DERBY RETAIL and L EISURE STUDY Volu Me 1 Œ Main Report

Derby City Cou ncil

DERBY RETAIL AND L EISURE STUDY Volu me 1 œ Main Report

Final Report April 2009

ROGER TY M & PARTNERS

3 Mu seu m Sq u are L eicester L E1 6UF

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0116 249 3970 0116 249 3971 ewleicester@ tymconsu lt.com

www.tymconsu lt.com

This docu ment is formatted for dou ble-sided printing.

CONTENTS

1

INSTRUCTIONS, CONTEX T AND OUTL INE OF REPORT STRUCTURE ..................... 1

Instru ctions.......................................................................................................................... 1 Contex t ................................................................................................................................ 1 Stru ctu re of the Remainder of the Report........................................................................... 2

2

TH E REQUIREMENTS OF NATIONAL AND REGIONAL POL ICY ................................. 5

PPS6 ................................................................................................................................... 5 PPS12 ................................................................................................................................. 13 Potential Changes to National Policy.................................................................................. 14 Proposed Changes to PPS6 ............................................................................................... 15 Conclu sion in Relation to Potential Changes to National Policy......................................... 19 The Req u irements of the Cu rrent and Emerging RSS........................................................ 20 Regional Planning Policy .................................................................................................... 20

3

PERFORMANCE ANAL Y SIS - TH E PPS6 INDICATORS............................................... 27

Application of the Ten Vitality & Viability Indicators to Derby City Centre.......................... 28 Cu stomer Views and Behaviou r œ The K ey Findings and Su rvey of Pedestrians............... 44 Conclu sions - Derby City Centre H ealthcheck .................................................................... 49 Application of Vitality & Viability Indicators to the Normanton Road / Peartree Road linear centre......................................................................................................................... 50 Application of Vitality & Viability Indicators to Allenton District Centre............................... 51 Application of Vitality & Viability Indicators to Allestree District Centre.............................. 52 Application of Vitality & Viability Indicators to Alvaston District Centre .............................. 53 Application of Vitality & Viability Indicators to Cavendish District Centre........................... 55 Application of Vitality & Viability Indicators to Chaddesden (Nottingham Road) District Centre.................................................................................................................................. 55 Application of Vitality & Viability Indicators to Chellaston District Centre........................... 56 Application of Vitality & Viability Indicators to L ittleover District Centre ............................. 57 Application of Vitality & Viability Indicators to Mack worth District Centre........................... 57 Application of Vitality & Viability Indicators to Mick leover District Centre........................... 58 Application of Vitality & Viability Indicators to Oak wood District Centre............................. 59 Application of Vitality & Viability Indicators to Sinfin District Centre................................... 59 Application of Vitality & Viability Indicators to Spondon District Centre.............................. 60

4

CURRENT PATTERNS OF RETAIL SPENDING............................................................ 62

Introdu ction.......................................................................................................................... 62 H ou sehold Su rvey Methodology ......................................................................................... 62 Overall Catchment Area...................................................................................................... 64 Comparison Goods Spending Patterns .............................................................................. 67 Comparison Goods Mark et Shares..................................................................................... 72 Overlapping Comparison Goods Catchments .................................................................... 74 Comparison Goods Su b-Sectors ........................................................................................ 76 Convenience Goods Spending Patterns............................................................................. 84 Convenience Goods Mark et Shares ................................................................................... 88 Su mmary ............................................................................................................................. 91

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QUANTITATIVE AND QUAL ITATIVE NEED IN TH E RETAIL SECTOR ......................... 93 Introdu ction.......................................................................................................................... 93 Methodology for Assessing Qu antitative Retail Need......................................................... 93 Qu alitative Retail Need ....................................................................................................... 108 Su mmary ............................................................................................................................. 111

ASSESSMENT OF SCOPE FOR ADDITIONAL COMMERCIAL L EISURE PROVISION 114 Forecast Increases in L eisu re Ex penditu re......................................................................... 114 Conversion of Ex penditu re Increases to Additional L eisu re ”Req u irements‘...................... 116 Su mmary of Scope for Additional Commercial L eisu re Facilities....................................... 120

