figure 3.2 Photo image of Rodden Road/Berkley Road

3.15 The centre offers very little to support daily shopping needs and as such it does not currently fulfil the role of a Local Centre (PPS4 definition). There is limited opportunity for expanding the number of shops and it will be difficult to influence the type of retailer should new opportunities arise.

Culverhill/Lower Keyford 3.16 Culverhill/Lower Keyford is located to the south of Frome and is east of Wessex Fields Retail Park. It comprises a solitary Co-op convenience store and is on a main public transport bus route with nearby open space. It is difficult to see how this location could fulfil the role of a local centre given the lack of convenience and service provision at present and no obvious opportunity to expand further. It is noted that there is a small concrete area of land to the right of the food store which is currently used for parking and deliveries.

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Figure 3.3 Photo Image of Culverhill/Lower Keyford

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Wells

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Summary Performance Assessment of Wells

Context 3.17 Well known as England‟s smallest city, Wells is a popular visitor centre with the grand cathedral providing an impressive backdrop. The ecclesiastical history of the city dates back to the 8th century and Wells‟ lengthy history is evident in the fabric of the centre. As such, Wells is established as a tourist destination; the city centre‟s retail offer is correspondingly attractive to visitors.

Strengths and Weaknesses

Strengths Weaknesses . Good mix of national and independent . Lack of choice regarding convenience offer occupiers . Congestion through city centre, in particular HGVs . Strong comparison offer . Poor quality buildings on entrance to the city . Strong visitor economy centre from Priory Road . Good evening economy . Historic built environment imposes constraints on . Quality built environment and strong the ability to adapt retail space for a wide range of cathedral city identity operators . Several regeneration opportunities . Well patronised and thriving market

Role and Function 3.18 Wells‟ role is dominated by the centre‟s cathedral city identity and the tourism that this attracts. However, it is evident that the city centre still plays a significant role serving a resident population with a strong financial and professional sector, a Post Office, hairdressers and travel agents. In this respect the convenience offer is currently somewhat lacking.

Impact of the Recession 3.19 Consultations with commercial agents indicate that demand in Wells has dipped in line with the national trend; however, the level of demand has remained significantly high compared with other centres. The most imposing evidence of the recession in the city centre was the vacant Woolworths on the High Street although this has now been taken up by a discount goods retailer, solidifying the view that Wells‟ retail sector has escaped relatively unscathed by the recession. With only seven vacant units compared to eleven in 2005, this is further evidence that Wells has remained a strong centre through the recession.

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Shepton Mallet

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Summary Performance Assessment of Shepton Mallet

Context 3.20 Shepton Mallet is a market town that historically would have served the many smaller villages surrounding the town. In recent years Shepton Mallet has had mixed fortunes and in 2005 was described as having „a limited range of retail and service uses for a centre of its size.1‟ Since then the town centre has seen the significant Townsend Retail Park development at the redundant Huntsman and Griggs site, to the south of the town centre. 3.21 The town itself is the smallest of Mendip‟s centres; however, the town has a strong community and in recognition of the challenges it faces, a regeneration partnership, Shepton 21, as well as a 45 member strong Chamber of Commerce are very active within the town centre.

Strengths and Weaknesses

Strengths Weaknesses . Historic character of the town centre . Long term vacancies . Strong community . Poor retail offer and evening economy . Declining street market being addressed . Lack of identity . Potential of Academy building to bring . Poor environmental quality as a result of long vibrancy to the town centre term vacancies and poor maintenance . Few national multiples within the town centre . Poor public transport to the town centre . Relocation of foodstore and associated retail units have had limited impact on town centre footfall

Role and Function 3.22 Shepton Mallet‟s town centre offer is dominated by financial and professional services. These, and a number of hairdressers, opticians and the Post Office, position Shepton Mallet well as a local service centre. The town centre‟s limited convenience offer, especially from independents, does not support this role. Shepton Mallet does not operate as a leisure retail destination and as such loses trade to other Mendip town centres, in particular Wells.

Impact of the Recession 3.23 Shepton Mallet‟s retail offer was in decline prior to the recession and it would appear that little has changed in the town centre since then. The number of vacancies is one less but

1 Mendip Retail and Town Centre Uses Study Revised Edition, August 2006, NLP

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it is clear that there are a good number of long term vacancies that the recession will not have done anything to help.

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Street Including Clarks Village

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Summary Performance Assessment of Street and Clarks Village

Context

3.24 Street was a farming community until the 19th century, however, during the 19th century the Clark family developed tanning, sheepskin rug-making and shoe-making in Street. Street owes much of its built development to the Clark family of shoe makers. Their first factory building opened in 1829 followed by a period of rapid expansion. 3.25 However since during the late 1980s shoe production declined and then in response to global pressures was moved to the Far East. This decline had a considerable effect on the local economy. The Clarks‟ business in Street is now confined to its headquarters, along with stock storage and distribution which is largely concerned with distributing imported shoes. During the 1990s the former Clarks‟ premises were regenerated into a discount shopping outlet village (Clarks Village) which has become popular as a sub- regional shopping destination.

Strengths and weaknesses

Strengths Weaknesses . Clarks Village is a visitor destination, . Limited development opportunities attracting from a wide catchment, bringing . Dated shopping environment at the Crispin people into the area Centre . Potential for centre to capture some of the . Lack of choice in centre for convenience visitor spend provision . Pleasant and level shopping environment, . Lack of choice in terms of eating with easy access within both the centre and establishments within both the centre and Clarks Village Clarks Village . Strong comparison offer for size of the place . Clarks Village is closed outside shopping plus the additional offer at Clarks Village hours, creating a large dead area, with no evening activity . Largely a car borne destination

Role and Function 3.26 Street is a local service centre providing for the day to day needs of the local community. Clarks Village has a wide catchment area, bringing visitors to the area and whilst its offer is limited in terms of the individual range of goods within shops as the majority of premises are discount outlets, it provides an offer the local community would normally have had to travel to a higher order centre to access. This is to the benefit of residents on the eastern side of the Mendip district and to those in adjoining areas. 3.27 Street, Clarks Village and the close neighbouring town of Glastonbury perform complementary, rather than competing roles with each other. They serve different markets and perform different roles, but their proximity mean that local residents and visitors have a wide range and choice for their shopping and service needs.

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Clarks Village Catchment 3.28 Clarks Village serves a far wider catchment than the study area considered within this report. To help understand the catchment for Clarks Village, data obtained from surveys undertaken in the Village, on behalf of its operator Realm, over the Easter week in 2010 have been mapped. Figure 3.6 shows the extent of visitors numbers from across the country during this period and the drive times of these visitors. 3.29 Of note, it can be seen that the majority of visitors have their origins within the South West mainly within a two hour drive time of the Village. This suggests that during this period a large proportion of visitors were on day trips, rather than staying visitors. 3.30 The data suggests that whilst Clarks Village is a regional attraction attracting people from across the region and beyond, the majority of its catchment is sub regionally based in Somerset. Streets centre does capture some of the visitor spend attracted by Clarks Village. Figure 3.4 Map of Clarks Village Customer Survey Catchment, Easter 2010

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Impact of the Recession 3.31 The centre and Clarks Village have performed well during the economic down turn. Despite a number of shops going out of business, including national chains with representation at Clarks Village, there has been no impact on demand for units when they have become available within the Village. In Street the vacancy levels have only gone up by two units and whilst consultations with local agents have suggested little commercial interest, and a reduction in rental levels when transactions have occurred, this is common to most centres and is not unusual in the current climate.

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Glastonbury

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Summary Performance Assessment of Glastonbury

Context 3.32 Glastonbury has a population of around 9,000 people. The town centre comprises a historic core, which includes Glastonbury Abbey and many grade I and II listed buildings of medieval origin. Glastonbury is one of the more deprived parts of Somerset and has relatively higher levels of unemployment with pockets of deprivation within the 10% most deprived areas in England. There is an acute need for affordable housing and the area is also home to a significant gypsy and traveller community2. The settlement itself is somewhat constrained with limited development opportunities due to environmental landscape designations and floodplain restrictions. 3.33 The town centre itself is dominated by independent traders and „alternative‟ shops but largely remains healthy and benefits from a strong national and international tourist draw. The visitor economy supports a significant retail employment base.

Strengths and Weaknesses Strengths Weaknesses . Historic character of the town centre . Large rise in gift and tourist serving retailers . Large quantity of units for size of the town – reliance on this industry . Large retail employment serving the visitor . Morrisons dominates the convenience offer economy . Under-representation of high street stores . Unique offer and strong demand from to balance the niche and alternative gift independent retailers offer . Very low vacancy rate . Clarks Village dampens opportunities to improve the A1 comparison offer in the . Improving quality of A3 cafes, restaurants and town tea rooms . International reputation . Good parking close to the town centre . Many landscape and heritage/ recreation attractions

Role and Function 3.34 As a smaller centre, Glastonbury provides mainly for local needs and the tourist market, although there is scope to improve the local amenity retailing and danger of over- dominance of the specialist/gift retailers. In addition strong competition from nearby Wells and Clarks Village and a lack of larger retail units in the town mean that there is unlikely to be demand from national retailers. The town has clearly evolved to avoid competing with

2 MDC (2008) A Portrait of Glastonbury: Time to Plan. And NHS Somerset (2009) Joint Needs Assessment Glastonbury and Street.

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the comparison offer at Clarks Village and continues to play to its strengths through development of its cultural and spiritual aspects, complementing the built environment and heritage attractions both in and around the town. 3.35 As a result, Glastonbury caters largely for non-local visitors and at present the trend points to a continued increase in this type of retailing in the town. Whilst this is an important role for the town, there is potential through the typical churn of retailers in the town that gift and alternative shops will come to further dominate the town centre with a detrimental impact on its amenity for local residents.

Impact of the Recession 3.36 While the low vacancy rate suggests that the town has weathered the recession reasonably well, consultations indicate a mixed view of the town‟s vitality through the difficult financial period. The Chamber of Commerce indicated that many local retailers have suffered significant trade reductions as a result of the recession and that the dominance of gift offer has compounded the impact as customers cut back on non- essential and luxury spending. Conversely agents in the town have reported a limited impact with few retail business losses and continuation of demand for prime Zone A floorspace on the High Street. This may reflect a situation where the many long term and independent retailers are struggling through the difficult times as their business reflects their livelihood and many years of hard work. 3.37 The former Woolworths store which remained vacant for a period is now understood to have been occupied.

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4 CURRENT PATTERNS OF RETAIL SPENDING

4.1 The starting point for considering future retail trends and needs is to establish current patterns of trade. Retail and leisure spending patterns are influenced by a number of factors including social and demographic profile of the catchment, levels of prosperity and deprivation, disposable income, choice of the retail offer, quality of the shopping experience, access to transport (car ownership locally is very high) and work patterns.

Household Survey Methodology

4.2 The assessment of current patterns of retail and leisure spending is based on a telephone survey of 800 households undertaken by NEMS Market Research in February/March 2010. The survey area is presented in Figure 4.1 and covers eight zones and an area extending beyond the boundary of Mendip District into areas of Wiltshire, BANES and South Somerset. At the study inception stage it was thought that this reflected the likely catchment of the main towns of Mendip, however in reality the survey catchment balances a need to ensure a statistically robust sample within the scope of 800 interviews. 4.3 The results have been weighted according to the population in each zone to ensure the correct emphasis is given to the respective study zones. The survey approach is a widely accepted method for this type kind of primary research. The survey was aimed at shopping and other leisure activities. The survey questionnaire sought to establish: . Patterns of convenience goods spending, based on the location of:  The shop where the household spends most money on food and groceries and the amount spent per week (questions 1, 2 and 3)  The shop where the household undertakes most „top-up‟ food and groceries purchases and the amount spent per week (questions 4 and 5)  Spending on food and groceries in small shops in town and village centres (questions 6, 7 and 8). . Patterns of comparison goods spending, based on the locations of the last two purchases of:  Clothing and footwear (questions 9 and 10)  Furniture, carpets or soft household furnishings (questions 11 and 12)  DIY and decorating goods (questions 13 and 14)  Electrical Items and Domestic appliances such as washing machines, fridges, TVs, DVD players or digital cameras (questions 15 and 16)  Health beauty and chemist items (questions 17 and 18)  Recreational goods such as sports equipment, musical instruments, toys etc (questions 18 and 20)  Specialist items such as books, DVDs, jewellery, photographic goods (questions 21 and 22).

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. The proportion of the household‟s total spending on non-food goods that is accounted for by:  The internet  Paper catalogues, and  TV interactive shopping. . Patterns of spending on leisure services based on the locations where the household spends most money on:  Restaurants/cafés;  Pubs/bars/nightclubs;  Cinema  Museums and art galleries;  Family entertainment centres, such as ten pin bowling, skating and so on;  Health and fitness;  Gambling – casino/bingo/bookmaker; and  Theatre/concerts. 4.4 The survey area population in 2010, disaggregated by ward and zone, is shown in Table 1 (Volume 2 report). The overall population in the 2010 base year amounts to approximately 230,500 people, of which around 110,000 reside within Mendip District (zones 1-4).

Composite Weightings 4.5 In order to present a complete set of spending patterns for convenience and comparison spending, it is necessary to aggregate the component parts of the survey using weightings in order to assemble a composite for all convenience spend and all comparison (non-food) spend. 4.6 The composite pattern of spending for convenience goods was achieved on the basis of the mean weekly household spend, as follows: Table 4.1 Composite Pattern of Convenience Spend

Mean Household Spend Percentage Weighting Main Food & Groceries £70.05 78.4% Top-up Food & Groceries £15.46 17.3% Small Local Shops £3.84 4.3% All Convenience Goods £89.35 100.0% Source: NEMS Household Survey, February/March 2010.

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Mendip Town Centres Study Final Report Figure 4.1 Study/Survey Area Zone Map

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4.7 The composite pattern of spending for comparison goods was achieved on the basis of MapInfo expenditure data in relation to five categories of spend, as follows: Table 4.2 Composite Pattern of Comparison Goods Spend % Weighting Clothing and footwear 22.8% Furniture, carpets and soft furnishings 11.9% Hardware and DIY 9.2% Electrical items & domestic appliances 16.6% Health, beauty or chemist items 12.4% Recreation, Sport and Leisure Goods 17.5% Specialist Items (books, CDs, jewellery, gifts, china, glass) 9.6% All comparison goods 100.0% Source: MapInfo Retail Expenditure Data (2007) for Zones 1 to 8 of the Mendip Town Centres Study.

Convenience Expenditure

4.8 The per capita average spend per annum on retail goods in 2010 is £1,702 for the study area as a whole. This compares to a slightly higher UK average of £1,798 per annum. There is deviation between the study zones, with Zone 7 (Westbury and Warminster) having the highest spend per head of £1,767 per annum and Zone 8 (South Somerset) having the lowest at £1,635 per head, per annum. 4.9 The total amount of convenience goods spending for Mendip residents in 2010 is £184m (Table 10, Volume 2 report). The household survey estimates that there is £1.5m (or 1 per cent) of expenditure attributable to SFT. 4.10 The pattern of expenditure flows for the convenience goods sector as a whole, as revealed by the survey of households, is set out in Tables 11a and 11b (Volume 2). These are the spreadsheets upon which current patterns of convenience expenditure are described.

Market Shares and Turnover Estimates for the Centres and Foodstores 4.11 Figure 4.2 illustrates the hierarchy of foodstores and town centres with regards to convenience goods trading, estimating the store/centre turnover based upon the market shares from the survey of households. 4.12 The dominant store within Mendip is the ASDA at Frome (out-of-centre). However as the graph shows, there is healthy competition in the convenience sector with seven stores competing turning over between £20m and £28m (market shares of 5 to 7 per cent). SFT and leakage outside of Mendip is relatively limited. 4.13 It is important to note that the majority of convenience goods expenditure directed to the town centres are largely attributed to the national operators which have in-centre foodstores. For Wells City Centre, £21m is apportioned to the Tesco on Tucker Street (listed in Figure 4.2 separately) with £4m residual identified in smaller town centre stores plus the Co-op on the High Street (£0.5m). For Street, the same applies to the Tesco Metro in the Crispin Centre which accounts for £11m of the town centre‟s £12m

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convenience goods expenditure. For Frome, M&S are thought to account for 50 per cent of the town centre‟s food shopping with the other 50 per cent going to the Somerfield (which was trading at the time of the survey but has since closed), Iceland and town centre independent stores. Figure 4.2 Graph of Estimated Town Centre and Out of Centre Foodstore Turnovers – descending order (Mendip area only)

Localised Retention of Convenience Goods 4.14 It is important to consider the local pattern of spending on convenience goods in order to identify where deficiencies lie or where there are particular monopoly issues. Consideration of each zone is based upon the localised convenience goods retention rate – which is the proportion of expenditure on convenience goods available to residents in a specific zone which is spent in town centres and stores within that zone. 4.15 The localised retention rates are set out in Figure 4.3 and identify that local retention is particularly high in Zones 1 (Street and Glastonbury) and Zone 4 (Frome). Conversely Zone 2 (Wells) and Zone 3 (Shepton Mallet) show leakage to the supermarkets in Zone 1 (Street and Glastonbury) and Zone 4 (Frome) respectively.

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Figure 4.3 Localised Retention Rate for Convenience Goods

4.16 There are two stores within the study area which have a dominant foodstore for local shopping patterns, these are: Tesco in Wells which attains 51 per cent of local Zone 2 resident expenditure and Tesco at the Townsend Retail Park, Shepton Mallet which attains 46 per cent of local Zone 3 expenditure. The dominant market share of Tesco in Wells and comparatively low localised retention rate for Zone 2 indicates that residents who do not use Tesco are travelling to the Sainsbury‟s at Street, Morrisons at Glastonbury and Tesco at Shepton Mallet for their convenience shopping needs. This illustrates a lack of competition at the local level. Shepton Mallet is in a similar position with one dominant store and limited local competition; resulting in a lower localised retention rate due to 39 per cent of food shopping being undertaken in other zones, notably the ASDA and Sainsbury‟s in Frome and Tesco‟s in Paulton (some 11 miles away).

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Comparison Expenditure

4.17 The total amount of comparison goods spending for Mendip area residents in 2010 is £321m3 (Table 5, Volume 2). Table 4.3 below, shows that 55 per cent of this (£175m) is retained in centres and retail outlets within Mendip. With regards to leaked expenditure, 6 per cent is directed to locations in the outlying survey zones (zones 5-8), a further 25 per cent to destinations outside the study area and 13 per cent on Special Forms of Trading (mainly internet shopping -here after referred to as SFT). Table 4.3 Headline Breakdown of Comparison Goods Expenditure, 2010

% £m Retained Expenditure (MDC Zones 1-4) 54.5 175.3 Leaked Expenditure to Zones 5-8 6.3 20.4 Trowbridge Town Centre 2.9 9.2 Midsomer Norton Town Centre 1.0 3.2 Warminster Town Centre 0.3 1.0 Westbury Town Centre 0.2 0.5 Leaked Expenditure – Locations outside study area 25.3 81.2 Bath City Centre 7.3 23.3 Yeovil Town Centre 4.1 13.3 Bristol City Centre 4.0 12.8 Cribbs Causeway, Patchway, Bristol 1.6 5.0 Taunton Town Centre 2.2 7.0 Salisbury 1.6 5.3 SFT 13.9 44.6

4.18 Detailed patterns of expenditure for the comparison goods sector as a whole, as revealed by the survey of households, is set out in Tables 6a and 6b in the Volume 2 report. In describing current patterns of comparison shopping, we focus on both of these tables.