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STRATEGIES FOR MEETING RETAIL NEEDS............................................................. 121

Introdu ction.......................................................................................................................... 121 Comparison Req u irements ................................................................................................. 123 Strategy 1: Derby City Centre Focu sed .............................................................................. 123 Strategy 2: Derby City Centre, the District Centres and Retail Park s................................. 124 Strategy 3: Rebalance the Network .................................................................................... 125 Option 4, Ring Fence Comparison Ex penditu re Req u irements.......................................... 126 Convenience Req u irements................................................................................................ 127 RTP Recommendations on Strategy................................................................................... 128

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RECOMMENDATIONS ON POL ICY AND RETAIL H IERARCH Y ................................... 131

The Network of Centres ...................................................................................................... 131

SEPARATEL Y BOUND DOCUMENTS

VOL UME 2 œ FIGURES 4.1 to 4.5 & SPREADSH EETS VOL UME 3 - APPENDICES
Appendix 1 œ Brief to Consu ltant Appendix 2 œ L ist of Stak eholder Consu ltees Appendix 3 - H ealth Check s Data Appendix 4 - National Trends in the Retail and L eisu re Sectors Appendix 5 - Su mmary Note œ Commission on Retail Conservation (2007) and Case
Stu dies (Retail Distinctiveness & Promotion of Independent Retail in Town Centres
VOL UME 4 - RETAIL SURVEY , BY NEMS VOL UME 5 - H OUSEH OL D SH OPPING SURVEY , BY NEMS

Derby Retail & L eisu re Stu dy Report. Volu me 1 œ Main Report

1

INSTRUCTIONS, CONTEX T AND OUTL INE OF REPORT STRUCTURE

Instru ctions

1.1

Derby City Cou ncil commissioned Roger Tym & Partners (RTP) to u ndertak e this Retail Stu dy following a competitive tender process. The brief, which is reprodu ced as Appendix 1, ex plains that the stu dy is to form part of the evidence base for the retail and town centre policies and proposals in the emerging L ocal Development Framework . Thu s, the stu dy has to reflect the Government‘s req u irements, as set ou t in PPS6 and in the new PPS12 (which are discu ssed in Section 2 of ou r report). The stu dy has a forward horizon to 2026.

1.2

Section 4 of the Stu dy Brief sets ou t k ey req u irements of the stu dy, su mmarised as follows:

°

Review National, Regional and L ocal Retail policies inclu ding the locally based strategies.

°

Forecast q u antitative and q u alitative need for additional comparison and convenience floorspace within the City Cou ncil u p to 2026 and indicate where this shou ld be accommodated.

°°

Consider how any q u antitative or q u alitative need identified can be accommodated within Derby.

Undertak e ”healthcheck s‘ of the city centre and the district centres, review their role and fu nction and mak e recommendations on how their health can be improved.

°°

Consu lt with all the main stak eholders. Ex plore the role of the city‘s ou t-of-centre and q u asi- retail shopping locations and assess and advise on cu rrent policy regarding these.

°°

Consider whether the ex tent of the primary and secondary shopping areas of the main centres is appropriate and review the policies in the L ocal Plan Review.

Produ ce a Retail Strategy based on the above findings.

Contex t

1.3

Section 2 of the brief identifies some of the contex t to ou r stu dy which inclu des the need to cover both city wide and localised retail issu es; to look beyond the City

Roger Tym & Partners M9259 April 2009

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bou ndary to establish the catchment area; and to look at potential impacts from nearby centres.

1.4 1.5

The stu dy is being u ndertak en in the contex t of the recent opening of the W estfield Centre which, as a major city centre ex pansion, is lik ely to have a range of effects on the city centre and its catchment area.

The stu dy also has regard to the report prepared by CACI for Derby Cityscape on the Derby City Retail Circu it.

Stru ctu re of the Remainder of the Report

1.6

The remainder of ou r report is stru ctu red as follows:

°

Section 2 provides a ré su mé of the req u irements of national and regional policies in so far as they relate to town centres, the location of retail and leisu re development and the test of sou ndness in the new PPS12.

°

Section 3 provides ou r q u alitative analysis of the cu rrent performance of the fou rteen higher order centres in Derby as identified in the City of Derby L ocal Plan Review (Appendix D). These centres are Derby City Centre, Normanton/Peartree Road L inear Centre and the 12 District Centres.

°°

Section 4 provides ou r analysis of the cu rrent patterns of retail and leisu re spending, drawing on the telephone su rvey of hou seholds.

Section 5 provides ou r analysis of q u antitative and q u alitative needs in the retail sector in the period u p to 2026.

°°

Section 6 identifies the scope for fu tu re leisu re provision. Section 7 identifies alternative strategies for meeting the retail needs which we have identified - as req u ired by paragraph 4.38 of PPS12 - and ou r initial evalu ation of these alternatives.

°

Section 8 mak es specific recommendations for policy and the retail hierarchy

1.7

The main report is accompanied by fou r separate volu mes which comprise: i) Figu res and Spreadsheets, which relate to ou r assessments of q u antitative need in the retail and leisu re sectors;

ii) Appendices, as follows:

oooo

Appendix 1 œ Brief to Consu ltant Appendix 2 œ L ist of Stak eholder Consu ltees Appendix 3 - H ealth Check s Data Appendix 4 - National Trends in the Retail and L eisu re Sectors

2

o

Appendix 5 - Su mmary Note œ Commission on Retail Conservation (2007) and Case Stu dies (Retail Distinctiveness & Promotion of Independent Retail in Town Centres)

iii) Reports by NEMS Mark et Research, entitled:

oo

Derby City Centre Retail and L eisu re Visitors Su rvey Derby H ou sehold Shopping Su rvey

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2

TH E REQUIREMENTS OF NATIONAL AND REGIONAL POL ICY

PPS6

2.1

The cu rrent national policy contex t, in so far as it relates to town centres and the location of new retail, office and leisu re developments, is set, in the main, by PPS6, which is stru ctu red u nder fou r sections that deal with:

°°°°

the Government‘s objectives; the plan-led approach to positive planning for town centres; the assessment of proposed developments; and measu ring and monitoring the vitality and viability of town centres.

2.2 2.3

In this section of ou r report, we focu s on the Government‘s objectives and on the plan-led approach to positive planning for town centres.

The Government‘s Objectives

The very first paragraph of PPS6 mak es it clear that ”su stainable development is the core principle u nderpinning planning‘ and that ”the planning system has a k ey role in facilitating and promoting su stainable and inclu sive patterns of development, inclu ding the creation of vital and viable town centres‘. The Government‘s k ey objective for town centres, therefore, is to promote their vitality and viability (paragraph 1.3).

2.4

The Government‘s second tier objectives are set ou t in paragraph 1.4 of PPS6; these can be su mmarised as:

°°

enhancing consu mer choice; su pporting efficient, competitive and innovative retail and leisu re sectors and improving their produ ctivity; and

°

improving accessibility to ex isting and new development by a choice of means of transport.

2.5

Paragraph 1.5 of PPS6 then sets ou t the Government‘s wider objectives; these can be su mmarised as:

°

the promotion of social inclu sion by ensu ring access to a range of town centre u ses and rectifying deficiencies;

°°

the regeneration of deprived areas; the promotion of economic growth;

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°°

the delivery of more su stainable patterns of development; and the promotion of high q u ality and inclu sive design, enhanced pu blic realm and an accessible and safe environment.

2.6

Regional planning bodies (RPBs) and local au thorities (L PAs) are therefore req u ired to implement these Government objectives by planning positively for the growth and development of town centres, whilst not restricting competition or innovation (paragraphs 1.6 and 1.7). The main town centre u ses to which PPS6 applies are: retail; leisu re; offices; and arts, cu ltu ral and tou rism facilities (paragraph 1.8), with hou sing said to be ”… an important element in most mix ed-u se, mu lti-storey developments‘ (paragraph 1.9).