Market Shares and Turnover Estimates for the Centres 4.19 The estimated comparison goods turnovers of the centres and major free standing stores, plus leaked expenditure are set out in the final column of Table 6b (Volume 2) and are summarised in Figure 4.4.

3 Derived from the NEMS Household Survey, February/March 2010.

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Figure 4.4 Graph of Estimated Centre & Store Turnovers for Comparison Goods

Source: NEMS Survey of Households 2010 and MapInfo Retail Expenditure Data (2007).

4.20 Figure 4.4 illustrates that Frome is the dominant town centre within Mendip. It should be noted that Street and Clarks Village when considered together has an estimated trade draw of £48.8m from study area residents – similar to that of Frome town centre. Below these two key towns, there is strong competition amongst all of the centres and freestanding stores.

Market Shares by Zone and Town 4.21 For the Mendip study zones (zones 1 to 4), the comparison goods expenditure retention (within the total study area) is as follows: . Zone 1 (Street and Glastonbury) = 62 per cent retention . Zone 2 (Wells) = 56 per cent retention . Zone 3 (Shepton Mallet) = 59 per cent retention . Zone 4 (Frome) = 65 per cent retention

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Table 4.4 Comparison Goods Market Shares of the Mendip Towns Top 3 Market Shares Total Mendip Town Centres Market 1 2 3 Share* Street Town Centre (within Zone 1) Zone 1 (19.7%) Zone 2 (2.4%) Zone 3 (1.2%) 5.7% Glastonbury Town Centre (within Zone 1) Zone 1 (10.8%) Zone 2 (2.8%) Zone 8 (0.9%) 3.4% Wells City Centre (within Zone 2) Zone 2 (21.7%) Zone 3 (3.8%) Zone 1 (2.0%) 5.9% Shepton Mallet Town Centre (within Zone 3) Zone 3 (15.5%) Zone 2 (5.6%) Zone 1 (4.4%) 6.3% Frome Town Centre (within Zone 4) Zone 4 (36.7%) Zone 3 (4.9%) Zone 7 (3.7%) 12.6%

Notes: * Market share of Mendip zones 1-4. 4.22 Table 4.4 summarises findings from the household survey on the market shares for each of the Mendip town centres. For example for Street town centre, Zone 1 residents (the zone for Street and Glastonbury) undertake 19.7 per cent of their comparison goods expenditure in Street town centre. However the survey data illustrates that residents of other zones across the study area direct relatively minor amounts of their spend to Street town centre – the second highest market share coming from Zone 2 (Wells) at only 2.4 per cent of their expenditure. 4.23 This pattern of „drop-off‟, whereby relatively little spend is attracted from other zones is seen across the district. All the town centres in Table 4.4 show a reasonable level of expenditure from residents in the same local zone but very little spend coming from other zones. This is in part a factor of the zones being centred upon the key towns and also because the towns are comparable in size and offer with no outright higher order centre to dominate the pattern of retail spending. Frome has the highest level of self containment of spend on comparison goods at 37 per cent. 4.24 A number of centres outside of Mendip District also attain significant market shares. One of which is Trowbridge town centre. Trowbridge town centre attains 10 per cent market share from the whole study area and within Zone 6, local residents undertake 41 per cent of their comparison goods shopping in Trowbridge. Bath is the second most significant destination for Mendip residents, attaining 7 per cent total market share.

Comparison Goods Sub-sectors 4.25 Here the report explains the pattern of shopping for various comparison goods sub- sectors. These are set out in detail in Tables 7a to 7m in Volume 2. Headline outputs of the sub-sectors indicate the following: . Clothing and footwear account for £73m of Mendip area expenditure, 41 per cent is directed to stores and centres within Mendip (£30m), with 5 per cent to the outer zones (zones 5-8). 42 per cent is attributed to leakage, mainly to Bath City Centre with 12 per cent on SFT . Furniture, carpets and soft household furnishings accounts for £38m of the comparison goods spending of Mendip area residents. The pattern of spend is very dispersed, however 52 per cent is retained within Mendip. Bristol, Bath and Trowbridge accounts for the most leakage

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. DIY and decorating goods accounts for 9 per cent of comparison goods spend (£30m) and a relatively healthy 83 per cent of this is retained within the Mendip district . Electrical items and domestic appliances comprise 17 per cent of expenditure (£53.3m). The highest market share is attributed to Frome town centre (13 per cent), however spend is relatively dispersed across the town centres within and around the study area . SFT accounts for a significant 21 per cent of this sub-category . Health, beauty and chemist items attract 12 per cent or £40m of expenditure. Resident spend in this category is largely in local towns and centres with limited leakage or SFT . Recreation, sport and leisure goods is the second largest sub-category behind clothing and footwear. £56m is spent, only 45 per cent is retained within Mendip, with 5per cent to outlying zones 5 to 8, 29 per cent leakage and 21 per cent on SFT . The final category is specialist items, such as books, CDs, jewellery and gifts, on which residents are thought to spend £31m or 10 per cent of their comparison goods purchases. 51 per cent is retained within Mendip. The most significant destination is SFT which accounts for 29 per cent of spend. 4.26 Table 4.5 sets out a summary of the spending patterns for the sub-categories and a number of key points can be drawn. Frome is the most dominant but not by a significant margin. Wells, Street, Shepton Mallet and Clarks Village all fulfil prominent roles for certain types of goods, for example furniture at Shepton Mallet, Clothing at Clarks Village and DIY at the retail parks. Notably SFT attains the highest market share of any destination for three of the seven sub-categories: Electrical items & domestic appliances; recreation, sport and leisure goods; and specialist items.

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Mendip Town Centres Study Final Report Table 4.5 Summary of key locations, retention leakage and inflows by comparison goods sub-sectors Available Mendip Top 3 Destinations Retention Inflow Top Resident within Mendip Area (Market Share) Rate from Leakage Expenditure (Mendip Zones 5-8 Leakage Destination SFT £m 1 2 3 Area) (£m) (%) (%) (%) Clarks Village Street TC Frome TC Bath CC Clothing & Footwear 73.2 41% £11.2m 47% 12% (15%) (6.5%) (5.6%) (18%)

Shepton Mallet Frome TC Street TC Bristol CC Furniture Carpets and Soft Furnishings 38.1 52% £5.2m 42% 7% TC (14.6%) (12.1%) (10.6%) (10%)

Focus, Wirral Park Frome TC Yeovil TC DIY & Decorating Goods 29.7 Shepton Mallet 83% £4.2m 5% 0.3% (28%) (21%) (0.2%) (7.7%)

Frome TC Shepton Mallet Glastonbury Yeovil TC Electrical Items & Domestic Appliances 53.3 46% £3.8m 18% 11% (12.7%) TC (7.5%) TC (6%) (2.3%)

Frome TC Wells CC Street TC Bath CC Health, beauty or chemist Items 40.0 88% £5.3m 4% 0.6% (20.5%) (14%) (12%) (0.9%)

Frome TC Clarks Village Wells CC Bath CC Recreation, Sport and Leisure Goods 56.1 45% £5.0m 34% 21% (14%) (9%) (5%) (7%)

Specialist Items (books, CDs, Wells TC Frome TC Clarks Village Bath CC 30.8 51% £4.0m 19% 29% Jewellery, Gifts, China, Glass) (13%) (9%) (7%) (6.3%)

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Shopping Linkages with Other Towns and Adjacent Area

West Wiltshire 4.27 Zone 4 residents (Frome) spend around 49 per cent of their available comparison goods expenditure in their resident Zone 4, with Frome town centre attracting a healthy 37 per cent of this market share. The primary leakage is to Bath (13 per cent) but Zone 4 residents also spend 9 per cent in Trowbridge town centre. Spending directed to Westbury and Warminster is relatively minor, attracting 1 per cent and 0.5 per cent respectively. While this is the average for all comparison goods, it is clear that Trowbridge attracts more spend for particular retailing sub-categories, these are: . Clothing – 11 per cent market share (from Zone 4 Frome residents) . Furniture – 13 per cent market share . DIY – 7 per cent in Bradley Road B&Q (Trowbridge) and 8 per cent in Trowbridge town centre . Domestic appliances – 13 per cent in Trowbridge town centre and 8 per cent in Bradley Road B&Q (Trowbridge) 4.28 The outlying Zone 7 (Trowbridge residents) spend a much greater proportion of their comparison goods expenditure in their local zone (64 per cent) compared to their counterparts in Mendip‟s Zone 4. In total, the flow of Zone 7 spend into Mendip is 11 per cent with 9 per cent being directed to Zone 4 (4 per cent to Frome town centre, the rest to the out of centre supermarkets). When considering Mendip as a whole, £13.6m is leaked to Zones 6 and 7 and £16.9 of inflow is recorded from Zones 6 and & into Mendip giving a net flow of +£3.3m to Mendip. It is thought that this net inflow of spend to Mendip is due to the greater spending power in Zones 6 and 7 (totalling £219m), compared to just £98m in Zone 4, which borders Wiltshire.

Street/Glastonbury & Sedgemoor 4.29 Street and Glastonbury residents in Zone 1 exhibit very limited spending to locations in Sedgemoor, with no notable shopping spend in Sedgemoor identified through the household survey. Some expenditure is made in Weston-super-Mare (North Somerset), although this is less than 1 per cent. Residents of Wells however make trips to Weston- super-Mare for around 5 per cent of expenditure, slightly more than they spend at Cribbs Causeway near Bristol. 4.30 RTP‟s survey of spending patterns for Sedgemoor4 residents highlighted that notable flows of expenditure come from Sedgemoor into the Mendip locations of Street, Clarks Village and Wells. £11.8m of inflow was recorded from Sedgemoor residents into Clarks Village, with a further £4.7m to Street. Wells also attracts £5.1m in comparison goods spending from Sedgemoor residents, mainly those residing near to the Sedgemoor/Mendip boundary.

4 RTP (2009) Sedgemoor Retail Study.

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Shepton, Wells and Radstock/Midsomer Norton Triangle 4.31 Despite a perception that there may be flows of retail expenditure within this triangle, there is a relatively limited connection. Residents of Zone 5 (Radstock an Midsomer Norton) only spend 10 per cent of retail purchases in Mendip, with only 2 per cent directed to both Wells and Shepton and 2 per cent also to Clarks Village. Zone 5 residents look primarily to their own town centres for 34 per cent of spend, with Bath, Bristol and Longwell Green retail park (Bristol) being the dominant destinations of influence for non- local spending. Trowbridge has a minor influence; capturing 2 per cent of Zone 5 spend. 4.32 Overall Mendip district residents spend 1 per cent of expenditure in Mindsomer Norton and a minor 0.1 per cent in Radstock. The net flow of spend between Zone 5 and Mendip district is +£4m to Mendip. Patterns of Spend on Leisure Services

4.33 The telephone survey of households also included a number of questions that asked residents where they spent most money in relation to various types of leisure services, as follows: . Restaurants and cafés . Pubs, bars and nightclubs . Cinemas . Museums and art galleries . Family entertainment centres (ie ten pin bowling, skating and so on) . Health and fitness centres . Bingo/casinos/bookmakers, and . Theatres/concerts. 4.34 The most popular destinations for residents of the Mendip survey zones, is set out by category in Table 4.6. Table 4.6 Most Popular Destinations for Expenditure on Leisure Services

Main destination by category of leisure pursuit

Family Bingo, Restaurants Bars/ clubs & Museums & Health & Theatre & Survey zone Cinema entertain- casino & /cafes pubs art galleries fitness concerts ment b‟maker

Zone 1: Street & Street & Street & Yeovil London Taunton Street Yeovil Street Glastonbury Glastonbury Glastonbury

Wells/ Zone 2: Wells Wells Wells Wells London Taunton Wells Bristol W-S-M Zone 3: Shepton Shepton Shepton Wells Bristol Yeovil Shepton Shepton Bristol Mallet Zone 4: Frome Frome Frome Frome London Bristol Frome Frome Frome

Restaurants and Cafes 4.35 Overall 63 per cent of those surveyed claimed to spend money in restaurants and cafes. The household survey reveals that visits to restaurants and cafes are fairly localised, with many residents favouring their nearest local centre.

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Bars, Clubs and Pubs 4.36 Overall, 42 per cent of residents claim to visit pubs, bars and nightclubs, which seems a low proportion of the population. The main pattern of spend is the same as that for restaurants and cafes, where residents favour their local centres.

Cinemas 4.37 The hierarchy of market share is Bath, followed by Yeovil, followed by Bristol, Wells and Frome: . 12 per cent visit Bath most for cinemas . 10 per cent visit Yeovil most . 8 per cent visit Bristol most . 7 per cent visit Wells most . 6 per cent visit Frome most . Additionally, 49 per cent not to visit cinemas at all.

Museums and Art Galleries 4.38 Approximately 66 per cent of residents do not visit museums and art galleries, nevertheless, for those that do, the most popular location is London (10 per cent total market share), followed by Bristol (7 per cent) and Bath (6 per cent). Local museums were generally not identified when people were interviewed.

Family Entertainment 4.39 Overwhelmingly, 70 per cent do not use family entertainment centres such as ten pin bowling alleys, skating rinks and adventure/theme parks etc. However, given that there are few such facilities within the catchment this is not surprising. 4.40 For those that do visit family entertainment centres, the pattern is very dispersed with destinations such as Bristol, Yeovil, Bath, Taunton and Longwell Green (also Bristol) all competing for Mendip‟s market share.

Health and Fitness 4.41 70 per cent do not use health and fitness facilities, however of the 30 per cent that do partake in such activities, the pattern of use/spend is fairly localised, with people visiting facilities nearest to their residence. Wells appears to be the most popular and best equipped place for health and fitness with strong localised retention and significant market shares from Zones 1, 3, and 5.

Bingo, Casino and Bookmakers 4.42 96 per cent do not participate in activities which involve gambling. Nevertheless, of the 4 per cent that do participate in such activities, Frome, Bristol and Westbury are the most important locations. Residents will tend to go to the nearest of these centres from their home zone.

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Theatres and Concerts 4.43 50 per cent do not visit theatre or concert halls. However spend is distributed to two main locations outside the study area: Bath (13 per cent) and Bristol (12 per cent). London has the next largest market share of 5 per cent.

Summary: Current Patterns of Retail Spending

Convenience Goods Spending . 88 per cent of convenience goods expenditure is retained within Mendip district. This equates to £162m. . An additional £29m of convenience expenditure flows into Mendip foodstores from the outlying survey zones 5-8. A large proportion of inflow originates from Zone 7 (Westbury and Warminster) and is directed to ASDA and Sainsbury‟s in Frome . 70 percent of convenience goods expenditure is directed toward just seven large superstores within Mendip. All of these stores are operated by the UK‟s four largest food retailers: Tesco, ASDA, J Sainsbury‟s and Morrisons . The two foodstores at Frome (ASDA and Sainsbury‟s) are the more dominant because they attract trade from outside their resident zones and from areas outside Mendip. However they are not overly dominant and there is generally healthy competition between stores . It is important to note that the majority of convenience goods expenditure directed to the town centres is largely attributed to the national operators whom have in-centre foodstores, e.g. the Tesco stores in Wells and Street . The survey findings indicate a deficiency in Wells and Shepton, where despite there being one dominant food superstore in each town, there remains a large proportion of residents who undertake food shopping outside the local area – i.e. while local provision is adequate, lack of competition and choice is resulting in leakage and longer travel for food shopping.

Comparison Goods Spending . Overall, some 55 per cent of the comparison goods expenditure is retained within Mendip. 32 per cent is leaked to other stores and centres and 14 per cent is attributed to SFT . Leakage of spend by Mendip residents tends to be to higher order locations further afield such as Bath, Bristol, Yeovil and Trowbridge. Trowbridge is only really a destination for Zone 4 (Frome) residents . Frome is the dominant town centre within Mendip (£41m) although Street when combined with Clarks Village attracts £38m. Trowbridge only attains a market share of £9m from Mendip residents. Leakage to destinations and stores outside the study area and spend on SFT purchases account for significant amounts of spending. Below these two key towns, there is strong competition amongst all of the centres and freestanding stores – perhaps indicative of the fact that there is no higher order sub- regional centre within or adjacent to the study area Roger Tym & Partners September 2010 42

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. Bath city centre, Clarks Village, Street and Frome town centre are the strongest performing destinations for clothing and footwear purchases for Mendip residents . Inflow of expenditure into Mendip is mainly attributed to zones 7 and 8 (Westbury & Warminster and South Somerset). Total inflow is £39m, or 18 per cent of comparison spend in Mendip.

Leisure Services Spending . Visits to restaurants and cafes are fairly localised, as is use of pubs, bars and club- many residents favour their nearest local centre . In terms of visits to cinemas, the pattern of use is dispersed with locations outside the study area attaining the greatest market share, these are Bath, Yeovil, Bristol, followed by the local independent cinemas in Frome and Wells . There are few dedicated family entertainment facilities such as ten-pin bowling centres, ice rinks and adventure parks etc within the study area. As such, 70 per cent do not visit family entertainment facilities. For those that do, Bristol, Yeovil, Bath, Taunton and Longwell Green (also in Bristol) all compete for Mendip‟s market share . The survey revealed that 50 per cent of residents of the catchment do not visit theatres or concert halls. However, of those that do, spend is distributed to two main locations outside the study area: Bath (13 per cent) and Bristol (12 per cent). London is also important (5 per cent).

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5 QUANTITATIVE AND QUALITATIVE RETAIL NEED

5.1 The report now turns to the assessment of the quantitative and qualitative need likely to arise in the retail sector for the period up to 2021 and, more indicatively, for the further period from 2021 to 2031. It is important to note that longer term projections are more indicative because of the exponential shape of the expenditure growth graph. PPS4 enshrines the need to plan, monitor and manage regularly (typically every 5 years) so that projections are a sound basis on which to make decisions. In undertaking the assessment of retail and leisure needs, the analysis draws closely upon guidance set out in Policy EC1 of PPS4.

Methodology for Assessing Quantitative Retail Need

5.2 The essential steps in the assessment of quantitative retail need are as follows: . Step 1: establish an appropriate catchment area for the town centres being considered, which can be used as a study area for the assessment . Step 2: assess the existing level of population and existing volume of retail expenditure of those resident within the Mendip and any inflow from outlying survey zones (zones 5-8 in the study area), deducting an appropriate proportion for Special Forms of Trading (SFT) . Step 3: apply forecasts of population change and per capita expenditure growth, in order to establish the overall level of projected growth in expenditure for residents of the study area . Step 4: establish where the expenditure of the residents of the study area is currently spent, through use of an empirical survey of households resident in the study area (as described in Section 4), and thereby establish the proportion of expenditure which is currently retained by town centres and freestanding stores located within Mendip district – that is the current retention rate . Step 5: make allowance for „claims‟ on the growth in retained expenditure as a result of:  floorspace efficiency change (that is the growth in turnover for existing retailers within existing floorspace);  commitments to new floorspace (either schemes under construction or extant permissions that would result in additional retail floorspace) . Step 6: make an allowance for under-trading or over-trading in the base year, if this is justified on the basis of current store and town centre performance estimate . Step 7: make an allowance for tourism expenditure in the study area which is directed to comparison and convenience outlets . Step 8: calculate the initial residual expenditure pot which is potentially available to support the development of new retail floorspace under a constant market share scenario (based on steps 2-6 above) and convert this expenditure to floorspace requirements Roger Tym & Partners September 2010 45

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. Step 9: develop alternative scenarios for calculating growth in residual expenditure, including applying sensitivity assessments if appropriate. 5.3 The assessment of quantitative need is set out in Tables 1-12 which are produced in full in the Volume 2 report. These tabulations are referred to within the text to draw out the main findings.

Step 1: Definition of the study area 5.4 The study area was defined on the basis of the approach described in Section 4 of the report, and split into 8 zones based on statistical ward area. All 8 zones are used as the study area for the comparison and convenience goods assessment. The component wards are listed at Table 1 (Volume 2 Report).

Step 2: Existing level of population and expenditure

Population 5.5 The population for each zone is set out in Spreadsheet 2 (Volume 2). Population data and forecasts for zones within Mendip DC (zones 1 to 4) are sourced from POPGROUP forecasts prepared by Dorset CC for Mendip DC in 2009. Ward populations outside Mendip are projected to 2031 using trends at local authority level from the ONS 2006 Sub-national Population Projections. The level of expected population growth in Mendip is the source of potential variance. If the level of population growth is to change, this will impact on longer term retail requirements. However the short to medium term capacity estimates for retail floorspace will remain reasonably reliable, growth assumptions should be re-assessed at the time of the next retail study. 5.6 In 2010, the study catchment population is 230,500, which includes survey areas inside BANES, Wiltshire and South Somerset. This population is forecast/projected to rise to 263,900 by 2031. The 2010 Mendip District population is 109,800 and is forecast to rise by 7 per cent to 117,900 by 2031.

Per capita expenditure 5.7 The zonal per capita expenditure data is supplied by MapInfo for the year 2007 (released in 2010). The data is forecast to the study base year of 2010 and equates to an average spend for the study area of £2,961 per head per annum for comparison goods and £1,702 for convenience.

Step 3: Growth in expenditure and growth in retained expenditure 5.8 The next steps are to apply forecasts of population change and per capita expenditure growth, in order to establish the overall level of projected growth in expenditure for all residents of the study area.

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Table 5.1 Forecast Expenditure Growth Comparison Goods Convenience Goods Forecast Period Annual Avg Growth Rates Annual Avg Growth Rates 2007 - 2010 0.4% -0.3% 2010 - 2016 3.2% 1.0% 2016 - 2021 3.2% 0.8% 2021 - 2026 2.8% 0.9% 2026 - 2031 2.8% 0.9%

5.9 The total existing expenditure in 2010 is the product of the population and the per capita expenditure estimate for that zone. This is shown in Tables 5 and 10 for comparison and convenience expenditure respectively (Volume 2 report). It is necessary to exclude SFT from the expenditure as there is no requirement to provide retail floorspace for such purchases. Table 5.2 notes the estimate for current rates of SFT spending based upon the NEMS household survey. It is demonstrated that Mendip exhibits an above average use of SFT, especially for comparison goods purchases. This is indicative of more limited range and choice of comparison goods offer, common in rural retail catchments. 5.10 In excluding SFT, we have relied on the advice provided by Experian. However, in the convenience sector, we have halved the proportions of expenditure accounted for by SFT so as to reflect the fact that a proportion of the convenience goods bought over the internet are still supplied from shelves in supermarkets, rather than from distribution warehouses, as is more often the case in the comparison goods sector. 5.11 The deductions for SFT are set out in the following Table. Table 5.2 Projected Growth In Special Forms of Trading (SFT) Comparison goods Convenience goods Year % Source % Source 2010 12.8 NEMS household survey 1.5 NEMS household survey 2016 13.7 Experian 5 3.8 Experian (*0.5) 2021 13.4 Experian 3.95 Experian (*0.5) 2026 13.0 Experian 4.15 Experian (*0.5) 2031 13.0 RTP Estimate6 4.15 Experian (*0.5)

Note: For convenience goods the rate of SFT expenditure is halved to reflect the fact that a proportion of convenience goods bought over the internet are still supplied from shelves in supermarkets. 5.12 Thus, in 2010 the total comparison spend for Mendip residents is £278m excluding SFT, rising to £643m in 2031. For convenience goods there is an expenditure of £184m in 2010, rising to £238m in 2031.

5 Source: Experian Retail Planner Briefing Note 7.1 (2009). 6 Note: RTP Estimates for SFT are derived from Experian‟s Retail Planner Briefing Note 7.1 (2009).

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Step 4: Current patterns of expenditure 5.13 The next step is to use the household survey findings to establish current patterns of expenditure and the current retention rate for the study area, as already described in Section 4 of the report. Thus, the current retention rate for comparison goods is 59 per cent (£403m) and 90 per cent for convenience goods (£355m). Within Mendip District the equivalent figures are a retention rate of 55 per cent and £175m by Mendip resident, with an inflow of £39m from zones 5 to 8 of the study area giving a total comparison goods expenditure of £214m in Mendip town and village centres and retail outlets. Mendip‟s convenience retention rate is 88 per cent (£162m) with £29m inflow from zones 5 to 8, giving a total convenience expenditure of £191m within Mendip district.

Step 5: „Claims‟ on growth in retained expenditure 5.14 The next step is to make an allowance for „claims‟ on the growth in retained expenditure. Having already allowed for the growth in SFT, the remaining „claims‟ are: . Growth in floorspace efficiency, which is growth in the turnover of existing retailer floorspace, and . An allowance for the turnover absorbed by planning commitments. 5.15 In making an allowance for growth in floorspace efficiency, RTP estimates are applied using the mid-point forecast from Experian and MapInfo/Oxford Economics, as per Table 5.3 below: Table 5.3 Per Annum Floorspace Efficiency Growth

Comparison Convenience Year Rate per annum Rate per annum 2010-2016 1.2% 0.5% 2016-2021 1.2% 0.4% 2021-2031 1.1% 0.4%

Source: RTP assumptions derived from Experian and MapInfo mid-point forecasts. 5.16 The effect of the gain in floorspace efficiency of existing retailers amounts to a „claim‟ of £78m in the comparison goods sector (Between 2010 and 2031) – i.e. existing traders within Mendip will attract £78m of the growth in comparison goods spend. The corresponding effect in the convenience goods sector amounts to £21m. 5.17 The next step is to allow for the future turnover requirements of planning commitments, having made an assessment of how much of the commitments‟ turnovers will be, derived from residents of the study catchment area. The comparison and convenience goods commitments are scheduled in Table 5.4. 5.18 The commitments amount to a „claim‟ of £23m for comparison goods and £27m for convenience goods, which for the purposes of the assessment are assumed to be completed by 2016.

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Table 5.4 Comparison and Convenience Retail Commitments Within Mendip

Comparison Assumed Benchmark Planning Sq.m Sales Store Turnover Application net Density £m (£/Sq.m) A1 non-food units at Beckery New Road, Glastonbury 067639/008 1,856 2,080 3.86 Tesco extension, Wells (comparison element) 101941/024 754 8,856 6.68 Retail warehouses, Wessex Fields, Frome 118767/000 2,500 2,764 6.91 3 non-food warehouses, Deyhouse Lane, Glastonbury 2009/0091 1,614 2,764 4.46 Waitrose, Wells (comparison element) 2009/1908 139 6,966 0.97 Total 6,863 N/A 22.88 Convenience Assumed Benchmark Planning Sq.m Sales Store Turnover Application net Density £m (£/Sq.m)

Tesco extension, Wells (convenience element) 101941/024 334 4083.3 1.36 Discounter food store at Beckery New Road, Glastonbury* 067639/008 1,329 8,167 10.85 Waitrose, Wells (convenience element) 2009/1908 1,254 11,846 14.85 Total 2,917 N/A 27.07 Notes: Floorspaces, sales densities and benchmark turnovers are sourced from: the planning applications, Mintel's Retail Rankings and Experian's Retail Planner 7.1 (2009). All sales densities have been adjusted to include VAT and are grown to the study base year of 2010.

* Discounter foodstore at Beckery New Road, Glastonbury. We understand that Tesco has purchased the site and will use the original permission (for a deep discounter) to build a new store. Therefore we apply the Mintel sales dentisty for Tesco but factor it down to 60% as the store is relatively small and unlikely to trade at Tesco's company average.

Step 6: Adjustments for under trading/overtrading in the base year 5.19 It is appreciated that there is scope to account for overtrading within the assessment. In Policy EC1 in PPS4 refers to overtrading as a qualitative issue. It is noted that there is no mention in PPS4 of under trading, perhaps because there is no easy policy solution to this matter. 5.20 There have been a series of Secretary of State decisions and High Court decisions that have considered whether overtrading contributes to quantitative need. There is no clear guidance on this matter but the latest decisions indicate that whilst overtrading is a qualitative issue, it can be considered as a material input to the interpretation of whether there is a quantitative need. In light of this uncertainty, we now consider overtrading as a separate matter and indicate its implications for capacity in Mendip.

Comparison Goods Sector 5.21 In order to assess whether there is any under trading or overtrading in the District, an assessment should be made of the existing sales densities (turnover per sq m) of the floorspace and this is then compared with what would be expected of these centres given the composition of the retail provision and their position in the shopping hierarchy. Table

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5.5 sets out the sales densities for the town centre shopping destinations in the study area. Table 5.5 Town Centre Comparison Goods Over and Under-trading in 2010

Experian Actual Net Sales Benchmark Experian Benchmark Turnover From Over/under Floorspace Sales Density Benchmark Turnover Study Area trading Town Centre/Store (sqm) (1) (£ per sqm) category (£m) (£m) (£m) Experian In-Town Street TC (modern & old (inc. Clarks Village) 27,180 4,714 midpoint) 128.1 48.83 -79.30 Experian Glastonbury TC 10,920 3,576 in-Town - Old 39.1 11.34 -27.72 Experian Wells City Centre 15,170 3,576 in-Town - Old 54.3 23.03 -31.22 Experian Shepton Mallet TC 10,117 3,576 in-Town - Old 36.2 24.93 -11.25 Experian In-Town (modern & old Frome Town Centre 12,420 4,714 midpoint) 58.6 47.44 -11.11

Total 75,807 n/a n/a 316.17 155.57 -160.60 Note: The Experian benchmark categories give sales density estimates for UK floorspace under four categories: in-town and out-of-town locations and old stock and modern stock.

5.22 All of the town centres in Mendip appear to be trading below their benchmark level, especially Street, Glastonbury and Wells. However the under trade for Street is misleading as it includes the floorspace of Clarks Village, but the assessment only includes trade derived from study area residents, which is significantly smaller than the estimated catchment of the Clarks Village. Glastonbury‟s under trade may be attributed to the fact that many of the small independent units will trade somewhat below the Experian benchmark for older in-town stock (£3,576 per sq m). Similarly, qualitative consultations suggest that many traders also derive a large proportion of their trade from tourist expenditure (which is omitted from this calculation). Wells also has a vibrant visitor economy and a significant proportion of spend will be attributed to visitors. 5.23 Shepton Mallet and Frome also show under trading. The figure for Frome appears to be reasonable as, like Glastonbury, Frome has a strong offer of small independent units and boutiques that may trade below the Experian benchmark. Shepton Mallet, which excludes the edge of centre Townsend Retail Park is thought to under trade by £11.3m – it may be that this figure is generous as the survey estimated turnover of £25m seems high for Shepton, it is thought that the trade estimate includes a proportion of expenditure which is actually spent at the Townsend Retail Park. 5.24 Despite a large under trade of -£160.5m it is difficult to assess the true trading of the town centres. The analysis of tourism expenditure (see step 7 below) indicates that around £53m of inflow spend on comparison goods is attributed to day and staying visitors and £23m identified from Sedgemoor residents undertaking comparison goods shopping in Mendip towns. If the -£79m under trade in Street is excluded (due to its sub-regional shopping catchment which has not been quantified) then the under trade for Mendip is near to -£5m. On this basis the town centres are thought to be trading reasonably well given their size and role. The main area of concern is Shepton Mallet which could be undertrading to a greater extent than the benchmark assessment indicates.

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Convenience Goods Sector 5.25 The approach to the convenience goods expenditure is slightly different, because there is published data on average (or benchmark) turnovers for the main foodstore operators. For the stores that attract a notable market share, an assessment is made of the survey derived turnover against the benchmark, as summarised in Table 5.6. Table 5.6 Convenience sales densities in 2010 Stores above £3m

Convenience Benchmark Benchmark Estimated Over/ Location of Store Sales Sales Turnover Turnover under Floorspace Density From trading (3) (4) (5) Survey sqm £/sqm £m £m £m Asda, Warminster Road, Out of centre 1,958 15,035 29.4 32.5 3.1 Frome Tesco, Townsend Shopping Out of centre 1,667 13,611 22.7 27.9 5.2 Park, Shepton Mallet J Sainsbury, Wessex Field, Out of centre 2,594 10,372 26.9 27.6 0.7 Frome Tesco, Tucker Street, Town Centre 1,669 13,611 22.7 20.9 -1.8 Wells Morrisons, Street Road, Edge-of-centre 1,988 11,867 23.6 21.2 -2.4 Glastonbury J Sainsbury, Gravenchon Out of centre 1,876 10,372 19.5 15.2 -4.3 Way, Street Tesco Metro, Crispin Centre, Town Centre 1,006 13,611 13.7 10.5 -3.2 Street Total n/a 12,757 n/a 158.5 155.68 -2.8 Notes: Floorspace data from IGD Foodstores Database (2009). Gross to net ratio of 70 per cent applied (Source: Experian Retail Planner 7.1, 2009).

The convenience sales area of all foodstores are company averages provided by Mintel's Retail Rankings 2009.

(3) This is the convenience floorspace in the stores using the percentage calculated at (4).

(4) Average Sales Density is provided by Mintel Retail Rankings (2009)/RTP Estimates and has been adjusted to a pure convenience goods average to reflect the goods basis approach. All sales densities have been adjusted to 2010 and include VAT.

(5) Product of convenience floorspace and average sales density.

2007 price base.

5.26 The analysis of convenience stores reveals that no one store is trading at extreme levels above or below its company-wide average for a store of that size. Assembling comparable data and information from several leading operators shows that there is considerable variation around their company averages for convenience sales densities (nationally). It is not unusual for individual stores to trade at 20 per cent to 30 per cent above or below the company average, and some stores trade at 100 per cent or more above. This can happen because of factors like efficient management or attractive store design and not just lack of competition. 5.27 It must also be acknowledged that household surveys have limitations - actual turnover data held by local operators could tell a different story. If any applications come forward arguing that there is in fact overtrading in existing stores, these should be supported by local evidence, for example of congestion and queues.

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5.28 The balance for over and under trading stores, as shown by the survey results, is a net under trade of £2.8m. This net under trade is not great enough to justify any reduction to the quantitative need figures. This is discussed in detail in Section 7.

Step 7: Adjustment for tourism expenditure in the study area 5.29 The methodology for assessing tourist visitor expenditure in the study area is set out in detail in Appendix 2 (Volume 3) and utilises survey data from the Volume and Value of Tourism Somerset report7 to identify the expenditure of tourists in comparison outlets and convenience stores. This expenditure is then grown to allow for increases in tourism expenditure levels per head and then added to the existing available expenditure within the study area. Table 5.7 Forecast In-flow of tourism expenditure for retail and leisure spend (£m) Change 2010 2016 2021 2026 2031 09-31 Comparison Goods £52.77 £63.74 £74.62 £87.34 £102.24 £49.48 Convenience Goods £6.45 £6.85 £7.12 £7.45 £7.75 £1.30 Leisure: Food & Drink £61.10 £68.41 £75.16 £82.58 £90.72 £29.62

Step 8: Residual expenditure potentially available for new retail floorspace 5.30 Thus, having allowed for all of the claims on the growth in retained expenditure – that is, growth over time in SFT, growth in floorspace efficiency and commitments, this leaves a residual expenditure which can be converted into a floorspace requirement. In order to convert the residual expenditure into a net sales area in square metres, an average sales density for comparison goods of £5,628 per sq m8 is applied. The average sales density for convenience goods is £10,245 per sq m sales area. 5.31 Finally, we convert the sales area requirement to a gross floorspace requirement, using a net to gross ratio of 75 per cent for comparison goods and 70 per cent for convenience goods9, on the basis that foodstores need more back-up preparation and storage space than comparison outlets.

Step 9: Scenario testing and sensitivity assessment 5.32 There are three common areas of professional assumption which influence the floorspace requirements for retail study outputs, these are: . Future levels of migration and indigenous population growth . Changes to spending patterns/retention rate . Economic situation and expenditure growth rates

7 South West Tourism (2007) Value of Tourism 2007: Somerset. 8 Source: Experian (2009) Retail Planner 7.1, rolled forward to 2010 and estimate for VAT applied. 9 Source: Experian (2009) Retail Planner 7.1,

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5.33 Due to the level of uncertainty involved with forecasting these key inputs, it is possible to sensitivity test in order to identify retail need under different social and economic circumstances. 5.34 Following abolition of the RSS to guide firm housing growth targets the Council is considering options around housing growth from the previously prescribed 8,300 new dwellings (2006-26) to as high as 10,000. Thus analysis has been undertaken to reflect the likely floorspace needs should this outcome arise. 5.35 For sensitivity purposes two alternative scenarios are used to test the capacity requirements on the basis of optimistic and pessimistic rates of spending growth than is forecast at present. The two tables below underline forecast per annum rates of growth for the base position for comparison and convenience goods along with the sensitivity rates applied for higher and lower growth. Table 5.8 Sensitivity Tests for Comparison Goods (rate of growth applied per annum)

Annual Average Optimistic Pessimistic Forecast Period Growth Rates: Scenario Scenario Base Per annum Per annum RTP Rates: Mid- MapInfo ultra long Experian (current Source point MI and term trend 1968- forecasts) Experian 2008 2010 - 2016 3.2% 3.9% 2.3% 2016 - 2021 3.2% 3.9% 2.8% 2021 - 2026 2.8% 3.9% 2.8% 2026 - 2031 2.8% 3.9% 2.8% Note: Experian current forecasts used for pessimistic scenario because past retail trends have never been lower than the current base scenario. Table 5.9 Sensitivity Tests for Convenience Goods (rate of growth applied per annum)

Annual Average Optimistic Pessimistic Forecast Period Growth Rates: Scenario Scenario Base Per annum Per annum RTP Rates: Mid- MI Short Term MI long term trend Source point MI and trend 1998-2008 1978-2008 Experian 2010 - 2016 1.0% 1.2% 0.4% 2016 - 2021 0.8% 1.2% 0.4% 2021 - 2026 0.9% 1.2% 0.4% 2026 - 2031 0.9% 1.2% 0.4%

Findings in Relation to Quantitative Retail Need

Comparison Goods Sector 5.36 The quantitative need for comparison goods is summarised in Table 5.8 below and in detail in Tables 8 and 15 of Volume 2. Each column of the need tables e.g. 2010-16

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shows the amount of floorspace which is needed in that period, the total over the study timeframe (2010-31) is shown in the far right column (which is the aggregate of the four periods). Table 5.10 Quantitative Need in the Comparison Goods Sector (sq.m net), Static Retention Rate of 31 per cent, including Tourist Visitor Expenditure and Inflow Scenario (static retention Total 2010-16 2016-21 2021-26 2026-31 rate) 2010-31 Pessimistic growth 1,943 7,611 9,417 10,422 29,393

Base scenario 4,439 9,241 10,141 11,198 35,019

Optimistic growth 6,557 11,617 14,725 17,183 50,082

5.37 Under the base scenario, the quantitative need assessment identifies that there is a modest requirement for additional retail floorspace of 4,439 sq m net sales area between 2010 and 2016 and a further 9,241 sq m net sales area to be provided between 2016 and 2021. Overall, 35,019 sq m is required between 2010 and 2031. The need for 2010 to 2016 takes into account a number of committed planning permissions for comparison goods in Mendip, notably retail warehouses at Wessex Fields, Frome, the Tesco extension at Wells (expected to be configured alongside existing space for the sale of comparison goods) and several out-of centre A1 units in Glastonbury. 5.38 The sensitivity tests clearly show the effect that higher rates of growth can have on the floorspace capacity estimates, where compounding of growth can lead to a significant uplift in requirements.

Convenience Goods Sector 5.39 Table 5.11 sets out the quantitative convenience floorspace need for a static aggregate retention level of 49 per cent (i.e. it is assumed that the convenience goods expenditure retention will remain at current levels), including an adjustment to include tourism expenditure in convenience outlets and inflow derived from RTP‟s Sedgemoor Retail Study. Again, Each column of the need tables e.g. 2010-16 shows the amount of floorspace which is needed in that period. Table 5.11 Quantitative Need in the Convenience Goods Sector (sq.m net), Static Retention Rate of 49 per cent, including Tourist Visitor Expenditure and Inflow Scenario (static retention Total 2010-16 2016-21 2021-26 2026-31 rate) 2010-31 Pessimistic growth -2,278 600 565 556 -557 Base scenario -1,615 1,032 1,154 1,198 1,769 Optimistic growth -1,355 1,477 1,543 1,637 3,303

5.40 Table 5.11 illustrates a modest requirement for convenience floorspace up to 2031 under the base and optimistic scenarios and no further need under the pessimistic scenario. This reflects completion of a number of foodstores in Mendip in recent years and commitments for additional convenience floorspace in Glastonbury, the recent Waitrose permission in Wells and the consent for Tesco to extend their Wells store – all of which are not yet trading. Roger Tym & Partners September 2010 54

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5.41 There is limited forecast growth in resident expenditure for the convenience goods sector. Projected and forecast population growth would normally drive the need for new supermarkets in a catchment area; however such growth is modest for Mendip.

Changes to Population Growth 5.42 As indicated in Step 9 (scenario and sensitivity testing), the Council are considering locally derived housing targets and looking at options from the RSS level of 8,300 homes up to 10,000 homes – an increase of 20%. A proportional uplift in population growth of 20 per cent (above RSS levels) indicated that under the base scenario, 35,494 sq m net of comparison floorspace would be required between 2010 and 2031 (an additional 475 sq m above the RSS derived base population scenario in Table 5.10) and for convenience goods the total requirement would rise to 1,914 sq m net (an additional 145 sq m above base scenario). 5.43 On balance it is considered that minor changes to growth targets are unlikely to alter the retail requirements by any significant factor, this is due to the growth being a minor proportion of the existing catchment population.

Qualitative Retail Need

5.44 Policy EC1.4 (d) of PPS4 provides advice on the considerations LPAs should take into account in assessing qualitative needs in their development plan documents. It states that there should be genuine choice to meet the needs of the whole community.

Comparison Goods Sector

Frome 5.45 Frome town centre is arguably the main town centre for Mendip District and attains around 7 per cent market share from the whole study area (including significant areas outside Mendip) - this market share is around double that of the other key Mendip towns. The town centre offers a variety of historic market town retail units accompanied by some dated but larger format 60s and 70s era retailing in the Kingsway and Westway shopping precincts. Out of centre retail warehousing is also present at Wessex Fields Retail Park. Cheap Street, Stony Street and Catherine Hill provide a large number of independent and specialist retail outlets. 5.46 Zone 4 (Frome) residents undertake around 49 per cent of comparison goods spending locally in Frome town centre and at ASDA and Wessex Fields Retail Park. Nearby competition from Bath City Centre accounts for the largest share of Zone 4 leakage (13 per cent) followed by Trowbridge (9 per cent). With regard to the comparison sub- categories it appears that Bath City centre is the dominant location for clothing and footwear purchases for Zone 4 (Frome) residents, however around 27 per cent of clothing and footwear purchases are retained within Zone 4, including at J Sainsbury‟s at Wessex Fields. Furniture purchases are relatively dispersed with an element of local retention (34 per cent in Frome town centre), although Bristol and Bath city centres have an important subsidiary influence. SFT accounts for significant purchases of recreation, sport and

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leisure and specialist items (such as gifts, jewellery, books and CDs) indicating the strong influence of the internet for niche purchases. 5.47 The key qualitative retail issues which emerged from the town centre health check included: . The Kingsway and Westway precincts appear to be struggling and dated – in need of revitalisation . Weak evening economy – A3 and A4 uses as they stand do little to attract people into the town during the evenings . Under-representation of high street national operators to balance the strong independent sector which is a draw into the town. . Major opportunity to enhance town centre retailing at Saxonvale . Frome has a niche independent sector with many boutiques, artisan and specialist shops. 5.48 With regards to consumer opinions of the Town Centre, the on-street survey of pedestrians carried out by NEMS provides useful qualitative information. The survey shows that the dominant use of the town centre is for comparison shopping needs (35 per cent), followed by personal services (banks, hairdressers, solicitors etc) which accounted for 25 per cent of visits and lastly, food and groceries shopping (10 per cent). The survey also asked all shoppers whether they were shopping in the nearest centre to their home residence – in Frome‟s case, 70 per cent of the shoppers were nearby residents for which Frome is their closest centre, demonstrating strong local patronage but also that the town predominantly serves a local catchment. This is unsurprising as Frome is unlikely to attract residents from the west of Mendip and Trowbridge fulfils a similar role. 5.49 Satisfaction ratings of the retail offer in Frome indicates that shoppers are somewhat unsatisfied with the provision and quality of the range and choice of national multiples, but feel that the independents and food supermarkets are „good or very good‟, although this reflects the position prior to the closure of the town centre Somerfield supermarket. 5.50 With regards to evening visits, 55 per cent claimed never to visit Frome in the evening with 40 per cent claiming that they may visit „once or twice a month‟ and „less often‟. 5.51 The key message for Frome is that there is qualitative need for an enhanced evening economy offer, better quality and a greater number of restaurants and drinking establishments would be a welcome addition. Increasing the range of national multiples would also address the current imbalance – the Saxonvale development opportunity offers potential to do this.

Wells 5.52 Zone 2 (Wells) residents undertake 25 per cent of comparison goods shopping in Wells city centre. Additionally 19 per cent is directed to nearby Street town centre, Clarks Village and Glastonbury town centre (collectively). Notably leakage of expenditure is very dispersed – mainly to Bath city centre, Yeovil town centre, Bristol city centre and Cribbs Causeway.

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5.53 Wells Zone 2 residents look to Clarks Village and Bath city centre for the majority of their clothing and footwear purchases, with only 11 per cent being spent locally in Wells city centre. 5.54 The key qualitative retail issues which emerged from the town centre health check included: . Good mix of national and independent occupiers . Reasonably strong comparison offer in terms of range and quality, especially for everyday comparison type purchases . More limited comparison offer in terms of choice, with limited national operator presence for mid-level fashion and clothing retail . Significant benefit from visitor economy trading opportunities . Appealing and attractive evening economy 5.55 The in-centre shopper survey clarified Wells‟ tourism strengths as the largest proportion of visitors (30 per cent) were day visitors from outside the Mendip area. Visiting the local market was the second highest reason for visiting Wells followed by purchases of non- food goods. 46 per cent of shoppers in Wells were not shopping in their nearest centre, indicating the wide catchment of the city and strong draw from surrounding settlements and more distant origins such as Bristol and Weston-Super-Mare. 5.56 Satisfaction ratings of the retail offer in Wells indicate that shoppers are largely „satisfied‟ with the provision and quality of the range and choice of national multiples, but feel that the independents and the outdoor markets are the main strength. A balanced provision is needed. 5.57 While the survey found that 59 per cent of shoppers never visit in the evenings, this is likely to be due to the fact that a large proportion of shoppers are day visitors from elsewhere. The main evening uses are for pubs and bars followed by eating out – with strong approval and satisfaction for the quality of the evening economy offer. 5.58 It is understood that Wells City Centre is performing well in its current role as a retail centre for local residents and destination for tourist visits driven by the cathedral, historic core and pleasant shopping environment – Wells is considered as a good example of a town bucking the „clone‟ town trend. It is acknowledged that Wells has not attracted mid to low end multiple retailers in the prime shopping area, as has been the trend for many small and medium sized towns and cities across the UK in the past decade. This shunning of the ‟clone‟ town effect may have resulted in a deficiency in mid to low end multiples, for which there is likely to be some demand, especially from the younger generation in the Wells catchment. However it is felt that it would be desirable to maintain current strengths rather than redefining the role of the town centre. Alternatively it might be appropriate to consider the possibility of a new town centre scheme to cater for mid to high end retailers, possibly with an anchor department store. While this would be ambitious and potentially difficult to deliver it may open up the opportunity for a higher quality retail experience serving a local and Somerset resident catchment and visitors alike. Discount retailing for fashion and clothing can continue to be undertaken at Clarks Village which also offers a high quality environment and visitor experience. Roger Tym & Partners September 2010 57

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Shepton Mallet 5.59 The household survey reveals that retention of local spending on comparison goods in Shepton‟s Zone 3 is on a par with Wells at 30 per cent, but lags behind Frome and Street/Glastonbury which retain nearer to 50 per cent in their local centres. Given that the health check identified a relatively poor retail environment, the town appears to trade better than expected. Trade leakage is primarily to Clarks Village, Wells, and Frome – all within Mendip District. The previous retail survey in 2005 estimated that retention in the Shepton Mallet zone was 15 per cent. This share has not changed as the town centre still only retains 15 per cent. However, the edge of centre retail park retains 11 per cent, (with a further 4 per cent to other Zone 3 stores). Thus Shepton‟s Zone 3 retention has improved significantly as a result of the new retail park although there appears to have been limited benefit to high street trade. 5.60 The key qualitative retail issues which emerged from the town centre health check included: . Over-presence of long term vacant units . Poor retail offer and evening economy . Few national multiples 5.61 Shoppers in Shepton Mallet were visiting for a variety of reasons, mainly for non-food shopping (28 per cent) but also for food and grocery shopping (22 per cent), meeting someone (17 per cent), personal services (14 per cent) and work (15 per cent). 50 per cent of shoppers were non-local residents, visiting mainly for specialist shops and because they work or are meeting friends in Shepton Mallet. 5.62 Satisfaction ratings of the retail offer in Shepton Mallet indicate that shoppers feel the retail offer (multiples and independents) is „poor or very poor‟ in the town centre but that supermarket provision is „good or very good‟ – presumably referring to the edge of centre Tesco‟s and Aldi. 5.63 Regarding the quality of the leisure offer, the dominant response was that shoppers were „unsure‟ of the offer and quality. The range of places to eat was deemed to be „satisfactory‟. Overwhelmingly, 74 per cent of shoppers never visit the town centre for evening leisure uses. The key areas of improvement from the pedestrian survey are for better quality shops, more independent shops, greater choice of shops and improved environment. 5.64 Clearly there is qualitative need for improvement in the town‟s comparison goods retail offer. Improving the vitality and viability of trading conditions in the town and tackling the longer term decline is likely to be the key priority. There may be scope for additional retail at Townsend Retail Park in the future and while this is likely to encourage greater levels of local spend, it is unlikely to help the town centre.

Glastonbury 5.65 Glastonbury only attains 11 per cent of comparison goods expenditure from Zone 1 residents, however for many, Street and Clarks Village, will be their nearest

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centre/shopping destination. Overall 52 per cent of Zone 1 resident spend is retained in Zone 1 itself (Street and Glastonbury) – the highest level of local retention in Mendip. 5.66 The main leakage destinations for Zone 1 is to Taunton and Yeovil town centres, indicating that there is limited pull from the smaller nearby towns of Wells and Shepton Mallet which have a similar retail offer. 5.67 The key qualitative retail issues which emerged from the town centre health check included: . Large quantity of units for size of the town . Significant retail offer serving the visitor economy – rise in gift and tourist retailers at the expense of other amenity retailers . Unique offer and strong demand from independent retailers . Low vacancy rate . Limited A1 (general high street retail) opportunity due to nearby presence of Clarks Village 5.68 Glastonbury‟s visitor destination status was confirmed through the shopper survey of pedestrians whereby 43 per cent of visitors were either on a day trip or staying overnight on holiday in the area. 10 per cent were shopping for non-food goods. Not surprisingly, pedestrians felt that the range and choice of national retailers was „poor or very poor‟ however the range and choice of independent retailers was „good or very good‟. Shoppers were also satisfied with Glastonbury‟s eating and drinking offer. The main areas of improvement relate to public realm, such as children‟s play areas and family facilities, however this is distorted by the fact that 82 per cent of shoppers „didn‟t know‟ how the town centre could be best improved.

Street and Clarks Village 5.69 Street‟s centre attains 20 per cent of local Zone 1 expenditure (for comparison goods), while Clarks Village attains 11 per cent. On this basis local residents tend to favour the centre over Clarks Village for the majority of their non-food goods. Leakage is directed primarily to Yeovil and Taunton town centres but is limited due to Clarks Village meeting many needs for fashions and other higher order goods. 5.70 The key qualitative retail issues which emerged from the town centre health check included: . Clarks Village has a largely regional catchment, drawing in expenditure from a wider area than the town centre at Street . Low vacancy rate in the centre and very low in the Village . Limited development opportunities in both the centre and at the Village . Qualitative need for A3-A5 uses in both centre and the Village . Street‟s centre lacks choice and range in terms of convenience offer 5.71 Separate in-centre shopper interviews were carried out in both the centre and Clarks Village. With regards to Clarks Village, shoppers visit for comparison goods purposes (72

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per cent) and are on a day trip or visiting due to the improved range and choice of goods compared with their local centre. Around 70 per cent of shoppers were from outside of Mendip, with origins from Bridgwater, Taunton, Bristol, Bath, Yeovil and „other – not categorised‟. Both the eating/drinking and retail offer was thought to be „good to very good‟. 5.72 For the High Street, non food shopping and meeting people were the highest uses. Only 29 per cent of Street shoppers are local Zone 1 residents. Shoppers in Street town centre came from Wells (11 per cent), Shepton Mallet (11 per cent) and „other locations‟ (26 per cent). This implies that linked trips may be occurring between Clarks Village and the town centre. Shoppers rated the comparison and convenience retail in the town centre as „good or very good‟. 77 per cent of shoppers claimed never to visit the centre in the evening, however this is slightly misleading as the survey identified many non-local shoppers in the town centre. 5.73 On the basis of the market shares and pedestrian survey data, the retail provision on the high street and at Clarks Village seems to be performing well, with positive response from shoppers. However, whilst there is no qualitative need for further comparison floorspace it is considered that both the town centre and Village would benefit from more A3-A5 units to improve diversity, vitality and the evening economy. The town centre would also benefit from more convenience floorspace to improve choice and range to supplement the Crispin Centre‟s Tesco Metro. The out of centre Sainsbury‟s and Lidl provides good main food convenience shopping.

Convenience Goods Sector 5.74 In the convenience sector, it is clearly important that needs are met on as localised a basis as possible - an important part of the LDF process is to remedy deficiencies in the network of centres (see PPS4: Policy EC3.1b). Since there is evidence of the dominance of larger foodstores, such as Tesco in Wells, ASDA and Sainsbury at Frome and Tesco at Shepton Mallet and a number of zones with a poor localised convenience shopping pattern, it is considered that there is a qualitative need to improve quality within the town centres and encourage linked trips. 5.75 With reference to Figure 5.3, which shows the locations of supermarkets and smaller convenience stores within the study area it can be observed through this and consideration of the localised retention rates for each zone (see Table 4.3) that Frome and Street/Glastonbury is well provided for. As mentioned in Section 4, there is no one store that is overly dominant in terms of market share. 5.76 The two study zones where localised convenience spend is lowest is Wells and Shepton Mallet. While these two towns have adequate provision in terms of floorspace and as noted in the quantitative assessment, there is little quantitative need for additional floorspace, it is evident that residents from theses zones undertake a significant amount of shopping elsewhere. As described in Section 4, Tesco in Wells attains 51 per cent of local Zone 2 resident expenditure and Tesco at the Townsend Retail Park, Shepton Mallet attains 46 per cent of local Zone 3 expenditure. Local Zone 2 residents who do not use Tesco in Wells are travelling to the Sainsbury‟s at Street, Morrisons at Glastonbury and

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Tesco at Shepton Mallet for their convenience shopping needs. Likewise Zone 3 has retention of 61 per cent with food shopping being undertaken in other zones, notably the ASDA and Sainsbury‟s in Frome and Paulton‟s Tesco (some 11 miles away). 5.77 It could be argued that by strengthening the tenant mix and choice of food retailers in these towns that it would be possible to increase local retention to the level currently experienced in Zone 1 (Street and Glastonbury and Zone 4 (Frome). It is noted that there is a second supermarket operator in Shepton Mallet (Aldi) and a town centre Co-op, which provides a top-up shopping role. However due to the size and shape of Zone 3, it is clear that for many residents, Frome is the nearest town centre and thus the leakage identified to ASDA and Sainsbury‟s is to be expected. For Wells, the consent for a new Waitrose foodstore and extension to the city centre Tesco is almost certainly going to address and increase the lower level of local convenience retention.

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Mendip Town Centres Study Final Report Figure 5.1 Location of Foodstores Within and Near to the Study Area

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Deprivation: Access to Services and Facilities 5.78 Another qualitative consideration in the convenience goods sector is to seek to ensure easy access to local facilities on the part of the most deprived residents in the District as set out in policy EC1.4 and EC3.1 of PPS4. In Figure 5.2 the superstores, supermarkets and small convenience stores are superimposed on a map of the Index of Multiple Deprivation (IMD) across the study area. Thus, there are two super-output areas (SOAs) in Mendip which fall within the 20 per cent most deprived in England. One of these is located in and near to Glastonbury town centre and the second is in and near to Shepton Mallet town centre. 5.79 The SOA in Glastonbury covers part of Glastonbury St Benedict‟s ward and has an overall IMD rank within the 15 per cent most deprived in England. The most acute area of deprivation relates to employment, which rank within the bottom 4 per cent. Convenience provision is good within this area, with the Morrisons supermarket and town centre convenience stores. 5.80 Shepton East ward is the other area of relative deprivation in Mendip and ranks within the 19 per cent most deprived in England. Within the SOA there is the Co-op small convenience store on the High Street and Tesco and Aldi supermarkets within a few hundred metres. Local provision of convenience goods appears to be adequate if not good in these areas.

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Mendip Town Centres Study Final Report Figure 5.2 Freestanding Food Stores and Areas of Deprivation (IMD), Relative to All Super Output Areas (SOAs) in England

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Summary: Quantitative and Qualitative Retail Need

Comparison Goods Sector . The need assessment includes an additional turnover of £23m from planning permissions for new stores which will come forward in the next two years. Although the main towns show some under-trading it is difficult to quantify this. Combined with an allowance for tourist expenditure and inflow from elsewhere no allowance is made for over or under trading. . The assessment for floorspace takes account of day and staying tourist visitor spend on comparison goods which is £53m in 2010 rising to £102m in 2031. A further inflow allowance is made for £23m for expenditure from residents outside of the study area. . Overall there is a requirement of 4,439 sq m net between 2010 and 2016. . Retail expenditure growth is thought to continue to grow from 2016 onwards and thus there is an increase in the amount of expenditure to support new retail space. In total there is a need for 35,019 sq m net between 2010 and 2031. However it should be cautioned against looking ahead of 2021, where the expenditure estimates rapidly amplify due to the compound growth of per capita increases in spending.

Convenience Goods Sector . For convenience there are „claims‟ on expenditure of £27m from the committed Foodstore at Beckery New Road, Glastonbury, the Tesco extension at Wells and a new Waitrose consent at Wells. The analysis of existing convenience stores reveals that no one store is trading at extreme levels – no allowance is made of over or under trading in the convenience sector. . Again the spending impact of tourist visitors is included, although the amount that they spend in convenience stores is lower than for comparison. £6.4m is attributed to convenience goods purchases by visitors. . Due to the numerous foodstore commitments, there is limited capacity to support any additional floorspace over the study period. There is unlikely to be any expenditure capacity to support new floorspace before 2021. There is a total requirement of 1,769 sq m net, although this requirement falls between 2021 and 2031. The modest need is also due to the lower rate of growth in convenience goods – there is little scope to buy more food items compared to comparison goods.

Qualitative Need . Frome‟s primary qualitative needs entail enhanced evening and leisure uses for the town centre and an increase in national multiples to balance the strong and supported independent sector. The Saxonvale development opportunity presents a strong opportunity to achieve this. . Wells is deemed to have less of a qualitative need due to a well performing comparison goods sector and evening economy. Permission for new food retail floorspace should address the existing convenience deficiency relating to competition

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and choice. Maintaining quality and the visitor experience is vital. It is thought that on retail grounds Wells could potentially support a high quality premium town centre scheme to provide a better and alternative shopping destination in the Somerset sub- region. . Shepton Mallet needs qualitative improvement to the town centre to improve patronage and trading vitality. It is thought that existing shops and retailers should be the priority and that any additional development at Townsend Retail Park is unlikely to help the town centre but may increase local spending rates. . Glastonbury has limited qualitative need; however there is scope for continued improvement for leisure and evening uses. Viability of A1 trading opportunities is limited due to the proximity to Clarks Village and the retailer requirement trend for gift and visitor orientated and niche outlets is likely to continue in the medium term. . The Street and Clarks Village would benefit from more A3-5 units to improve the leisure and evening offer. Greater town centre convenience provision would be welcomed to supplement the Crispin Centre‟s Tesco Metro.

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6 ASSESSMENT OF SCOPE FOR ADDITIONAL COMMERCIAL LEISURE AND CULTURAL FACILITIES

Introduction

6.1 Commercial leisure and cultural facilities within the district and adjoining area have been reviewed to provide an assessment of provision. This review has been combined with an analysis of current patterns of leisure spend and population changes which has provided future requirement projections to be made. Data and information has been gathered via: . A desktop audit of facilities . Primary survey data from households providing information on where residents from the District (and four neighbouring zones) undertake a variety of leisure and cultural activities . Current and forecast spend on leisure and cultural activities broken down by per capita leisure spend in Classification of Individual Consumption by Purpose (COICOP) categories (data from MapInfo). 6.2 The methodology for an assessment of quantitative need in the leisure sector is less well developed than in the retail sector. There is limited guidance on leisure and cultural quantitative assessment contained within PPS4. In addition, development in the leisure sector has historically been market-led, and only more recently has it been brought into the range of uses covered by the sequential approach. 6.3 The approach utilised in this section has taken leisure expenditure data (MapInfo) from a Census Output Area level aggregated into the study catchment expenditure zones (as per the retail expenditure data used for comparison and convenience goods). Expenditure data is available for „leisure goods‟ and „leisure services‟. The later is the focus of this assessment10.

Distribution of Leisure Expenditure

6.4 The per capita leisure spend for the Mendip study area is shown in Table 6.1. The annual per capita leisure spend in the study area is estimated as being £2,128. Half of annual leisure spend is made within food and drink establishments (for example restaurants, cafes and bars). The remaining leisure categories receive a far lower percentage of the total leisure spend (between 5 per cent and 14 per cent).

10 Leisure goods expenditure (e.g. sports equipment) is included in comparison retail expenditure and therefore already accounted for in Section 5.

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Table 6.1 Breakdown of Average Per Capita Leisure Spend in the Mendip Study Area

COICOP Per % of Total Category Description Person Spend (£)

9.4.1 Recreation and sporting services 137.4 6.5% 9.4.2 Cultural Services 291.4 13.7% 09.4.2(pt) Cinema admissions (sub part of cultural services) 18.8 0.9% 09.4.2(pt) Theatre admissions (sub part of cultural services) 33.6 1.6% 09.4.2(pt) Other (sub part of cultural services) 238.9 11.2% 09.4.3 Games of chance 180.8 8.5% 11.1.1 Restaurants, Cafes, Etc 1,074.4 50.5% 11.1.2 Canteens 126.5 5.9% 11.2 Accommodation Services 210.9 9.9% 12.1.1 Hairdressing Salons & personal grooming establishments 106.9 5.0% Total Leisure Services 2,128.3 100.0% Source: MapInfo per capital Leisure spend in COICOP categories

Note: Cinema admissions, theatre admissions and other (television and video rentals, social subscriptions and photographic processing) are all sub categories of 9.4.2 „Cultural Services‟. They contribute to the total spend on Cultural Services.

Note: MapInfo per capita expenditure data is available in four COICOP categories (i) recreation and cultural services, ii) restaurants and cafes, iii) accommodation services, iv) hairdressing and personal grooming. In order to provide an indicative estimate of expenditure for the sub categories shown in Table 6.1, this data is disaggregated through the use of average UK expenditure percentages.

Current and Future Leisure Expenditure

6.5 Taking current leisure expenditure patterns and population projections it is possible to make projections for future growth needs that could be supported in the Mendip. The projected growth in expenditure on leisure services for the study area (zones 1 to 8) is set out below in Table 6.2. These figures are provided in more detail in Table 13, (Volume 2 Report). 6.6 The method used for forecasting future leisure spending is considered robust as it adopts the same principle method as used for retail goods and uses industry standard data sources11 on per capita spend and annual growth in leisure expenditure. It uses Experian‟s recommended growth rate for spending on leisure services of 1.9 per cent per annum. It should be noted that although the expenditure projections have been forwarded to 2031 for completeness, It would be cautionary against looking beyond 2021 when planning for commercial leisure needs. 6.7 The leisure services assessment is focussed on the current provision and the capacity for additional growth within Mendip based upon available expenditure from the study area (survey zones 1 to 8). Capacity estimates also take into account nearby leisure facilities

11 MapInfo/Oxford Economics and Experian.

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situated in around the study area (extending towards Bristol and Bath in the north and Yeovil in the south). Table 6.2 Growth in Leisure Expenditure (in £m per annum) 2010-2031 (Mendip Zones Only)

Growth 2010 2016 2021 2026 2031 Expenditure Category 2010-21 £m £m £m £m £m £m Recreational & cultural 65.8 75.1 83.8 93.8 104.8 18.1 services Restaurants, Cafes, etc 129.2 147.5 164.7 184.4 205.9 35.5

Hotels 22.7 25.9 28.9 32.4 36.2 6.2

Hair & personal grooming 11.5 13.1 14.7 16.4 18.3 3.2

Total Leisure Expenditure 229.2 261.6 292.1 327.0 365.2 63.0 Source: MapInfo Retail Expenditure Data, combined with Mendip population projections.

6.8 Total leisure expenditure is estimated to grow (over and above current 2010 expenditure) by £63m from 2010 to 2021. This takes into account a projected population growth of just circa 8,000 in Mendip district for this period12 and assumes that participation in leisure activities remain broadly static on a per capita basis. 6.9 An overview of the growth in leisure expenditure to 2021 (for Mendip residents only) is as follows: . Expenditure in restaurants, cafes etc is projected to increase by £35.5m . An additional £18.1m will be spent within the recreational and cultural services sector, broken down as follows:  Cinema expenditure is estimated to grow from £2m in 2010 to £2.6m in 2021 (a growth of £0.6m)  Theatre expenditure is estimated to grow from £3.6 in 2010 to £5.2m in 2021 (a growth of £1.6m) . Games of chance expenditure is estimated to grow from £19.5 in 2010 to £24.9m in 2021 (a growth of £5.4m)

Retention and Leakage of Leisure Spend in the Study Catchment

6.10 Although there is a forecast growth of £63m in leisure expenditure between 2010 and 2021, the household survey data illustrates some additional spend form residents living outside of Mendip is directed into the district. Reference back to the household survey data and the percentage split between different types of leisure expenditure made within/outside of the study area provides a clearer picture of this:

12 Population data and forecasts for zones within Mendip District Council (zones 1 to 4) are sourced from POPGROUP forecasts by Dorset County Council on behalf of Mendip District Council.

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Table 6.3 Leisure Spend Retention and Leakage Study Study Leisure Activity Area Area Retention % Leakage % Restaurants, Cafes, Etc 41.5% 58.5% Bars/Clubs & Pubs 42.2% 57.8% Cinema 29.9% 70.1% Museums & Art Galleries 10.4% 89.6% Family Entertainment 9.3% 90.7% Health & Fitness 49.8% 50.2% Bingo, Casino & B‟maker 32.1% 67.9% Theatre & Concerts 21.8% 78.2% Source: NEMS Household Survey, 2010

Note: Retention is the per cent of study area expenditure that is directed to leisure services located within Mendip District Council. About 52 per cent of the study population live outside of Mendip (in zones 5-8). 6.11 Retention and leakage data for each of these leisure activities is analysed in the following sub-sections.

Conversion of Expenditure Increases into Additional Leisure Requirements

6.12 The following section examines the scope for additional leisure facilities within the study area. Current provision is mapped in Figure 6.1. 6.13 The focus of this report is town centre leisure uses which are referred to in PPS4 as: „leisure, entertainment facilities, and 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)‟. The provision of leisure centres and outdoor sports facilities is covered by PPG 17: Planning for Open Space, Sport and Recreation.

Recreation and Sporting Services 6.14 The expenditure forecasts suggest that there will be an additional £10.29m spend in recreation and sporting services between over the next 11 years (to 2021). This is a very broad category of spend, which includes facilities/services such as golf courses, motor- racing, sports centres, gymnasia, bowling alleys, ice skating rinks, swimming pools, playground facilities for children, fairgrounds and amusement parks.

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Figure 6.1 Leisure Facilities Map

6.15 At present the household survey shows a retention rate of 9.3 per cent within the study area for family entertainment (e.g. ten pin bowling, ice skating, adventure parks, sporting activities). This assessment focuses on the potential for family entertainment facilities such as bowling alleys, skating rinks, adventure parks. 6.16 The household survey reveals that the majority of people within the study catchment area do not visit family entertainment facilities. Those that indicate they do make such visits (34.8 per cent) have a very dispersed geographical pattern of attendance at such facilities extending out to Bristol, Bath, Yeovil and Taunton. Most households indicate that they utilise family activities in Bristol (9 per cent) with nominal percentages for other areas. 6.17 Given that 9.3 per cent of family entertainment spend is retained in Mendip, it can be estimated that £956,970 of the £10.29m growth in this expenditure between 2010 and 2021 could remain within the Mendip district. Although this revenue could potentially support a new, small facility of some kind, given the broad nature of facilities within the category and the dispersed location of current provision, it is suggested that rather than

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being plan led, new applications for recreation and sporting facilities can be dealt with on an individual basis. It is noted that there are two children‟s indoor play centres within Mendip located at Frome and Glastonbury.

Cultural Services 6.18 The importance of cultural facilities has been recognised within the South West as a contributor to the economy as well as being of social and cultural importance. Culture plays a pivotal role in society and it is through cultural expression that individuals and communities interact with each other forming engaged, vibrant communities, within which quality of life is enhanced. When social well-being is strong, the economic value of a place is increased, attracting people and investors. 6.19 Cultural infrastructure is essential in encouraging and providing the spaces and facilities needed for people to pursue their cultural expressions. Cultural infrastructures, including attractions, public realm enhancements and arts projects, not only have social benefits, but also environmental and economic value, not least: . As place marketing icons . Contributing to property led regeneration . Developing experience economies – which bring tourism and discretionary spend e.g. Covent Garden . Social inclusion and local employment – drawing on „natural skills‟ and „learned skills‟. 6.20 The following section provides an overview of facilities within the Mendip study area.

Cinemas 6.21 There are two cinemas located within the five towns in Mendip. These are the Westway Cinema in Frome (Cork Street, one screen) and the Film Centre in Wells (Princes Road, three screens). 6.22 Other cinemas that are accessed by residents of the study area are located in: . Bristol: Cineworld (Hengrove Leisure Park), Odeon (Union Street), Scott Cinema Orpheus (Northumbria Drive), Showcase Bristol (St Philips Causeway), Showcase Cinema De Lux (Cabot Cinema), Vue (Cribbs Causeway), Vue Longwell Green (Aspects Leisure Park), Watershed (Canons Road), The Cube (King Square) . Bath: Odeon Cinema, Little Theatre Cinema . Yeovil: Cineworld Cinemas . Bridgwater: Scott Cinemas . Weston Super Mare: Odeon Cinema . Salisbury: Odeon Cinema . Taunton: Odeon Cinema. 6.23 In addition, it is noted that both the Merlin Theatre (Frome) and the Strode Theatre (Street) have film listings.

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6.24 Just over 50 per cent of households go to the cinema. The main cinemas that households visit are Bath (11.7 per cent), Yeovil (9.7 per cent) and Bristol (8.5 per cent). Of significance is that the smaller, local cinemas of Wells and Frome also feature in total market share percentages with a respective 7.2 per cent and 5.8 per cent of all households indicating these are the cinemas they visit. 6.25 The Wells and Frome town centre cinemas are important facilities that figure quite prominently within NEMS household survey. Residents from these zones (Zone 2, Wells and Zone 4, Frome) visit their local town centre cinema more than any other cinema. Mendip District retains 30 per cent of spend in cinemas. 6.26 Data13 suggests the average multiplex screen would have an average turnover of £310,000 per screen, with an independent cinema screen turning over around £148,000. Taken as a simple calculation the estimated increase in cinema expenditure (likely to be directed to Mendip) of £0.4m to 2021 could support roughly one additional screen in a multiplex format, or double that number of independent screens. Additionally, operators may consider „screen density‟ per 100,000 population within an average 18 minute travel time14 as a measure of need. Figure 6.2 provides an analysis of the current cinema provision using isochrones set at 18 minute drive-time from cinemas in and around the study area. 6.27 Screen density for cinema provision in the South West region is 5.5 screens per 100,000 population15. The study area has a resident population in 2010 of 230,500. Applying this population to the average population density for cinema provision suggests a requirement of 12.7 screens (survey area requirement). For Mendip alone there are c.110,000 residents which gives an indicative requirement of 6 screens. 6.28 Figure 6.2 shows that the majority of Mendip residents are within an 18 minute drive to a cinema, with only 16,000 residents falling outside of this drive time average. The two cinemas within Mendip provide a total of four screens which gives a screen density of about 4.2 per 100,000 population who are within 18 minutes (Mendip District population minus 16,000). It should be noted however that there are three screens in Wells and one in Frome which skews this screen density figure. 6.29 The drive time analysis of cinemas in neighbouring locations shows that a very small number of Mendip residents are within the average catchment area (18 minute drive) for cinemas in Bath and Bristol and Yeovil. Although it is noted that these areas generally provide larger cinema complexes with an increased film offer which may provide an additional pull. This is supported by the fact Bath, Yeovil and Bristol are the top three frequented locations for cinema visits in the survey area (total market share). However, it is again highlighted that local residents in Zone 2 (Wells) and Zone 4 (Frome) do use their local cinema the most. It should be noted that the Wells Cinema competes very strongly on price. This indicates that the local offer is valued and important.

13 Source: Dodona Research. 14 Source: Caviar. 15 Source: The Cinema Advertising Association.

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Figure 6.2 Cinema Drivetime Map

6.30 In summary projected expenditure figures indicate that more screens could be supported within Mendip, however screen density figures indicate that the study area is well served with the proviso that this is skewed by the distribution of screens (three in Wells, one in Frome).

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6.31 Consultation with economic development officers indicated that there is anecdotal evidence for demand for a multi screen cinema in Mendip as it is known that many people go to Yeovil and Taunton. The analysis shows that there is some deficiency in the existing provision and that leakage to the higher order destinations is prevalent across Mendip. Frome would appear to be the most suitable location to accommodate a small modern cinema, such as a 3 screen complex, and would help to serve the east of the District including nearby towns in rural Mendip and west Wiltshire. However it would be fair to assume that any new cinema would preferably replace the existing Westway Cinema and not compete with it. It should be noted that sales densities and rental values are lower in the leisure sector and thus attracting developer interest is less of a certainly compared to the retail goods sector.

Theatres and Music Venues 6.32 There is a good variety of theatre provision within the Mendips. This is concentrated in Frome with other provision in Shepton Mallet, Wells and Street. . Frome  The Merlin Theatre: a 240 seat film and performance venue on the Frome Community College campus with additional community and education programme  Rook Lane Arts: a visual and performing arts venue, gallery space and seating for up to 200  Memorial Theatre: a performance art theatre with additional assembly rooms for community use and private hire  Cheese and Grain: a community building housed in a former market hall providing community uses, markets, music performances and a café . Shepton Mallet  The Academy Theatre: 270 seat theatre (linked to Bristol Academy of Performing Arts) . Wells  Little Theatre Wells: 170 seat operatic theatre  Wells Cathedral: host events and concerts, links with „Bath Festivals‟ events . Street  Strode Theatre: 343 seat venue offering live shows, film and visual arts exhibitions (part of Strode College). 6.33 Anecdotal evidence indicates that although there are a number of theatre venues, the current decrease in Arts funding (e.g. Arts Council and Somerset County Council) has impacted upon the number/range of performances. 6.34 The household survey indicates that of the 50.9 per cent of households that participate in this activity, 30 per cent of activity is retained within Mendip District (with notable retention in Street and Frome – 29 per cent and 24 per cent of residents in these zones indicating they visit their local theatres). This is a good retention rate and can be linked to the range of provision within Mendip.

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6.35 Leakage of spend in this category is mainly to Bath (13.3 per cent e.g. Theatre Royal, Ustinov Theatre), Bristol (12.1 per cent e.g. Old Vic, Wickham Theatre, Hippodrome) and London. 6.36 Growth in household theatre/concert expenditure is projected to increase from £7.76m in 2010 to £10.27m in 2021. Of the £2.51m growth, 22 per cent or £547,180 could be retained in the Mendip area. With the current level of provision within the towns of Mendip and surrounding larger settlements it is suggested that this increase will be absorbed by the existing providers.

Other

6.37 Also of note in the Mendips is the presence of the Royal Bath and West Showground. This is a 98 hectare site just south of Shepton Mallet. It is the venue for one of the UK‟s premier annual agricultural shows (and an important showcase of British agriculture) as well as a wide range of other events (eg agricultural, horticultural, equestrian, religious, and a broad spectrum of leisure events). 6.38 The Frome Festival, now in its tenth year, provides a comprehensive cultural and musical programme drawing up local and national acts (two hundred events over a ten day period) utilising a range of venues. The area also hosts the Frome Agricultural and Cheese Show, an annual event attracting visitors from around the region.

Museums 6.39 Mendip has a small number of local museums including: . Frome Museum . Wells and Mendip Museum . Glastonbury Lake Village Museum . Somerset Rural Life Museum, Glastonbury 6.40 Another museum within the study catchment area is the Radstock Museum. Other historic properties within the Mendip District are: Wells Cathedral, Bishop‟s Palace and Gardens (historic house and garden, Wells), Milton Lodge Gardens (garden and arboretum, near Wells) and Glastonbury Abbey. 6.41 It has been demonstrated16 that larger museums can provide a beneficial part of a destinations overall visitor offer. Museums providing local history can help visitors gain a context for the surrounding locality and help provide an understanding and the development of a connection with a place perhaps resulting in a desire to explore a place further. This can help to spread tourism across the locality. In addition to their contribution as a visitor attraction, they also provide a community focus for education and conservation of local history and culture.

16 RTP (2008) Assessment of the Contribution of Museums, Libraries and Archives to the South East Visitor Economy, Report for the MLA South East.

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6.42 32 per cent of households in the study area indicate spend at these facilities/attractions in the last year, with the local museums receiving a small percentage of the market share (around 1 per cent of visits per location). This reflects the local nature of these museums. London, Bristol and Bath received greater total market shares and can generally be observed as housing larger, national collections. However, zones containing local museums indicate an increased attendance by their local residents. 6.43 Mendip‟s heritage appeal, especially that of Glastonbury and Wells means that this type of facility, although relatively small scale is complementary to core tourism offer (Wells Cathedral, Glastonbury Tor and Glastonbury Abbey). In addition, RTP have undertaken previous feasibility work relating to a lake village attraction for Glastonbury which is a long standing local ambition. The study indicated that it would be possible to build and operate such an attraction, although it would require significant capital funding17. At present no source of funding has been identified, following the County Council‟s wider bid to Big Lottery Living Landmarks in 2008. 6.44 As illustrated, there is a number of existing museum facilities which operate successfully and provide information about local history. It is felt that these will continue serve both local uses and a portion of day and staying visits from outside the district.

Libraries 6.45 Public libraries are an important resource for local communities, generally provided by the relevant local authority and providing ancillary ICT services for public access. Somerset County Council‟s policy aim is: „For libraries in Somerset to make the most positive impact possible on the quality of life of the widest range of individuals and communities in this county. They should achieve this by continually developing services and seeking new and better ways to meet local needs. They should stimulate enquiring minds and a love of books from childhood; develop ICT confidence and skills in people of all ages and provide access to resources which help people engage with learning, culture and society and make informed choices about their lives.‟ 6.46 Each of the five towns in the study area has a County run library service: Frome library is one of the largest in the County; Street library was refurbished in 2002 and houses the Laurence Housman collection. Frome, Glastonbury and Wells libraries house Council Information Points. In addition, there is a mobile library service operating across the area. 6.47 RTP has previously researched a number of case studies that illustrate new library developments can contribute towards town centre regeneration for example through increased appeal from new facilities and service provision to residents and visitors. New facilities can include performance space, exhibition/gallery space and cafes. New provision or refurbished premises can enhance the role of a library for the local

17 RTP (2007) Waterlinks: Glastonbury Hub Feasibility Study, report for Mendip District Council and Somerset County Council.

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community and for the town centre and can lead to linked trips to the town centre by users. 6.48 There is limited commercial opportunity for new library development; as such any future enhanced provision is likely to be lead by the Council and public agencies. Given that case study and best practice examples indicate that libraries can make a positive contribution to town centres, such development would be welcomed in Mendip.

Games of Chance: Bingo Halls, Casinos, Racecourses and Amusements 6.49 There is a very low participation rate in „games of chance‟ which stands at just below 5 per cent. The household survey indicates that Frome is the single location for the highest total spend on bingo halls, casinos and bookmakers. However, despite this, the fragmented geographical location of spend in this category means that the majority of spend is still outside of the study area (68 per cent leakage). 6.50 Current provision can be summarised as: . Bingo Halls: there is one bingo hall within the study area (Kingsway Bingo Club, Frome). Other bingo halls are located in the larger settlements of Bristol, Taunton, Bath, Weston-super-Mare and Bridgwater. There is a decline in bingo halls across the UK18. The level of forecast growth is unlikely to support a new large scale facility . Casinos: the nearest provision is concentrated in Bristol. Given that a small-scale „traditional‟ casino generates average annual turnovers of around £3.5m per casino19 there is likely to be limited scope for the provision of a casino within the study area. In addition, under Section 175 (4) of the Gambling Act 2005 one small casino could be opened in Bath and North East Somerset (one of the areas determined as a potential location for one of eight new small casinos) . Racecourses: There are two racecourses within close proximity to the study area (Wincanton to the south and Bath to the north):  Wincanton Racecourse: voted the 'Best Small Racecourse in the South West' 18 times in 19 years, by the Racegoers Club. 17 fixtures of jump racing between October and May  Bath Racecourse (Lansdown Hill): 20 flat racing fixtures in 2010 . Amusements: there is one amusement arcade operator in the Mendip District (Jokers Den, Frome) and one within the wider study area (Jackpots, Midsomer Norton). Others are in the closest, larger settlements of Bristol, Bath and Weston-Super-Mare. 6.51 A projection of leisure sector expenditure from 2010 to 2021 indicates that there will be a £13.5m increase in household spend in this category in the study area. It is estimated that this expenditure will be broken down as follows: . £947,000 in bingo halls (£303,000 retained in Mendip)

18 Source: The Gambling Commission 19 Source: Ibid

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. £1.29m in casinos (£411,616 retained in Mendip) . £11.4 in bookmakers (£3,617,888 retained in Mendip) 6.52 Given that this is across a period of 11 years it can be assumed that such an increase could be absorbed by existing provision both inside and outside the study area. Particularly given the potential for a new small casino in Bath.

Food and Drink Establishments: Restaurants, Cafes and Bars 6.53 Leisure expenditure is highest in this COICOP category, standing at 50 per cent of total household leisure spend. Taking projected population increases for the study area this total spend is estimated to increase by £89.9 million from 2010 (£276.8m) to 2021 (£366.7m). Within Mendip the retained expenditure is expected to be £152m in 2021. 6.54 Of note is that the retention rate for a) food and drink and b) bars, pubs and nightclubs within Mendip District by Mendip residents is 89 per cent and 90 per cent respectively. A more detailed analysis of where spend is occurring provides a more rounded picture: . Bath receives the highest total market share of restaurant and café visits (10 per cent of all visits from households indicating they go to restaurants and cafes). The majority of this spend is originating from zones 5, 6 and 7 (Midsomer Norton/Radstock, Trowbridge and Westbury/Warminster) all of which are outside of the Mendip and within close proximity to Bath. . Of those zones within Mendip, Frome and Wells each receive approximately 7 per cent of the total market share of restaurant and café visits . Within Mendip (zones 1 to 4) there is a clear pattern of households utilising restaurants and cafes in their immediate locality. For example zone 1 (Street and Glastonbury) retains 44 per cent of its total zone expenditure in this category; zone 2 (Wells) 38 per cent; zone 4 (Frome) 38 per cent) . Approximately half of households indicate expenditure in pubs, bars and nightclubs. Of this, the main trend is that of local people going to / supporting their local facilities. All zones show that the highest spend is retained within that zone. However, the total percentage of spend for pubs, bars and nightclubs is spread across a wide range of areas with no one town / settlement taking a significant share. 6.55 The Town Centre analysis for each of the Mendip Towns shows that the restaurant and café offer in each is in the main commensurate with national unit and floorspace averages with the following further detail: . The number of units (restaurants, cafes, coffee bars, fast food and take-aways) is marginally lower than the national average in all five towns . In Wells and Frome the total floorspace of units in this category addresses this gap as floorspace is very similar to the national average i.e less units but similar total floorspace (Wells 9.3 per cent, Frome 8.8 per cent, national average 9.7 per cent) . Shepton Mallet and Street have slightly larger differences in total floorspace when compared to the national average within this category (Shepton Mallet 6.9 per cent of total town centre floorspace compared with the national average of 9.7 per cent)) (Street 6.9 per cent compared with 9.7 per cent nationally) Roger Tym & Partners September 2010 79

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. Glastonbury‟s floorspace average within this category is higher than the national average (12.3 per cent compared with 9.7 per cent nationally) . Street has fewer public houses than the other Mendip towns: Street (1), Shepton Mallet (3), Wells (7), Frome (8) and Glastonbury (8).

Assessment of Floorspace Need for Food and Drink Operators 6.56 In 2010 an estimated £116m will be spent in food and drink establishments in Mendip. In addition to resident household spend, there will be tourist spend within these businesses. Using published sources from South West Tourism and using the same methodology for comparison and convenience goods expenditure from tourists there is a current estimated spend of £61.1m per annum. The methodology for calculating this expenditure is set out in Appendix 2. 6.57 Therefore in 2010 an estimated total of £177.1m of food and drink expenditure will be made within Mendip. Projected forward to 2021 this expenditure is estimated to be £228.7, a growth of £51.6m. 6.58 However, not all of the growth in retained expenditure will be available for new food and drink establishments. In the same way that an allowance is made in the retail sector for existing operators to improve their turnover efficiency, it is reasonable to assume that some of the growth in available food and drink expenditure will be absorbed by existing operators (to allow them to grow their business, re-fit their premises etc.). In the absence of established guidance (as is available in the retail sector regarding what proportion of expenditure growth should be ring-fenced for existing operators) half of the growth in food and drink expenditure has been allocated to existing restaurateurs and pub/bar operators (i.e. circa £25.8m). Table 6.4 Floorspace Requirements for Food and Drink Operators 2010-16 2016-21 Total 2010-21 Initial surplus £m 26.6 25.1 51.7 Residual £m (Surplus x 0.5) 13.3 12.5 25.8 Floorspace requirement sq m (gross) 1,932 1,657 3,589 Approximate number of new operators 13 11 24

6.59 Table 6.4 sets out an indicative floorspace requirement in the food and drink sector up to 2021. This could include new restaurants, cafes, bars, pubs, take-aways or nightclubs. The average size of all current food and drink operators in the five Mendip towns is 145 sq m gross. 6.60 The indicative floorspace can be converted into an approximate number of units that could be supported by the growth in expenditure. Clearly there is great variance in the floorspace required between operators. However, in broad terms there is likely to scope for around 24 new operators within Mendip or 3,589 sq m gross of A3, A4 and A5 floorspace – new operators, especially chain cafes, bars and restaurants may seek larger format premises. It is thought that the five towns would support the majority of this future capacity due to their current size and function. Smaller village / rural settlements could provide for a small increase.

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Hotels and Accommodation Services 6.61 It is assumed that expenditure within local hotels and other types of accommodation by residents of the study area will be minimal - that their expenditure will made in other areas when making leisure or business trips outside of their area of residence. Therefore expenditure within this category is not a good indicator of local demand and not therefore transferable into future requirements. 6.62 It is tourism and the visitor economy that is of importance here. The Mendip Hills offer: a range of landscapes from the „rolling Mendip Hills to the tranquil Somerset Level‟; a number of outdoor pursuits including walking, cycling, horse riding, golf, caving and fishing; and a variety of attractions as detailed in this section, It is these and visits related to business that impact upon demand for hotel and accommodation services. 6.63 There were 1,504,000 staying visitor nights in Mendip District in 200720. Most domestic staying visitors visit the area for the purpose of holidays (68.4 per cent). The most popular accommodation for domestic tourist trips to Mendip is staying with friends and relatives (38.3 per cent), followed by serviced accommodation (30 per cent) with self catering and touring caravans/tents at just below 15 per cent each. The staying visitor expenditure on serviced accommodation is estimated to be £31m in 2007, which based upon the standard leisure services growth rate of 1.9 per cent per annum (Experian), would equate to an estimated growth of £9.3m in expenditure by 2021. 6.64 Local information reports the following: . A Travelodge Hotel opened in Glastonbury within the last few years which has been reported as popular and meeting visitor demand . Outline planning consent has been given for a 48 bed budget hotel in Wells (Clare‟s Factory Site) although it is unclear if this will proceed. 6.65 There is thought to be a local consensus that Wells can support an additional budget hotel to accommodate the volume of visitors - both generally and particularly at peak times, although this is opposed by the local higher quality accommodation providers. Based upon the forecast growth estimate of £9.3m on serviced accommodation in Mendip there is scope for local operators to increase their turnover and also for a range of small operators or a larger chain facility.

Hair and Personal Grooming 6.66 If the District‟s market share of „hair and personal grooming‟ study area expenditure remains the same in 2021 there will be around £8m available to support new facilities. With an increase in population to 2021 it is considered that this would support additional facilities as well as increasing custom at existing facilities. At present all towns have a similar total number of units and total floorspace within the town centre to national averages.

20 Source: Value of Tourism 2007: Somerset, South West Tourism

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Office Requirements

6.81 The Mendip Employment Land Technical Paper (2008) identifies a requirement of 6.2ha of employment land for the key town centres in the District, which includes hotels and office space for telecoms, professional and business service uses. Frome and Wells have the largest need with 2.6ha going to other rural settlements outside the five main study towns. 6.82 The Technical Paper also indicates that Frome has planning consent for 5,000 Sqm of office floorspace (largely at Commerce Park which serves a different type of market) and so town centre office development is being sought as part of the Saxonvale scheme. Shepton is thought to have consent for just under 1,000 Sqm and Wells 2,500 Sqm. However only 13 Sqm net additional office floorspace was delivered between 2004 and 2007 due to several losses in Frome, Glastonbury and Wells. The paper comments further that new land is not available in the town centre and that the focus will need to be on harnessing nearby redevelopment opportunities to provide centrally based new jobs.

Summary of Need for Additional Commercial Leisure and Cultural Facilities

. There is an estimated growth in leisure services expenditure of £159.4 million between 2010 and 2021. For Mendip residents this growth in spending power is £63m . Half of total annual leisure spend is made within food and drink establishments (e.g. restaurants, cafes and bars). The remaining leisure categories (e.g. cultural services such as cinema and theatre admissions, accommodation services, games of chance and recreation and sporting services) receive a far lower percentage of the total leisure spend at between 5-14 per cent . Food and drink operators: Frome and Wells have a strong local market for restaurants, cafes and bars. The current offer in the five towns is currently commensurate with national unit and floorspace averages. Given that expenditure is estimated to rise by £51.6m to 2021, 25 new operators could be supported (3,600 sq m of A3, A4 and A5). The five towns would support the majority of this future capacity due to their current size and function. Smaller village / rural settlements could provide for a small increase . Only 9.3 per cent of family entertainment spend is retained in Mendip (£956,970 of the estimated growth within this sector to 2021). This could potentially support a new, small facility, given the broad nature of facilities within the category and the dispersed location of current provision, new applications for recreation and sporting facilities should be dealt with on an individual basis . Cinemas: Wells and Frome have independent cinemas and provide important facilities for local residents. These and the fact local theatres also provide film programmes mean Mendip retains 30 per cent of household expenditure on cinema admission spend. Majority of population is within the average cinema going 18 minute drive time. Screen density is 4.2 per 100,000 compared with SW average of 5.5 screens

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. Theatres: good retention rate of total spend (30 per cent), this can be linked to the range of current provision across the district . Museums: there are a number of smaller museums with a good geographical spread (Frome, Wells, Glastonbury and Norton Radstock on the northern fringe of the district). It is unlikely that an additional, high profile, larger scale museum facility could be supported . There is a low participation rate in games of chance (bingo halls, casinos, racecourses and amusements) at 5.5 per cent of households and a limited increase in expenditure over the next 11 years. It can be assumed that such an increase could be absorbed by existing provision both inside and outside the study area. Particularly given the potential for a new, small casino in Bath . Office space: There is a 6.2ha requirement for Mendip town centres, which includes restaurants, and office space for telecoms, professional and business service uses. Town centre office development is being sought as part of the Saxonvale scheme in Frome. Shepton is thought to have consent for just under 1,000 Sqm and Wells 2,500 Sqm.

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7 STRATEGY AND RECOMMENDATIONS

Introduction

7.1 In Section 2 of our report, we set out the requirements that PPS4 imposes on Local Planning Authorities (LPAs) and Regional Planning Authorities (RPBs)21 in preparing development plans. These include the need to: . Set out a strategy for the management and growth of centres over the plan period . Promote competitive town centre environments and provide consumer choice . Identify a range of sites to accommodate identified need. 7.2 Thus, in preparing their Development Plan Documents (DPDs) within the context set by PPS4, LPAs must: . Select appropriate existing centres to accommodate growth, making the best use of existing land and buildings, but extending the centres where appropriate using tools such as the Action Plans, CPOs and strategies to improve transport, land assembly, crime prevention and design . Manage the role of existing centres through the promotion of specialist activities, or specific types of uses. 7.3 Section 2 referred to the test of soundness introduced by PPS12 in June 2008. This test requires the Council to demonstrate that its chosen strategy is the most appropriate, when considered against reasonable alternatives and, secondly, that the chosen strategy is effective and deliverable. 7.4 Thus, in assessing strategies for meeting retail and leisure needs, those that do not accord with national, regional and local policy are dismissed. In addition, it is considered that all reasonable strategies should acknowledge the suggested hierarchy of centres. 7.5 The preferred option sets out retail and leisure floorspace requirements for each town centre. Individual town centre strategies make recommendations as to how these requirements could be achieved. Due to reservations as to the accuracy of forecasts post 2021, more weight should be given to the 2010 – 2021 requirements. The requirements to 2031 are less reliable and should be reviewed within five years of this study and with regular monitoring thereafter. 7.6 The recommendations below are intended to inform the Core Strategy and future DPDs or any other Local Development Documents (LDDs).

Recommendations for Hierarchy of Centres in Mendip

7.7 In Section 3, there is an assessment of the vitality and viability of Mendip‟s five town centres, which included Clarks Village. The adopted Mendip District Local Plan (2002)

21 It is acknowledged that formal decision making at a regional level is likely to be rescinded with the advent of the new government

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sets out the District‟s Settlement Policy in Policy S1 which establishes a hierarchy for centres. This states that Frome, Glastonbury, Shepton Mallet, Street and Wells are all Towns that should be the focus of new development. The Local Plan also states that there is no District or Rural Centres in Mendip. 7.8 This report is guided by PPS4 and the definitions for each type of centre that are given in PPS4 (2009) Annex B are as follows: . Town Centres - in many cases, they will be the principal centre or centres in a local authority‟s area. In rural areas they are likely to be market towns and other centres of similar size and role which function as important service centres, providing a range of facilities and services for extensive rural catchment areas. . District Centres - will usually comprise groups of shops often containing at least one supermarket or superstore, and a range of non-retail services, such as banks, building societies and restaurants, as well as local public facilities such as a library. . Local Centres - include a range of small shops of a local nature, serving a small catchment. Typically, local centres might include, amongst other shops, a small supermarket, a newsagent, a sub-post office and a pharmacy. Other facilities could include a hot-food takeaway and launderette. In rural areas, large villages may perform the role of a local centre. 7.9 Based on these definitions RTP recommends the following hierarchy as shown in the table below. There are no changes to the hierarchy of the five main towns. It has been documented that Shepton is facing decline, however the centre still has a range of shops and services serving the central Mendip area. 7.10 RTP has also considered the potential for introducing local centres into the hierarchy for four smaller locations in Frome. The only location deemed to be capable of performing concerted local role for a small catchment is that of Badcox/Broadway which is adjacent to the town centre but situated at the top of Catherine Hill, whereby the steep gradient limits linkages between these two distinct centres. It is felt that the three other locations of Tesco Express off Stonebridge Drive, Rodden Road/Berkley Road and Culverhill/Lower Keyford are purely of neighbourhood significant and have limited opportunity to expand their retail and service offer to that of a local centre. Based upon the advice of PPS4, centres of neighbourhood significance should not be designated in the hierarchy of centres. 7.11 This study has not considered whether villages in rural areas meet the PPS4 criteria for a local centre. It is recommended that MDC consider rural villages and include within the retail hierarchy if appropriate. Table 7.1 Mendip Town Centres Hierarchy

Position in Hierarchy Centres Town Centre Frome, Wells, Street, Glastonbury, Shepton Mallet District Centre None Local Centre Badcox/Broadway (Frome)

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Town Centre Retail Strategy Development

Strategic Objectives 7.12 The sequential approach requires that town and district centres should be the first choice for retail and leisure development. It is important to ensure that development remains in keeping with the scale and function of the centre in which it is located. The overarching objectives for the strategy development process are taken from the emerging LDF Strategic Objectives for Mendip‟s Core Strategy. It is these that set the context and inform the criteria for assessment. Table 7.2 Mendip District LDF Strategic Objectives (relevant to this study) To diversify and strengthen the local economy SO3 Deliver modern and flexible office development within the heart of each town SO5 Support proposals which improve and extend tourism in each of the Mendip towns To promote greater vitality and viability in our market towns and rural communities SO9 Develop and reinforce the distinctive identities and specialisms of the Mendip towns Maintain and enhance town centres to make them attractive places to visit at any time of the day, and promote sensitive redevelopments, particularly in Wells and Frome, SO11 that make them the first choice shopping destination for the widest range of goods that their catchment areas can support To improve accessibility by means other than the private car Ensure that the majority of new developments, particularly major traffic generators, are SO24 located to be accessible by a range of transport modes To maintain and enhance the quality of the local environment and contribute to international climate change goals Create well designed places that are safe and responsive to their surroundings, SO26 whether built, natural or cultural

Source: Mendip Community Partnership (2009) Local Development Framework Core Strategy - Spatial Vision and Strategic Objectives. 7.13 Thus the LDF Strategic Objectives underpin the broad objectives for assessing a variety of strategy options for Mendip. Each option (set out below) has been assessed against a range of bespoke criteria, which take their principles from the LDF Core Strategy Spatial Vision and Strategic Objectives. The assessment criteria are set out in Table 7.3, setting out the planning and policy rhetoric for each theme.

Strategic Growth Options 7.14 The move towards creating sustainable communities is a fundamental principle for planning wherever the location. In terms of retail planning this involves a need to encourage development that is accessible to all sectors of the community. In turn, this suggests a need to cluster services and facilities together so as to reduce the need to travel and, where travel is necessary, for the development to be in locations where there are opportunities to use public transport and that are accessible to pedestrians. To this end retail planning uses a sequential approach to test options whereby existing or new centres should be the first choice for retail and leisure development. Those forms of retail facilities which serve smaller and more localised catchments should be located in the smaller district centres, particularly where there are identified gaps in the market. In all Roger Tym & Partners September 2010 87

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cases, however, it is important to ensure that development remains in keeping with the character, scale and function of the centre in which it is located. Table 7.3 Key Policy Assessment Criteria Policy Objective Policy Requirements/Explanation

To improve economic performance through promoting Improve economic opportunities that could potentially increase local performance expenditure, enhance image and promote inward investment.

The vitality, viability and diversity of existing centres should not be undermined. The Council should be proactive in Impact on vitality and encouraging appropriate development to maintain and viability of town centres enhance their functions as centres and make them attractive places to visit.

Reduce need to travel, especially by car, apply a sequential Promote sustainable approach to development by locating new retail development patterns of development in and around existing centres where possible. To ensure centres provide sense of place and a focus for the Promote sustainable community and civic activity. This objective also seeks to communities and social broaden the opportunities for social and leisure uses in the inclusion town centres to maximise length of stay and quality of experience. Strategies should make a positive contribution to the built Conserve and enhance the environment, building on character and uniqueness. historic, archaeological and Development opportunity that could improve and enhance architectural heritage existing areas of conservation and historic importance are encouraged. Ensure deliverability It must be demonstrated that strategies and objectives are through assessment of deliverable, taking into account the need for sufficient viability and commercial infrastructure, policy considerations, involvement of key realism stakeholders and partners. Local Authorities should be proactive in encouraging Networks - Addressing appropriate development to maintain and enhance their deficiencies and gaps in function as town centres. Growth strategies should ensure the network of centres that an appropriate hierarchy is planned through addressing deficiencies, whilst avoiding over concentration.

Note: Policy objectives informed by the Mendip Core Strategy Spatial Vision and Strategic Objectives and supplemented by additional commercial and national policy considerations. 7.15 In this context, the following five alternative strategic options are proposed for accommodating the retail and leisure need identified in Section 6 of the Report: . 1. Status Quo: distribution of retail and leisure uses based upon current market shares – This strategy would seek to plan for new retail and leisure provision directly in keeping with current market shares attained by the five Mendip town centres. On this basis there would be larger volumes of floorspace required at Street/Clarks Village and Frome with lesser focus on Shepton, Wells and Glastonbury. . 2. Polarisation strategy to limit growth in Mendip‟s town centres – This strategy will allow for increased leakage of comparison spending to higher order centres outside Mendip. This would serve to reduce the need for major redevelopment and extension to the existing historic towns as well as out of centre large format retailing.

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Polarisation would allow for preservation, conservation and sensitive small scale expansion which would lead to consolidation of the role of Mendip towns. . 3. Focussed strategy to concentrate growth at Wells and Frome – In keeping with the LDF objectives, any development in Wells and Frome would need to be sensitive and complement their historic nature. As the two key towns with strongest vitality in Mendip they would plan to deliver the majority of the floorspace requirements through redevelopment of aging and poor performing existing retail areas and expansion of the centres through edge of centre retail, office and leisure schemes. . 4. Focussed strategy to concentrate growth at Frome and Shepton – This strategy takes the form of option 3, but with Shepton Mallet being the focus for new retail development instead of Wells. Shepton‟s element of growth would include an expansion of the large format retailing to help deliver against floorspace capacity. . 5. Focussed strategy to concentrate growth at Wells and Street/Clarks Village – This option would seek to deliver a better shopping experience in Wells through maximising opportunities for a town centre extension and possible edge of centre larger format retailing. Street would seek to intensify retailing through expansion of Clarks Village and provision for leisure uses in the town centre. This would require development of parking areas and innovative schemes such as decked parking to accommodate visitors. 7.16 It is useful to note, at this stage, that whilst considering and evaluating the distinct options in isolation, it is quite conceivable that the Council may identify a preferred strategy which forms a composite based upon elements from any one of the options put forward in this report. In addition to the strategic option there will be retail needs and smaller scale requirements for initiatives in each of the five main towns. These are set out with RTP‟s suggested preferred option.

Options Appraisal 7.17 The remit in this strategic study is to evaluate various options for growth in broad terms. Five strategic options are appraised against a set of key policy criteria which take into consideration local and „sound‟ planning objectives. The appraisal exercise carefully considers the risks that each strategy poses to these wider policy and development principles. Thus the five strategic options for meeting the retail needs of Mendip are assessed in matrix format in Table 7.3.

Appraisal Approach 7.18 While it is acknowledged that it is important to avoid adopting a mechanistic and prescriptive approach to the appraisal process, since the assessment of the criteria and objectives is often subjective and will depend on the weight given to the individual factors. However it is considered desirable to provide an evaluation rating for each of the strategic growth options using a simple scoring mechanism, as follows: . Good – wholly or substantially achieves the criteria objective (+3 points) . Moderate – partially achieves the criteria objective (+1 point) . Poor – wholly or substantially fails to achieve the criteria objective (-2 points)

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Findings from the Appraisal

7.19 The total score row in Table 7.4 illustrates the relative strengths of the five strategy options, which have a maximum achievable score of 21. 7.20 As Table 7.3 indicates the preferred strategy option is likely to be that of strategy 3, which scored highest with 11 points, although this is someway short of the maximum. The lowest ranked strategy is number 2 with a score of -6. Strategy 2 which would plan to limit growth and allow for polarisation and an upward trend in leakage scores poorly against most of the policy aims. This is largely due to the negative stance that this strategy poses, which would threaten confidence and future investment in the towns and conflicts with current policies to increase sustainability and self containment of settlements. 7.21 Strategy 5 (growth concentrated at Wells and Street/Clarks Village) would concentrate growth on the west of Mendip to the detriment of Frome and the eastern catchment. While Wells and Street/Clarks Village currently perform well, growth at Street/Clarks Village in particular would bring few benefits to Mendip other than increased shopping trips and inflow. A more appropriate approach would be to seek a range of qualitative improvements to Street along with modest retail and leisure provision. 7.22 With Strategies 1, 3 and 4 attaining close and respectable scores there is clearly some merit with the three options proposed. Strategy 1 for example (distribution based upon market share) would focus new retail in Street and Frome as these two locations currently attain the largest market shares for Mendip towns. Under this strategy new retail would also be needed in Shepton as it attains around 7 per cent of market share. Wells has a lower share for comparison goods from residents in the catchment and thus it would only need to accommodate a modest amount of new retail under the status quo strategy. The key pitfall with this strategy would be the lack of ambition to maximise and tailor opportunities where growth can be best accommodated and most beneficial to the District. Shepton and Glastonbury are not considered to be the most deliverable locations and as such, equitable distribution across the five towns may not be deliverable or feasible.

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Table 7.4 Appraisal of Strategic Options

Strategy 1 - Status Quo: Strategy 5 - Focussed strategy to distribution of retail and leisure Strategy 2 - Polarisation strategy to Strategy 3 - Focussed strategy to Strategy 4 - Focussed strategy to Policy Aim concentrate growth at Wells and uses based upon current market limit growth in Mendip‟s town centres concentrate growth at Wells and Frome concentrate growth at Frome and Shepton Street/Clarks Village shares Moderate - The centres growth Poor - This option would constrain Good - These two centres both offer Moderate - While Frome is a clear Moderate - Both centres perform well at according to current market share, economic performance of the town good opportunities for new development opportunity, Shepton is also in need of present, especially the Village and thus 1. Improve however this may not reflect the centres as investment and which could attract a range of town significant investment in the retail sector. this option would help to grow retention in economic potential for concentrated growth expenditure would be displaced to centre uses. Their geographic location is This may benefit Shepton but might not Mendip and attract spending from performance in some locations or reflect how centres outside of Mendip. complementary and focussed growth in produce the greatest economic and outside. The eastern side of the economic performance could best these locations would serve the District competitive benefits for Mendip as a whole. catchment (Frome) would be neglected in be improved. well. this strategy. Moderate - While this option Poor - By consolidating or Moderate - Investment channeled to Moderate - With Shepton being identified Moderate - This option would enhance should provide enhanced retail maintaining the centres as they are, Wells and Frome would serve to enhance as the poorest performing town centre this Mendip‟s visitor retail offer and stimulate functions in the town centres‟ it vitality and viability is likely to drop their vitality and viability however there is option would seek to correct market failure. increased retention and inflow, 2. Impact on vitality may lead to inappropriate as Mendip will not keep pace with a chance that this may threaten Shepton However demand is low in Shepton for contributing to vitality. This would and viability of town development in areas where competing locations. Lack of Mallet as residents would make use of town centre units. New development is however neglect strategic opportunities in centres capacity is limiting. investment will undermine retailer improved shopping facilities elsewhere. likely to come from out or edge of centre Frome, serving the east of the district. confidence and alliance. Street and Glastonbury are likely to large format which will not serve to maintain vitality and viability. enhance the town centre. Good - Floorspace development in Poor - While this option would seek Good - These two locations along with Moderate - The scale of growth directed to Poor - Focusing growth at the two all town centres would seek to to enhance the service and amenity existing Clarks Village should serve to the smaller centres makes them more prominent destinations in Mendip would 3. Promote enhance local use of shopping, role of centres it would lead to enhance retention of spend and local use attractive, and they will better serve their serve to increase this trend and attract sustainable patterns services and leisure facilities. enhanced leakage and travelling for of the larger shopping and leisure natural catchments, reducing the need to more incoming visitors. This is good for of development comparison shopping. facilities through improved town centres. travel to larger centres. However, the growth and poor for sustainability as growth potential of other centres is not visits would be largely car borne. maximised. Good - Floorspace development in Poor - Lack of change and Moderate - This option will not target the Good - This option will enhance town Moderate - This option will not target the all town centres would seek to investment would struggle to most vulnerable centre(s) in Mendip, centre facilities and services in Shepton most vulnerable centre(s) in Mendip, 4. Promote enhance local use of shopping, enhance sustainability and social however there is opportunity to create where small pockets of deprivation exist. however there is opportunity to improve sustainable services and leisure facilities. inclusion. Travel to other centres greater sense of place, particularly in Intervention to revive Shepton in particular diversity, particularly in Street. communities and outside Mendip lacks sustainability Frome. would hopefully lever greater community social inclusion and lessens opportunity for local engagement and use of the town centre. community engagement. Moderate - All of the town centres Good - This strategy would allow for Moderate - While it is envisaged that high Moderate - While new development is Moderate - While it is envisaged that high 5. Conserve and have elements of historic value preservation of the existing character quality, sensitive and complementary unlikely to enhance heritage it is envisaged quality, sensitive and complementary enhance the and architectural importance. New in each of the towns, especially development can be achieved in Wells, that out of centre retail in Shepton would development can be achieved in Wells, historic, floorspace in any location could Wells and Frome - an important this will be the greatest challenge and not affect the town centre's heritage and this will be the greatest challenge and archaeological and have a negative impact and thus policy aim set out in the LDF. one which will be contentious. Frome's that Frome's opportunities would seek to one which will be contentious. Street and architectural complementary growth is one of opportunities would seek to renew less renew less attractive 60s era stock and the Village have fewer sensitivity issues. heritage the key challenges in Mendip. attractive 60s era stock and PDL sites. PDL sites. Poor - It will be difficult to deliver Moderate - While planning for limited Moderate - These locations are likely to Poor - Shepton has limited commercial Good - Based upon attractiveness, new development in all of the town new development would negate the be the most attractive and realistic of all appeal at present, especially for the town market share and vitality, development at 6. Ensure centres, especially in locations with need to ensure deliverability, this the Mendip town centres. Existing centres. Large format may be commercially the Village and Wells is likely to be deliverability limited site options, where may also undermine the commercial experiences with the Saxonvale site in viable but there are few site opportunities to reasonably attractive and achievable, through assessment commercial interest and the appeal and interest for smaller Frome indicate that deliverability is do this. Existing experiences with the although at this point in time there is of viability and current shopping offer is poor or refinements to the town centres to uncertain at present. Saxonvale site in Frome indicate that uncertainty in the short to medium term, it commercial realism small scale. come forward. Existing retailers may deliverability is uncertain at present. should be possible in the long term. lose confidence and alliance. Moderate - The centres grow Poor - This option would provide Moderate - This option would ultimately Good - This option would support the Moderate - This option would ultimately 7. Networks - according to their current market limited opportunity to improve the reinforce the two primary centres in poorest performing centre (Shepton) and reinforce the two strongest centres in Addressing share, thus those centres where network of centres or plan for Mendip by making best use of their also build upon the regeneration Mendip by making best use of their deficiencies and the need for growth is greatest or maximising potential and correcting potential. Perhaps at the expense of opportunities in Frome, while Wells, Street potential. Perhaps at the expense of gaps in the network where potential is strong are not deficiencies. correcting market failures in Shepton. and Glastonbury appear relatively healthy correcting market failures in Shepton. of centres targeted accordingly. centres. Total Score 8 -6 11 8 6

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7.23 Strategy 4 scores reasonably well as it would allow for investment and regeneration in Frome as well as Shepton Mallet, where town centre vitality and viability is lacking and in need of rejuvenation. A reality check suggests that while investment in Shepton‟s town centre is needed it is difficult to see where this will come from and how it can be achieved, thus deliverability of Strategy 4 is poor. Strategy 3 emerges as the forerunner for a number of reasons. Wells and Frome operate in separate catchments and a focussed approach in these locations would strike a balance for Mendip. Secondly, they both have clear development opportunities which could accommodate the level of new retail floorspace required in Mendip. Thirdly, growth and enhancement of Wells and Frome is considered to be the most effective strategy for improving overall economic performance and competitiveness in Mendip, especially as Street and Clarks Village and Glastonbury currently perform very well and are likely to continue to do so. 7.24 As noted, the strategy options are strategic in nature and provide a broad framework for developing the retail strategy for Mendip. Thus, rather than advocate strict adherence to a single strategy, it is suggested that Strategy 3 is promoted as the broad approach but that individual opportunities and deficiencies are also addressed in the other towns. This reflects the relatively equitable nature of each of the five town centres in Mendip and the need to maintain relationships and a hierarchy between them. The distribution of comparison goods floorspace would therefore follow the following principles: . Maximise the town centre floorspace provision in Wells and Frome up to 2031, ensuring the new development is sensitive to the historic environment and that retail floorspace is able to complement and enhance to shopping functions of the two town centres . Acknowledging that Glastonbury has limited opportunity for town centre or edge of centre development and that their would be limited appeal or need for modern retailing in the town, some out of town retail has planning permission and further expansion of this could be considered to help deliver minor levels of residual floorspace requirements . Street and Clarks Village do not require any significant expansion or growth; however qualitative improvements and strategies should be identified and delivered. . New town centre retail is desirable in Shepton, there is need for general investment to the existing town centre area and opportunities should be maximised where possible. 7.25 The following section sets out the strategy and retail and leisure floorspace requirements for each town centre (which are rounded to the nearest 100 sq m for ease of presentation) and the recommendations for spatial proposals and how these could be achieved. While floorspace forecasts are provided to 2031, requirements beyond 2016 and 2021 are less reliable and should be reviewed within five years of this study, and with regular monitoring thereafter.

Comparison Goods and Other Town Centre Uses

7.26 The recommended strategies are intended to inform future development plan documents and draw from the research and analysis gathered and presented in this study, particularly the health checks, spending patterns and capacity assessments for retail and Roger Tym & Partners September 2010 92

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leisure floorspace. For brevity the context is not rehearsed here but does reflect the study findings and broad qualitative considerations for each town relating to market failure, gaps and deficiencies, assets and opportunities, current performance and sequential suitability. 7.27 Following a place shaping approach the quantum of floorspace required in each town and phasing for such growth has been tweaked to take account of current development opportunities, constraints and existing qualitative needs. It is also important to note that the economic downturn has effected a slow down in the rate of consumer expenditure growth and delay project development, but this is unlikely to permanently defer retail schemes and thus it will be important to monitor and review expenditure rates and economic recovery in the coming years.

Frome Town Centre 7.28 Under Strategy 3, which earmarks concentrated retail provision in Frome and Wells, Frome will need to deliver a significant proportion of Mendip‟s comparison goods requirement and it is considered that a strict town centre first approach is adopted to stimulate investment and provide physical renewal for the town‟s poor performing and outdated retail area. The primary development objective is to ensure delivery of the Saxonvale scheme for retail, leisure and office floorspace. Observations that the outline application for the scheme proposed a lower volume of retail and leisure space than the Council‟s Planning Brief indicated. In order to ensure that new retail development in Mendip is town centre focussed, there is a need to maximise the A1, A3 and A4 uses to compete with Trowbridge in particular where existing leakage is prevalent. The aim here is not to claw back significant portions of trade but to maintain and enhance Frome in line with Trowbridge and limit additional leakage to Bristol and Bath which have significant comparative advantages in their retail offer. 7.29 There are two key opportunities for further re-development in Frome town centre – Westway and Kingsway. Both of these areas look tired and the performance and retail offer is deteriorating. There is scope for the Council to initiate discussions and ambitions to revive these two key locations for renewal. The first stage would be to liaise with the relevant site owners before establishing indicative development or planning briefs for these locations. The study recommends that these key retail sites would deliver the range of modern retail premises that Frome needs which will balance and complement the artisan and independent retailer reputation. 7.30 There is a requirement for a range of passive leisure uses such as cafes, bars and restaurants to improve the evening economy and enhance Frome‟s role as a social and visitor destination. The forecast requirement will be for 1,100 sq m (gross) by 2021, increasing to 2,100 by 2031. On the basis of current average operator size in the Mendip town centres this would equate to 22 new operators in Frome by 2031. However if new larger format premises are supplied then a smaller number of larger facilities would required. There is scope in Frome for a new cinema to replace the existing one screen facility which is appreciated but under-used due to aging premises and lack of choice and flexibility with the single screen.

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Table 7.5 Frome Floorspace Requirements

2010-16 2016-21 2021-26 2026-31 2010-31 A1 Comparison (sq m net) 1,330 2,770 3,040 3,360 10,500 A3, A4 and A5 (sq m gross) 580 500 510 510 2,100

7.31 A range of „softer‟ qualitative actions are required to revitalise and address deficiencies in Frome town centre: . New public realm investment and design guide for the town centre. Needs to address traffic issues and provide strong and safe links between the shopping areas in the town centre . Traffic management and relocation of bus stops on Market Place . Evening and leisure uses will ideally provide high quality eating and drinking facilities which are family inclusive . Endorsement of Vision for Frome‟s aspiration to make better use of the riverside for public open space . The general and specialist markets at Market Yard and Cheese and Grain would ideally be located on a town centre spot. In the medium to long term, market uses could be integrated with any redevelopment of Westway. This would also serve to better integrate the Cheese and Grain with the town centre.

Wells Town Centre 7.32 As above, Wells partners Frome as the strategic growth option for Mendip. There is presently an opportunity for new retail development within the town centre at sites on Princes Road and Priory Road. There could be scope to plan for a town centre extension to assist with the delivery of new floorspace requirements; however it needs the right shopping mix. This could potentially provide modern A1 retail space that is currently lacking in the town centre as wells as a range of evening and leisure uses. This would serve local and sub-regional consumers rather than tourists and so prevent residents from travelling further afield to Bath, Yeovil, Bristol and Cribbs Causeway for their A1 comparison shopping. It is considered that the two aforementioned sites offer the best sequential opportunities, with least impact on the historic environment, to accommodate modern new build retail and should be the primary consideration for enhanced provision in Wells. It is considered that a well planned and integrated scheme is the best option rather than an out of centre competing enclave - this should be resisted based upon sequential suitability and due to a lack of qualitative need for this type of retailing in Wells. 7.33 However, such a development in the centre would have to be sensitively designed and sensitively linked to the existing retail core to prevent it from detracting from Wells‟ history, heritage and current successful offer. Although listed buildings and conservation areas constrain development, it is recognised that they are assets and contribute to attracting business and consumers and create an attractive environment. These constraints, whilst restricting development freedom, provide developers with opportunities to design innovative proposals which add to distinctiveness and attraction. 7.34 It is observed that Wells is currently performing well and that the proposed strategy for growth is longer term, thus no emphasis has been placed to front load the floorspace Roger Tym & Partners September 2010 94

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requirements in Wells. It is noted that while two key sites exist, it will take time to undertake the necessary masterplanning and site assembly tasks, especially in light of the long run recovery predicted for the national economy. Table 7.6 Wells Floorspace Requirements

2010-16 2016-21 2021-26 2026-31 2010-31 A1 Comparison (sq m net) 1,330 2,770 3,040 3,360 10,500 A3, A4 and A5 (sq m gross) 580 500 510 510 2,100

7.35 Wells has a high quality leisure offer, including independent cinema, small operatic theatre and a host of musical and cultural events at the cathedral. In line with retail growth there will be scope for additional A3, A4 and A5 uses to serve local residents and the buoyant visitor economy. The earmarked 2,100 sq m could allow for around 14 new café, restaurant and take-away uses in the town, based upon the current format and floorspace of existing A3-A5 operators. For new modern premises, this may entail fewer numbers operators occupying larger footplates. In addition there is thought to be enough demand from tourism visitors to support a budget/mid-range hotel facility in Wells. 7.36 Recommendations for qualitative improvements to the town centre include: . Continue local initiatives to bring back minority of long term vacancies into use . Protect the defined primary frontage to ensure that local residents have access to a range and choice of A1 shops – comparison goods retention is low at present . Review the max stay for town centre parking (currently 3 hours) to allow for longer dwell times for visitors . Explore the destination and marketing opportunities presented by the proposed World Heritage Site covering Wells, Glastonbury and Somerset Levels.

Shepton Mallet 7.37 Shepton would clearly benefit from new town centre regeneration, possible on one of the allocated sites in the local plan. However long term decline in vitality, viability and footfall in the town centre leaves Shepton in a position where investor confidence is low. A public/private sector partnership retail scheme may help to revive the town centre but it is unlikely that this will be possible. It is within this context that strategy options for Shepton are presented. A range of qualitative measures to revitalise existing shops, especially vacant units and the shopping environment are suggested: . Support and progress the work of Shepton 21‟s At a Crossroads Community Plan . Work to ensure continued support for the enhanced weekly market . Encourage quality local service retail and evening and leisure uses which tend to capture larger proportions of local resident spend and patronage . Maximise opportunities arising from the television production in the town centre . General funding initiatives and grants such as the Townscape Heritage Initiative are welcomed and any future funding should be focussed upon town centre retail units and the retail environment . Support the Academy in establishing its status as a performing arts school in turn improving activity and footfall at the northern end of the town centre.

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7.38 The health check and household survey of shopping patterns identified limited impact of the Townsend Retail Park on the town centre, likewise, it has done little to rejuvenate shopping on Shepton‟s High Street either. There is scope to enhance retail provision in Shepton over the plan period and around 7,000 sq m (2700sqm to 2021) of A1 retail floorspace is allotted. The identified retail floorspace requirement should ideally come forward in the town centre. The recent investment by Haskins has demonstrated that investment and development within the town centre is achievable. Any other proposals would need to demonstrate how they would benefit the town centre. It is also recognised that further additions to Townsend Retail Park may be constrained by the existing layout of the site. Table 7.7 Shepton Mallet Floorspace Requirements

2010-16 2016-21 2021-26 2026-31 2010-31 A1 Comparison (sq m net) 890 1,850 2,030 2,240 7,010 A3, A4 and A5 (sq m gross) 140 120 120 120 500

Street 7.39 Street received a healthy health check report and Clarks Village is clearly instrumental to its ongoing vitality. It is acknowledged that a significant proportion of retail expenditure comes from shoppers outside the Mendip area and that the town centre, not just Clarks Village receives trade benefit. There is limited scope or need for Clarks Village to expand its retail offer and expansion opportunities would require major remodelling. Instead the strategy aims for Street to seek to enhance the evening and leisure retail uses in the town centre, possibly by planning for a new scheme along Farm Road to accommodate suitable units which will attract national restaurants. The vision here is to attract evening visits to the town and provide eateries and A4 establishments which will appeal to young adults and families. It is thought that a small cluster of A3 and A4 premises is needed as a catalyst to bring new leisure retailers to Street. Development in this location would also deliver additional linkages between Clarks Village and the High Street as this road is presently not well trafficked by pedestrians. A3 and A4 businesses along Farm Road would also benefit from Village‟s lunchtime custom and thus it is deemed to be a particularly suitable location. There may also be some scope for a limited amount of A1 retail along Farm Road and a modest amount of additional A1 floorspace is allocated to Street over the plan period to 2031. Table 7.8 Street Floorspace Requirements

2010-16 2016-21 2021-26 2026-31 2010-31 A1 Comparison (sq m net) 440 920 1,010 1,120 3,490 A3, A4 and A5 (sq m gross) 800 400 200 200 1,600

7.40 As well as the potential for a new retail and leisure scheme on Farm Road it is felt that new and improved A3 and A4 establishments would be welcome on the High Street in locations outside the primary frontages to introduce choice and quality to the evening economy. Other qualitative considerations include: . Longer term potential for physical renewal of the Crispin Centre

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. Public realm streetscape enhancements along the High Street would help to improvement attractiveness of Street . Exploring the potential to implement a pedestrianisation scheme on the High Street is recommended as this emerged as a qualitative consideration during consultation . There is a need and desire to improve the convenience retail offer in the town centre. While it is difficult to plan for and influence the type of retailers, this deficiency could be addressed by re-introducing a food market or farmer‟s market – noting that it has previously been tricky to find a viable location in the town.

Glastonbury 7.41 As documented in the health check, Glastonbury performs well as a town centre, although it caters predominantly for tourist visitors and thus the service and amenity retail offer is under-represented. There is limited opportunity for additional retail development of any scale in the town centre, however there is certainly scope for intermittent residential properties along secondary frontages to increase the range of shops and leisure uses within the town – this is the sort of unit most desired and viable for Glastonbury and as such, encouragement for change of use within the town centre boundary should be looked upon favourably. Indeed the town has a good range of tea rooms and cafes along with pubs, but new A4 businesses would help to diversify the town‟s evening economy and thus roughly five new A3, A4 or A5 units could be accommodated within the 700 sq m capacity identified for Glastonbury. With regard to A1 retail a modest 3,490 sq m is required between 2010 and 2031 – this could come forward from change of uses, infill development and extension of the shopping frontages within the town centre. Table 7.9 Glastonbury Floorspace Requirements

2010-16 2016-21 2021-26 2026-31 2010-31 A1 Comparison (sq m net) 440 920 1,010 1,120 3,490 A3, A4 and A5 (sq m gross) 190 170 170 170 700

Convenience Goods Retailing

7.42 The floorspace analysis reveals a modest floorspace of 1,769 sq m for Mendip up to 2031. Over the medium term to 2021 there is no requirement for any floorspace. This is in light of current planning consents for new foodstores at Glastonbury, an extension to Tesco at Wells and a new Waitrose in Wells. This has absorbed all quantitative need in the convenience goods sector. 7.43 As noted through the health check work, there is currently a lower level of local retention for convenience shopping in Wells and Shepton Mallet. It is considered that the new Waitrose foodstore proposals will address this deficiency. Shepton also exhibits patterns of local outflow for some convenience shopping, but the town already has three foodstores. The Tesco is the main food shopping location in Shepton with a mixture of main food and top-up shopping taking place at Aldi and Co-op performs a top-up role in the town centre. Many Zone 3 (Shepton zone) residents are actually located near to Frome, and thus a level of leakage is natural. It is not envisaged that any additional supermarkets will be required in Shepton Mallet.

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7.44 Thus it is not envisaged that there will be any further out of centre convenience provision within the study timeframe to 2031. Town centre convenience proposals will of course be acceptable and small scale top-up shops should be considered as part of any new out of centre development to service local needs and prevent long journeys for everyday food purchases.

Impact Assessment

7.45 The recommended floorspace allocations and town centre strategies for retail development are based upon the need to inject investment where there is clear need and opportunity and also to maintain the position of Mendip‟s town centres in the wider sub- regional and regional shopping hierarchy. The strategies and outline development options seek to enhance retail and leisure uses and strengthen the function of the towns in line with current market share. It is accepted the many residents will continue to undertake higher order comparison shopping trips to Bath, Taunton, Cribbs Causeway and Bristol as wells as Trowbridge where Frome and East Mendip residents carry out some of their comparison goods shopping. 7.46 It is felt that the strategic options and town centre strategies will not bare any significant impact on other town centres outside Mendip, especially those in west Wiltshire (such as Trowbridge, Melksham, Westbury and Warminster) as these towns will continue to attract shoppers form their own catchments. It is not the intention for Frome to increase its catchment or radically alter claw back of existing leakage. Presently residents of study zones 6 and 7, which cover Trowbridge, Warminster and Westbury spend only 2.5 per cent of their available comparison spend in Frome town centre and thus any minor change to this is unlikely create significant impacts for west Wiltshire towns. Furthermore, Trowbridge is planning for a new town centre retail and leisure development and thus it will be important for Frome to compete if it is to maintain its market share and self containment. Should all three of the identified retail development opportunities come forward in Frome (Saxonvale, Kingsway and Westway) and west Wiltshire towns begin to decline, then it is possible that Frome would attract increased expenditure from zones 6 and 7 to the detriment of west Wiltshire town centres. 7.47 The leakage of spend from Frome (Zone 4) to Trowbridge Zone 6 (town centre and out of centre destinations) is 11 per. Leakage is highest for bulky goods, such as domestic appliances and furniture. Hence it could be advantageous to seek enhanced provision for this type of goods offer in Frome. Any proposals should come forward with the identified development opportunities in Frome town centre.

Retail Boundaries

7.48 The maps in Appendix 5 show suggested Primary and Secondary Retail Frontages, Primary Shopping Area and Town Centre Boundaries.

Primary and Secondary Retail Frontages 7.49 PPS4, Annex B states that primary frontages are likely to contain a high proportion of retail uses, whilst secondary frontages provide greater opportunities for a diversity of

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uses. The Practice Guide gives further guidance on defining frontages. Para. 6.4 states that prime rental levels and pedestrian flows are factors to consider. 7.50 It is recommended that the LDF includes a development control policy to maintain a concentration of A1 retail uses in the Primary Retail Frontages. For example not permitting change of use where it would result in the proportion of A1 uses in the Primary Retail Frontage falling below a certain level. Experience would indicate, this should be at least 60 per cent and could be 70 per cent or higher. It could be a percentage of either floorspace or units, depending on which would be easier for the Council to monitor. An alternative policy would be not to allow more than one non-A1 unit in every consecutive five. 7.51 The primary frontages have been adjusted to reflect current concentrations of retail use in the town centres and secondary frontages (not previously defined in the Local Plan) have been introduced to identify and protect areas where retail and other town centres uses are prevalent or would be beneficial to the town centre.

Primary Shopping Areas 7.52 A Primary Shopping Area is defined in PPS4, Annex B as follows: “Primary Shopping Area: defined area where retail development is concentrated (generally comprising the primary and those secondary frontages which are contiguous and closely related to the primary shopping frontage). The extent of the primary shopping area should be defined on the proposals map”. 7.53 The Practice Guide states at para. 6.4 that “The „centre‟ for retail development is defined by PPS4 as the primary shopping area. Key considerations will be the extent of existing primary frontages … the presence of key anchor stores and other main town centre uses (e.g. cinemas) may also help to identify the extent of the PSA”. We have followed these definitions in delineating the PSA for each town.

Town Centre Boundaries 7.54 The Practice Guide states at para. 6.13 that “LPAs should also identify an appropriate „town centre boundary‟ within which it will seek to locate other main town centres uses” such as specialist retail, offices and bars/restaurants. The Practice Guide goes onto state, at para. 6.14, that existing and potential linkages and public transport accessibility levels are important points to consider, to enable linked trips and to encourage the use of public transport. This advice has been taken into account when suggesting the town centre boundaries. Car parks and potential edge of centre development opportunities (such as Princes Road in Wells) have been excluded from the Primary Shopping Area but are included within the Town Centre Boundaries.

Role of Monitoring

7.55 To establish whether the requirements for new floorspace (by type) are being met, the Council should monitor: . Planning permissions (amount, type and location) Roger Tym & Partners September 2010 99

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. Completions (amount, type and location) 7.56 Changes of use should also be monitored. However, it is acknowledged that some changes of use are not „development‟ and do not require express planning permission. 7.57 To establish whether new developments and environmental improvements are improving the health of the centres, the Council should also update key health check indicators – each year. The matrix health check tables in the appendix would provide a good proforma for undertaking a full PPS4 update. 7.58 The recommendations set out in this report may need to be adjusted, in future, due to changing market conditions, demographic changes and the impact of developments elsewhere. They may also need to be adjusted if standard assumptions, such as those relating to expenditure growth and internet trading, change. The role of monitoring is important in highlighting changes in the assumptions that underpin this study.

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