Positive Planning for Town Centres: A Plan-led Approach

The introdu ction to Section 2 of PPS6 states that ”in order to deliver the Government‘s objective of promoting vital and viable town centres, development shou ld be focu sed in ex isting centres in order to strengthen and where appropriate, regenerate them‘. Thu s, RPBs and L PAs are called u pon to:

2.7

i) actively promote growth and manage change in town centres; ii) define a network and hierarchy of centres, each performing their appropriate role to meet the needs of their catchments; and

iii) adopt a proactive and plan-led approach to planning for town centres throu gh regional and local planning.

2.8 2.9

W e consider it appropriate to su mmarise these req u irements in a different and more logical order to that which is set ou t in PPS6 itself, starting with the role of regional plans.

The Role of Regional Plans

Paragraphs 2.12 to 2.14 of PPS6 set ou t the req u irements placed on RPBs in developing their Regional Spatial Strategies (RSSs). The over-riding req u irement is for RPBs to set ou t a vision and strategy for the region‘s growth, particu larly for higher level centres, and provide a strategic framework for planning at the local level. In particu lar, RPBs mu st:

i) develop a strategic framework for the development of a network of centres, tak ing into accou nt the need to avoid an over concentration of growth in the higher level centres;

ii) mak e strategic choices abou t those centres of regional and su b-regional significance where major growth shou ld be encou raged;

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iii) identify the need for new centres to be developed in areas of planned major growth;

iv) assess the need for additional floorspace in the comparison retail, leisu re and office sectors over the lifetime of the RSS (and for five-yearly periods within it) and, having regard to capacity and accessibility considerations, they mu st identify where the identified needs wou ld best be met;

v) monitor and regu larly review the implementation of the strategy; and vi) identify the need for major town centre development of regional or su b-regional significance.

2.10 H owever, PPS6 is clear that new or ex panded regional or su b-regional shopping centres located in ou t-of-centre locations are u nlik ely to meet the req u irements of national policy (paragraph 2.14).

Network s and H ierarchies

2.11 Paragraphs 2.9 to 2.11 of PPS6 provide fu rther advice in relation to the development of the network and hierarchy of centres, bu t œ in this part of the policy statement œ the advice is in relation to both the regional and local levels. Thu s, au thorities mu st plan carefu lly how to distribu te any identified growth at both regional and local levels. In defining their spatial objectives, RPBs and L PAs:

”… shou ld consider whether there is a need to rebalance the network of centres to ensu re that it is not overly dominated by the largest centres, that there is a more even distribu tion of town centre u ses, and that people‘s everyday needs are met at the local level‘ (paragraph 2.9).

2.12 Thu s, in developing the network and hierarchy, RPBs and L PAs are req u ired to consider:

i) whether there is a need to avoid over concentration of growth in the higher level centres;

ii) the need for investment in those centres req u iring to be regenerated; and iii) the need to address deficiencies in the network (paragraph 2.9)
2.13 Of cru cial importance is the PPS6 req u irement that ”… any significant change in the role and fu nction of centres, u pward or downward, shou ld come throu gh the development plan process, rather than throu gh planning applications‘, with higher order centres dealt with in the RSS and with lower order centres dealt with throu gh the development plan docu ments (paragraph 2.10).

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Promoting Growth and Managing Change

2.14 Paragraphs 2.3 to 2.8 of PPS6 tu rn to the role of L PAs in promoting growth and managing change in town centres. Paragraph 2.3 states that L PAs shou ld œ within the regional planning contex t œ actively plan for growth and the management of change in town centres over the period of their development plan docu ments by:

i) selecting appropriate ex isting centres to accommodate growth, mak ing the best u se of ex isting land and bu ildings, bu t ex tending the centres where appropriate;

ii) managing the role of ex isting centres throu gh the promotion of specialist activities, or specific types of u ses; and

iii) planning for new centres of an appropriate scale in areas of significant growth, or where there are deficiencies in the ex isting network .

2.15 Paragraph 2.4 u rges that growth shou ld be accommodated, wherever possible, throu gh ”… more efficient u se of land and bu ildings within ex isting centres‘. W here growth cannot be accommodated within ex isting centres, paragraph 2.5 advises L PAs to plan for: