Wigan Local Development Framework Retail and Centres
Evidence Review
June 2009
Wigan Council Environmental Services
Contents
Title Table A. National: Barker Review of Land Use Planning, Final Report – Recommendations A1 (December 2006)
The Planning White Paper ‘Planning for a Sustainable Future’ A2
Planning for Town Centres: Guidance on Design and Implementation Tools A3
Groceries Market Investigation – Provisional Findings A4
Provisional Decision on Planning Remedies A5
‘Rate reform boost for small businesses and town centre’ - DCLG News A6 Release (May 2007)
“Two to Watch” – Retail Week Top 100 Centres article A7
Top 100 Retail Parks A8
The Retail Property Industry: Its contribution to the UK economy A9
Retail Rents 2008 A10
Retail Market Overview A11
Annual Discretionary Income Survey 2007 / 2008 A12
Midsummer Retail Report A13
Colliers CRE Research ‘UK Shopping Centre Development Pipeline’ (Autumn A14 2006)
Colliers CRE Research ‘The Impact of New Shopping Centres on Prime Rents’ A15 (Autumn 2006)
Wigan Borough Retail Study – Appendix 1 – Retail Trends A16
The Sequential Approach to Retail Development (Jan 2000) A17
Town Centre Vitality and Viability: A Review of the Health Check Methodology A18 (Feb 2000)
The Retail Strategy Group Report: driving change (DTI, 2004) A19
Planningstatistics.org.uk – Town Centre and Retail Planning Statistics for A20 England and Wales
Friends of the Earth – Planning Policy Statement 6 Briefing A21
RTPI Press Release – ‘Planning White Paper Background’ (21 May 2007) A22
RTPI Press Release – ‘undermining planning will not promote competition warn A23 RTPI’ (23 Jan 2007)
Article in Planning ‘Town Centres Scale Agenda’ (8 April 2005) A24
Various Articles – Retail Forum, The Newsletter of the National Retail Planning A25 Forum The Future of Retail Property - Future Shopping Places (BCSC, 2007) A26
BCSC: Future of Retail Property: Shopping Places for People A27
The contribution of local high streets to sustainable communities (Joseph A28 Rowntree Foundation – April 2007)
Shoppers and How They Travel - Sustrans A29
Design Reviewed – Town Centre Retail (CABE, 2004) A30
Nightvision – Town Centres For All A31
NRPF Secondary Shopping Town Centre Dynamics – Research Scoping A32 Paper (June 2000)
Focus on Retail A33
Town Centre Management Articles – Urban Design Quarterly A34
TCPA Policy Statement ‘Planning for Accessible and Sustainable Retail’ (July A35 2005)
TCPA Retailing, Access and Sustainable Town Centres – Conference Report A36
Clone Town Britain (New Economics Foundation) A37
All Party Small Shops Parliamentary Group – High Street 2015 A38
Retail Development Bill A39
Under-Served Markets: Retail and Regeneration A40
CPRE ‘The real choice – How local foods can survive the supermarket A41 onslaught’
CPRE Report – ‘Food webs’ A42
Re-Localising Shopping (University of Southampton) A43
The Retail Planning Knowledge Base Briefing Paper 2 ‘Food Deserts’ (June A44 2006)
The Retail Planning Knowledge Base Briefing Paper 3 ‘Clone Towns’ (June A45 2006)
The Retail Planning Knowledge Base Briefing Paper 4 ‘Neighbourhood A46 Retailing’ (August 2006)
The Retail Knowledge Base Briefing Paper 5 ‘Retail Planning and Food A47 Retailing Competition Issues’ (October 2006)
The Retail Planning Knowledge Base Briefing Paper 7 ‘The Need Test’ (May A48 2007)
The Retail Planning Knowledge Base Briefing Paper 8: The Sequential A49 Approach
The Retail Planning Knowledge Base Briefing Paper 9: Evidence Based Retail A50 Planning Policy: Data Crisis
A51
The Retail Planning Knowledge Base Briefing Paper 11: Retail-Led Urban Regeneration
Market Towns Distinctiveness Project A52
Venuescore 2009 A53
Looking After Our Town Centres A54 B. Regional Town Centre Assessment Study B1
NWRA research ‘Key Service Centres – Role and Function Study’ undertaken B2 by Land Use Consultants
North West Regional Assembly Panel Briefing Paper 14 – ‘Key Service B3 Centres – Role and Function Study: Recommendations and Initial North West Regional Assembly Response’
The North West Key Service Centres – Roles and Functions Evidence Base B4 (CD Rom – Nov 2006)
Cities North West (NWDA, July 2006) B5 C. Local Wigan Borough Retail Study C1
Wigan Pier Quarter Strategy C2
Wigan Town Centre Northern Crescent Masterplan and Urban Design C3 Framework
Wigan Eastern Gateway Development Framework (October 2007) C4
Atherton Centreplan C5
Hindley Centreplan C6
Grand Arcade, Wigan – The Trading Opportunity, Market Viability and Retail C7 Strategy’ (Feb 2003)
St Helens Retail Capacity Study 2005 C8
The Lancashire Shopping Study 2003 C9
Preston Retail and Leisure Study 2005 C10
Warrington Retail and Leisure Study 2006 C11
List of Changes since Issues & Options Table
New Reviews
Provisional Decision on Planning Remedies A5
Top 100 Retail Parks A8
The Retail Property Industry: Its Contribution to the UK Economy A9
Retail Rents 2008 A10 Retail Market Overview A11
Midsummer Retail Report A13
Planningstatistics.org.uk – Town Centre and Retail Planning Statistics A20 for England and Wales
Nightvision – Town Centres For All A31
Focus On Retail A33
Retail Development Bill A39
Under-served Market: Retail and Regeneration A40
The Retail Planning Knowledge Base Briefing Paper 8: The Sequential A49 Approach
The Retail Planning Knowledge Base Briefing Paper 9: Evidence A50 Based Retail Planning Policy: Data Crisis
The Retail Planning Knowledge Base Briefing Paper 11: Retail-Led A51 Urban Regeneration
Market Towns Distinctiveness Project A52
Venuescore 2009 A53
Looking After Our Town Centres A54
Deleted
Groceries Market Investigation – Emerging Thinking
In Town Retail Rents 2006
Geofutures – DCLG town centre boundaries for England and Wales
Colliers CRE midsummer retail report 2005
In Town Retail Rents 2007
Producing Boundaries and Statistics for Town Centres: England and
Wales 2000
RSS Annual Monitoring Report for the North West of England
Other relevant Evidence
Title Topic Paper
National & Regional Planning Policy Statement 6: Town Centres Planning Policy Planning for Town Centres: Guidance on National & Regional Design and Implementation Tools Planning Policy National & Regional Planning Policy Guidance Note 13: Transport Planning Policy National & Regional Planning Policy Statement 25: Flood Risk Planning Policy National & Regional Planning Policy Statement 3: Housing Planning Policy Planning Policy Guidance 4: Industrial, National & Regional Commercial Development and Small Firms Planning Policy Consultation Paper on Planning Policy National & Regional Statement 4: Sustainable Economic Planning Policy Development Consultation Paper on Proposed Changes to National & Regional Planning Policy Statement 6: Planning for Planning Policy Town Centres Planning Policy Guidance 15: Planning and National & Regional the Historic Environment Planning Policy Planning Policy Statement 23: Planning and National & Regional Pollution Control Planning Policy Planning Policy Guidance 24: Planning and National & Regional Noise Planning Policy North West of England Plan – Regional National & Regional Spatial Strategy to 2021 Planning Policy Making the Connexions: Final Report on Accessibility Transport and Social Exclusion Greater Manchester LTP2 Accessibility Accessibility Strategy
GB Freight Report 2006 Accessibility
North West Regional Freight Strategy Accessibility
Township Action Plans (Various) Communities Commercial Sports Provision, Planning Bulletin 11 Open Space, Play, Sport (Sport England) and Recreation
Design for Play: Guide to Creating Successful Play Open Space, Play, Sport Space and Recreation
Securing the Future: The UK Sustainable Environment, Natural Resources Development Strategy and Pollution EU Water Framework Directive (2000/60/EC) Environment, Natural Resources and Pollution Water for life and livelihoods – A framework for river Environment, Natural Resources basin planning in England and Wales (Environment and Pollution Agency, 2006) Waterways for Tomorrow Environment, Natural Resources and Pollution Making Space for Water Environment, Natural Resources and Pollution River Douglas Catchment Flood Management Plan Environment, Natural Resources Scoping Report and Pollution Mersey Estuary Catchment Flood Management Environment, Natural Resources Plan and Pollution Greater Manchester Strategic Flood Risk Environment, Natural Resources Assessment and Pollution Sustainable Urban Drainage Systems: promoting Environment, Natural Resources good practice and Pollution The SUDS Manual Environment, Natural Resources and Pollution Planning Policy Statement 25 Appendix F: Environment, Natural Resources Managing Surface Water and Pollution North West Green Infrastructure Guide Environment, Natural Resources and Pollution Development Control: Planning for Air Quality Environment, Natural Resources and Pollution Greater Manchester LTP2 Air Quality Strategy and Environment, Natural Resources Action Plan and Pollution
Inland Marina Investment Guide Environment, Natural Resources and Pollution Ensuring the UK’s Food Security in a Changing Environment, Natural Resources World and Pollution Best Before: How the UK Should Respond to Food Environment, Natural Resources Policy Challenges and Pollution Circular 05/2005 Environment, Natural Resources and Pollution Air Quality Regulations, Air Quality Limit Value Environment, Natural Resources Regulations and Part IV of Environment Act 1995 and Pollution Climate Change, The UK Programme 2006 (Air Environment, Natural Resources Quality perspective) and Pollution AGMA Green Infrastructure Briefing Note Environment, Natural Resources and Pollution 2nd Round Detailed Review and Assessment of Air Environment, Natural Resources Quality, 2004 and Pollution Lisbon Strategy: Towards a Europe of Innovation Economy and Employment and Knowledge Cohesion Policy in Support of Growth and Jobs Economy and Employment
Employment Land Review: Guidance Note Economy and Employment
Developing Entrepreneurship for the Creative Economy and Employment Industries: The Role of Higher and Further Education Good Practice Guide on Planning for Tourism Economy and Employment
Liverpool City Region Strategic Proposals Economy and Employment
Liverpool City Region Development Programme Economy and Employment Report Investing in Success – Sub-Regional Economic Economy and Employment strategy for Warrington and Cheshire Wigan’s Economic Development Plan Economy and Employment
A Fresh Future for Wigan: A marketing Strategy for Economy and Employment Wigan’s Economic Development Zone Migrant Workers Report Economy and Employment
The Cave Review of Social Housing Housing Circular 04/2007 – Planning for Travelling Housing Showpeople Gypsy and Traveller Accommodation Needs Housing Assessment Guidance Lifetime Homes, Lifetime Neighbourhoods – A Housing National Strategy for Housing in Ageing Society The Proximity Principle Housing
Table A1 Title Barker Review of Land Use Planning, Final Report - Recommendations Proponent body Kate Barker Status (e.g. statutory, non-statutory) Non-Statutory Date produced December 2006 Why is it relevant to the Local Development Framework? The recommendations made in the Barker Review regarding economic development could go on to have a profound affect upon Policy and therefore need to be taken into account.
Key messages, requirements and objectives The purpose of the review was to consider how, in the context of globalisation, and building on the reforms already put in place in England, planning policy and procedures can better deliver economic growth and prosperity alongside other sustainable development goals.
The review assessed: • ways of further improving the efficiency and speed of the system; • ways of increasing the flexibility, transparency and predictability that enterprise requires; • the relationship between planning and productivity, and how the outcomes of the planning system can better deliver its sustainable economic objectives; and • the relationship between economic and other sustainable development goals in the delivery of sustainable communities. Opportunities • The review recommends that the Government should make fiscal interventions to encourage the redevelopment of previously developed land.
• An emphasis is placed on high quality design. Issues and constraints The report makes the following assessment of the planning system: • The system lacks efficiency • The complexity, uncertainty and hidden economic costs reduce competition and deter new entrants to the market • Planning is in the top six concerns of inward investors into the UK. (The five higher concerns are not mentioned).
The report recommendations made in the report: • Removal of the need test: o Without having to demonstrate a need for large development, large retailers will be able to make unsubstantiated claims that they need to develop small sites. o The Barker Review says that the need should not be a concern for the planning system but rather a risk for the developer to take. o There is a danger that giving larger companies more power to develop large scale schemes could help further increase their market share and increase the gap between the ‘haves and have-nots’.
• If the plan is non-determinant, then there would be a presumption in favour of planning permission, if the benefits from the development outweighed economic, environmental and social costs. There is a danger that this places too much power into the hands of firms, particularly large firms who have the economic clout to take decisions to appeal.
• The relaxation of Green Belt laws and making Green Belt more flexible. – The Barker Review says that there is a lack of previously developed land available to accommodate all development that is needed, so there might be the need for some towns and cities to extend into the Green Belt. This could be to the detriment of town centres as more development sites away from the town centre are opened up. Relaxing Green Belt laws may be more relevant to the growth areas in the South East and not necessarily the North West, which contains a large amount of previously developed land.
How could the Local Development Framework respond? The Local Development Framework should continue to recognise the role that town centres play in maintaining a strong economy and ensure that this role is enhanced and that new economic development enhances Town Centre locations.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Economy and Employment
Table A2 Title The Planning White Paper ‘Planning for a Sustainable Future’ Proponent body DCLG Status (e.g. statutory, non-statutory) Statutory (Draft) Date produced May 2007 Why is it relevant to the Local Development Framework? The White Paper sets out our detailed proposals for reform of the planning system, building on Kate Barker’s recommendations for improving the speed, responsiveness and efficiency in land use planning. Key messages, requirements and objectives The White Paper has four key pillars including, ensuring the planning system continues to support vibrant town centres.
• The Government will bring forward new planning rules to enable councils to better prioritise town centres over out-of-town shopping and block developments that threaten the survival of high streets and small shops. • A new test will require councils to scrutinise any proposal for shopping developments outside of the town centre. • It will require councils to carry out a rigorous assessment of the impact of unplanned out of town developments and to refuse any application that may have a negative impact on the local high street. • Local councils will also get the power to rule whether a development will support the town centre and benefit the consumer, in deciding whether new shops should get the go-ahead. Opportunities Recent reforms have achieved Revitalised town centres: • Since the mid 1990s there has been an upward trend in the proportion of new development in and around town centres. In 1994 about 23% of development was in and around town centres – by 2004 it was up to 41%.
The White Paper proposes to improve the effectiveness of the town centre planning policy by replacing the need and impact tests with a new test which has a strong focus on the town centre first policy, and which promotes competition and improves consumer choice, avoiding the unintended effects of the current need test. Issues and constraints
How could the Local Development Framework respond? Respond positively to the renewed town centre first approach and the new measures forthcoming on promoting competition and improving consumer choice. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A3 Title Planning for Town Centres: Guidance on Design and Implementation Tools Proponent body DCLG Status (e.g. statutory, non-statutory) Non-Statutory Date produced March 2005 Why is it relevant to the Local Development Framework? The Guidance deals specifically with design issues relating to planning for town centres and some of the main tools available to secure the implementation of town centre planning policies and proposals. It supports Planning Policy Statement 6: Planning for Town Centres. Key messages, requirements and objectives The guidance looks at the following two key aspects on design and implementation: • Design and the Public Realm – why good design is imperative for a town centre, including a series of design principles, landscaping and parking considerations and public realm and access issues. • Implementation tools – how careful and detailed planning and management of town centres is required through a range of tools, in particular: Local Development Documents and Town Centre Strategies. Opportunities Design and the Public Realm: The guidance reiterates Planning Policy Statement 1: Delivering Sustainable Development in that good design is indivisible from good planning and supports Planning Policy Statement 3 in that, design of development for main town centre uses and for development in town centres should promote high quality and inclusive design, in order to improve the character and quality of the area in which such development is located and the way it functions.
The guidance provides a list of design principles that should be taken into account for town centres including landscaping, parking and public realm and access considerations.
Implementation Tools: The guidance identifies types of issues relevant to town centre policy that should be considered for inclusion in relevant local development documents.
It also emphasises the need to prepare town centre strategies in order to complement relevant local development documents, for town centre strategies can significantly assist in delivering effective management and promotion of town centres.
Sets out good practice for preparing a town centre strategy.
Suggests that compulsory purchase powers are an important tool available to Local Planning Authorities in assembling land needed to bring forward suitable sites for development and secure additional capacity within or on the edge of town centres to accommodate growth or deliver effective and efficient regeneration.
Business Improvement Districts are another tool available to assist with joint working to improve town centres. Issues and constraints
How could the Local Development Framework respond? Through acknowledgement of the good practice set out in this document for design principles, landscaping and public realm and access considerations and including that set out under the heading implementation tools. Prepare as supplementary planning documents any master plans, detailed planning or development briefs for key town centre sites or areas. Engage with the community and stakeholders (including businesses) to ensure they are able to contribute to shaping the future development and management of their town centres. Implications for the sustainability appraisal Not a key document for appraisal. Cross references Cross reference (Topic Reviews) Retail and Centres Landscape, townscapes and buildings
Table A4 Title Groceries Market Investigation – Provisional Findings Proponent body Competition Commission Status (e.g. statutory, non-statutory) Non-Statutory Date produced October 2007 Why is it relevant to the Local Development Framework? The initial findings of the Competition Commission look at the groceries sector and whether or not there are anti-competitive practices within it. The Planning system is one factor identified to having an impact on competition.
The report looks at three broad themes: • The effect of development in grocery retailing on small, independent convenience stores; • The effect on the upstream supply chain – farmers and suppliers of fresh produce; and • The strong position of Tesco (achieving a market share of around 30%) and the contribution of the planning system and land banking to this.
Key messages, requirements and objectives • Trends in the overall number of convenience stores are mixed. Whilst there have been a decline in independent retailers, exiting the market or joining symbol groups, operators such as Sainsbury’s and Tesco have moved into this sector.
• The Commission do not find Tesco to in a position to achieve and exploit market power – The economies of scale enjoyed by Tesco are not seen as a barrier to expansion in the sector. The market position of this particular retailer is as a barrier to entry is not referred to in this context.
• In a number of cases, small populations may limit the number of larger stores that can be supported. In other cases, barriers to entry could act as constraints (planning system, land banking).
• Limited levels of competition mean that retailers are able to weaken components of their retail offer, such as prices, product range and quality.
• Three different categories that act as barrier to entry or expansion: cost advantages to national retailers, the planning system and controlled land (land banking).
Opportunities
• Many retailers have changed their strategy to focus on town centre and edge of centre sites. Retailers prepared to accept the policy focus on town centres have not been unduly constrained by the planning system.
Issues and constraints • The four largest grocery retailers own 520 landbank sites and control a least another 366 sites through leases to third parties, restrictive covenants and exclusivity arrangements. 20-30% of stores facing new competitors have a controlled landsite in the local area.
• The planning system is found to act in favour of the large national operators and is a constraint to market entry.
• The ‘town centre first’ objectives of national policy result in fewer larger grocery stores than would otherwise be the case – even through the development of new stores over the past five years has been in line with historical averages
• A number of retailers see the need test as the key barrier to the development of new larger grocery stores
• The town centre focus of policy is seen to still be a barrier to entry for larger stores – even though retailers have successfully shifted their focus to small-medium sized stores.
• Out of centre store applications are more costly – impact assessments etc, are likely to face local objections, leading to a public enquiry and a lengthy decision making process.
• Land acquisition for town centre schemes is more difficult than out of centre schemes – this process is subject to significant holding costs – costs are far greater for edge and out of centre schemes.
• National retailers are better equipped to mitigate/absorb these costs and therefore planning system acts as a barrier to entry.
• Local Planning Authorities are often found to be under-resourced and lacking expertise to deal with grocery retailing planning applications.
How could the Local Development Framework respond? • The Local Development Framework must ensure that a robust and up-to-date evidence base exists if the ‘Need’ test is to remain part of national planning policy. This will ensure that the need test can be applied fairly and effectively. • The Framework could put forward policies that ensure that the council works with developers so that town centre site assembly becomes less problematic. • It is not the role of the planning system to stimulate competition but to deliver sustainable development and ensure that economic, social and environmental objectives are met. Developers/Retailers should work within the context of the Local Development Framework so that these objectives can be met.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A5 Title Provisional Decision on Planning Remedies Proponent body The Competition Commission Status (e.g. statutory, non-statutory) Non-Statutory Date produced February 2008 Why is it relevant to the Local Development Framework? This is the latest in a number of Competition Commission enquiries into the grocery retail sector.
The planning regime is seen as a barrier to entry or expansion in a significant number of local markets by limiting construction through lack of availability of town centre sites and imposing the same costs on smaller retailers, not borne to the same extent by existing large-scale retailers.
Changes could impact upon the Local Development Framework and how we plan for our town centres and other shopping places.
Key messages, requirements and objectives The Competition Commission has identified two broad types of remedies to prevent local concentration in retail markets. • The first type of remedy consists of a ‘competition assessment’ • The second type is addressing barriers to entry that result through planning system and land holdings.
The competition assessment should include the following elements: • It should apply to all stores over 1,000 sq m (using the commission’s market definition). • The fascia should be consistent with the commission’s market definition, in that it should not apply to retailers with a limited range such as Farmfoods and Iceland. • Planning commitments, as well as existing stores, would be considered. • Drive time isochrones will be centred on the site of the proposal and will be 10 minutes for urban areas and 15 minutes for rural areas. • Where a fascia was already present in the isochrone, the Office for Fair Trading would perform a more sophisticated assessment: o Where there were three or less fascia and the applicant’s share of grocery net sales area was greater than 60%, within the isochrone, the retailer would fail the competition test. o The results of the competition assessment would be valid for five years, alongside the validity of the planning application.
Other modifications to the planning system:
Facilitating greater availability of land outside the town centre by: • Modifying the sequential test to increase distinction between edge-of-centre and out of centre sites. • The extent to which a possible amended planning test should recognise both quantitative and qualitative aspects of need.
Implementation
• The provisional decision of the commission is that the competition assessment should be implemented within the planning system, with the Office for Fair Trading acting as a statutory consultee.
Opportunities • It would be desirable for the competition test to be a material consideration, to be considered alongside other factors such as regeneration. • The edge-of-centre definition could be abandoned, which would enable sites to be looked at in the context of their functional relationship with the town centre. Issues and constraints Competition Assessment
Potential issues for Local Planning Authorities: • Some Local Planning Authorities feel that competition is not a planning matter because the use of the land was being assessed. • The need test, currently applied through Planning Policy Statement 6, could potentially be counter-productive. If ‘need’ was fulfilled by a particular operator, this could strengthen adverse effects on competition. • As planning applications are determined in the context of the local development plan, there would be a need to investigate how competition issues could be taken into account in the plan-making process. • Communities and Local Government considered that a competition test on an individual basis would leave the Local Planning Authority open to a significant risk of appeal. • There would be a need for legislative change in order to bring the competition assessment within the normal planning system. If it operated outside of the system, there would be the need for the creation of new regulatory powers. • If the competition assessment was introduced into the planning system, it would be open to appeal as part of the application. This could put potentially put Local Planning Authorities in a difficult position.
Potential issues for retailers and developers: • Tesco are concerned that an assessment would act as an incentive for a retailer to build a smaller store in order not to exceed a threshold, though this could potentially exist now through thresholds that exist with regard to the sequential test. • Tesco are concerned that the competition assessment would make site assembly plans public knowledge, however the competition commission find that retailers already have extensive knowledge of their competitors plans. • Developers would need to know which operator would be able to trade on such a site, before entering into negotiations, so this would need to be done as early in the development control process as possible.
Other modifications to the planning system: • One approach could be a test measuring the diversity of shopping provision. This could determine whether a proposal increased choice for shoppers and could help make town centres more attractive places. • Research carried out by the British Council of Shopping Centres finds that only 23% of new supermarket floorspace is within town centres – so argues for greater emphasis placed on town centres. • Concerns that the need test may not be functioning as intended. This is proposed to be replaced with a new test with a strong focus on town centre first policy, through the Planning White Paper.
How could the Local Development Framework respond? If any of the changes are enacted into legislation, the Local Development Framework would need to be changed accordingly. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A6 Title Rate reform boost for small businesses and town centres Proponent body DCLG Status (e.g. statutory, non-statutory) Non-Statutory (Press Release) Date produced 11 May 2007 Why is it relevant to the Local Development Framework? A change is legislation that offers a boost to town centres. Key messages, requirements and objectives Modernisation of business rates aims to bring redundant commercial floorspace back in use. Empty buildings would no longer enjoy a 50% tax relief from three months onwards of being empty, but would be liable to pay full rates after the first three months.
This would increase commercial land availability, this would lead to lower rents, which would lead to increasing competitiveness in the UK. Opportunities The new legislation would mean that empty property would be less commercial viable to landowners than previously. An allowance for the renovation of premises in the most deprived communities would be available.
There are proposals to increase tax relief on Previously Developed Land.
These measures should boost town centres and direct development away from out of centre locations. Issues and constraints An issue could be that commercial/office rents may reduce significantly in Manchester, meaning that Manchester would become a more attractive location for commercial/office operators and this could have a negative impact upon Wigan. How could the Local Development Framework respond? The measures could potentially see the vacancy rate in centres reduce and help more development take place on previously developed land.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Economy and Employment
Table A7 Title “Two to Watch” – Retail Week Top 100 Shopping Centres Proponent body Retail Week Status (e.g. statutory, non-statutory) Non-Statutory Date produced July 2007 Why is it relevant to the Local Development Framework? Provides an analysis of shopping developments set to open within the coming year, including Liverpool One and developments that opened in the last year including the Grand Arcade.
Key messages, requirements and objectives • Large amount of development in the pipeline will begin to be delivered – schemes such as Liverpool One
• New developments will take shopping centres to a higher standard
• Increased competition means more emphasis on shopper experience. Opportunities • Two new entries are in the top 100: Drake Circus, Plymouth and Grand Arcade, Wigan – both providing much needed regeneration.
• Grand Arcade at 86th in the top 100 – opened up 70% let but now all but 2 units are let.
• Retailers such as TK Maxx, Waterstone’s, M&S and H&M are trading above expectations.
• The Grand Arcade has some independent retail – situated next to Debenhams (the main anchor) to offer something different
• Grand Arcade are feeling no threat from the Golden Square centre at Warrington
Issues and constraints There are voids across the board in large regional centres such as the Metro Centre to smaller schemes – attributed to retailers being cautious and slowing down expansion programmes
New schemes will draw in shoppers through curiosity, but only those with the best offer will be able to sustain this.
New development in Bolton will be a threat to Wigan – Plus Manchester may up the stakes as there is also significant retail development planned in Stockport, Oldham and Rochdale.
Liverpool One – bold retail development comprising of a high quality environment and anchored by John Lewis could see more leakage from Wigan to Liverpool. How could the Local Development Framework respond? Support the maintenance and enhancement of Wigan and Leigh Town Centres – particularly regarding the threat of nearby retail development at Warrington, Bolton and Liverpool.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A8 Title Top 100 Retail Parks Proponent body Retail Week Article Status (e.g. statutory, non-statutory) Non-Statutory Date produced March 2008 Why is it relevant to the Local Development Framework? There are two large retail parks in the borough at Robin Park and Parsonage. This article looks at the performance of and emerging trends in that particular sector.
Key messages, requirements and objectives • No retail parks in the borough make the top 100, but nearby ones include: Middlebrook, Bolton (2), New Mersey Shopping Park, Liverpool (7), Manchester Fort Shopping Park (28), Ravenhead Park, St Helens (36) and Cockhedge Shopping Park, Warrington (43). • Middlebrook and the Fort are both in the top 50 retail parks by rent per square foot, with figures at £37.50. (£120 per square metre). Opportunities • New Look, TK Maxx and Dunelm are cited as other examples of retailers looking to take up retail parks. • Some bulky goods retailers such as Dreams are looking to increase their retail park presence, despite the performance of that sector as a whole. • ‘Pods’ are emerging at retail parks. This includes toilets, seating, cash machines and customer service – helping make the parks more attractive. • Operators such as Greggs and Costa are recently moving into retail parks.
Issues and constraints • In terms of asset management, landlords may look at subdividing units or introducing mezzanines to boost struggling bulky goods park. • The role of the letting agent and planning consultant is vital – must be able to exploit every opportunity that planning gives them, such as words in planning conditions. • There is an underlying potential for retail schemes to be replaced by residential or mixed use schemes. • Schemes with open A1 consent are experiencing relatively strong demand • Demand for smaller units in retail parks is increasing as retailers focus on occupational costs. • A landlord could potentially fill 100,000 sq ft with a single DIY retailer but 10 x 10,000 sq ft units would be more desirable as it would increase ‘dwell time’ and a more diverse tenant mix would attract more people. • Growth in the retail warehousing sector is the lowest for 20 years at 0.16% per cent.
How could the Local Development Framework respond? Policy could consider the role of retail parks within the wider retail hierarchy. Trends show that retail park owners are looking at shifting towards open A1 planning consents and smaller units, but we must ensure that there is no negative impact upon town centres. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A9 Title The Retail Property Industry: Its contribution to the UK economy Proponent body British Council of Shopping Centres Status (e.g. statutory, non-statutory) Non-Statutory Date produced 2008 Why is it relevant to the Local Development Framework? This document looks at trends and forecasts for shopping centres and retail in general. Such information can help inform policy.
Key messages, requirements and objectives • Town centre developments are expected to become increasingly important within the development pipeline with approximately 486,000m² of floorspace designated to be built each year between 2009 and 2012.
• The UK shopping centre industry saw £5.3 billion of investment during 2007, a significantly higher value than retail warehouses and high street retail.
• Retail expenditure is expected to grow to £370 billion in 2013, an increase of 18% on 2008. Comparison goods expenditure is forecast to grow by 25% and convenience by 3%.
• Over 14% of comparison goods expenditure is expected to be online by 2014.
• The population of older people is increasing. This means that the proportion of retail sales by older people will see a significant increase and retailers and shopping centres will need to adapt to this. It is estimated that two thirds of retail spend growth will come from over 45s.
• The requirement to access goods and services on a 24-7 basis means that stores and shopping places will need to offer greater accessibility and convenience to remain competitive. Opportunities • There has been a significant shift towards town centre shopping centre floorspace in the last two years. This is set to continue with a large number of high profile shopping centres such as London White City, Liverpool One and Bristol’s Cabot Circus opening. • Mixed use developments are becoming increasingly important within the shopping centre pipeline, with schemes in Warrington, Macclesfield and Crewe identified. • There is forecast to be significant growth in comparison goods expenditure, namely small household appliances, audio-visual goods, household textiles and clothing. This could be positive for larger town centres. • Leisure and catering retailers are more pronounced in today’s shopping centre mix with Wagamama and La Tasca sort after tenants. This mix of uses in town centre schemes encourages more ‘out of hours’ activity in town centres. Issues and constraints • The North-West has the most development in the pipeline, with schemes at Lancaster, Preston, Chester and Crewe. This could lead to saturation of the market. • The only two sets of goods that are forecast to see reductions in expenditure in the next five years are newspaper and tobacco. This could hit local centres/local convenience stores. How could the Local Development Framework respond? Local Development Framework policies on retail should be produced in the context of this information. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A10 Title Retail Rents 2008 Proponent body Colliers CRE Status (e.g. statutory, non-statutory) Non-Statutory Date produced June 2008 Why is it relevant to the Local Development Framework? The retail rents from Colliers CRE provide market information that can help inform policy in the Local Development Framework. Data from 1987 and 2001 – 2007 is provided for town centres across the country. Wigan and Leigh are included. Data for Retail Parks across the country are also provided, with Robin Park included in this. Key messages, requirements and objectives • Prime retail rents in Wigan at 2008 are £1184 per square metre; this is considerably lower than neighbouring sub-regional centres Bolton (£1507), Preston (£1561) and Warrington (£1561). St Helens has a similar figure at £1130 per square metre.
• Wigan’s prime rents have grown over 20% from 2003 to 2008, from £969. This growth is higher than that experienced in Warrington (0%), Preston (3.5%), St Helens (5%) and Bolton (7.7%).
• Leigh’s prime retail rents are £538 per square metre. Compared to similar sized centres to Wigan, Chorley’s rents are £700, Eccles £377, Ormskirk £592 and Skelmersdale £592.
• Between 2002 and 2008, Leigh’s rents grew from £377 to £538, an increase of approximately 40%. In the same time period, Chorley’s rents grew approximately 30%, Eccles 16%, Ormskirk 22% and Skelmersdale 22%.
• In terms of the regional shopping centres the Trafford Centre saw significant growth with rents rising from £2960 to £4306 from 2002 to 2008. Liverpool has also seen strong growth in the last five years with rents rising to £3444, where as Manchester has been steadier at £3229.
• Robin Park Retail Park’s Rents have remained static over the last three years at £253 per sq m. This trend has been repeated at Ravenhead, St Helens, The Fort Manchester and Central 12 Southport, where rents are £269 per sq m. There has been significant growth in rents at Deepdale, Preston (£538) and Middlebrook (£419). Opportunities • Growth in Wigan and Leigh has been much higher than neighbouring centres of a similar size.
Issues and constraints • Wigan’s rents are still lower than neighbouring sub-regional centres. • When comparing the 1987 data with larger centres, the gap in rents between Wigan and larger city centres has widened considerably. In 1987 centres such as Manchester, Leeds and Newcastle had rent figures double Wigan’s, today these figures are triple Wigan’s. This pattern is repeated across the country. How could the Local Development Framework respond? This data should be considered when formulating Local Development Framework retail policy.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A11 Title Retail Market Overview Proponent body Colliers CRE Status (e.g. statutory, non-statutory) Non-Statutory Date produced Autumn 2008 Why is it relevant to the Local Development Framework? Provides information about trends in retail rents for the UK and more specifically in the North West.
Key messages, requirements and objectives
Opportunities • Rents in the North West improved significantly between 2007 and 2008, by 2.7%. Compared to the national average of 1.1% (lowest growth since 2001) and the previous regional figure of 1.8%. Issues and constraints • In real terms, the region experienced a fall in rents of -1.6%, though this is better than the national figure of -3.1%. • Wigan is outside of the top 10 centres in the region, in terms of rental values. • Schemes in the pipeline at Warrington and Bolton will need to be monitored closely in terms of impact on Wigan and Leigh town centres. • Middlebrook and Deepdale retail parks have seen significant rental growth in the previous year. How could the Local Development Framework respond? Ensure the continued development of Leigh and Wigan town centres.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A12 Title Annual Discretionary Income Study 2007/8 Proponent body Ernst & Young Status (e.g. statutory, non-statutory) Non-Statutory Date produced July 2008 Why is it relevant to the Local Development Framework? The press release provides the key findings of Ernst and Young’s annual Discretionary Income Study, which provides useful information in the context of the Council’s retail study and the amount of available expenditure / growth of expenditure.
Key messages, requirements and objectives • After tax contributions and monthly household bills, the average family now has under 20% of its gross income left over, compared to 28% in 2003
• Discretionary monthly spend as a proportion of gross household income fell by almost 12% in 2007/8
• Monthly discretionary income has dropped 15% since 2003.
• Fixed monthly household costs have risen by almost 45% since 2003. Average monthly mortgage payments are 78% higher, typical petrol costs are 29.4% higher and energy bills have increased by 110%.
Opportunities
Issues and constraints • Most UK Consumers are facing big rises in household costs against relatively modest wage inflation
• The significant decline in consumer spending power has hit retailers hard
• Low / negative sales growth is expected to continue
How could the Local Development Framework respond? The Local Development Framework needs to be flexible in planning for town centres. The Core Strategy needs to consider ‘what if’ scenarios in terms of the economy. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Economy and Employment
Table A13 Title Midsummer Retail Report Proponent body Colliers CRE Status (e.g. statutory, non-statutory) Non-Statutory Date produced 2008 Why is it relevant to the Local Development Framework? The retail report provides an overview of retail trends and how these will affect retail planning/town centres in the future.
Key messages, requirements and objectives • Economic news is bad: Actual cost of borrowing is 7%, Oil is over $130 a barrel and the economy looks to be going through 1970s style stagflation.
• The report predicts a 15-20% fall in real rents over the next 3 years.
• There has been an abrupt halt in the development pipeline. Opportunities • In terms of capital value, the market will have reached the bottom by summer/autumn 2009.
Issues and constraints • Many well known high street retailers such as Ethel Austin, Select, MK One, Stead & Simpsons, Dolcis and Ponden Mill have fallen into administration in the last year. • Affluent Market Towns, mainly in the south, are performing well. The limited space in these centres and the demographic in their catchment area are supporting this. • The High Street Retail investment market has seen an ‘annus horribilis’ in the last year. • Prime yields have increased, typically, from 4 – 4.25% to 5 – 5.25%, which is indicative of declining consumer confidence. How could the Local Development Framework respond? The Local Development Framework needs to be flexible in planning for town centres. The Core Strategy needs to consider ‘what if’ scenarios in terms of the economy. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Economy and Employment.
Table A14 Title Colliers CRE Research ‘UK Shopping Centre Development Pipeline’ Proponent body Colliers CRE Status (e.g. statutory, non-statutory) Non-Statutory Date produced Autumn 2006 Why is it relevant to the Local Development Framework? Outlines the position, nationally, of proposed retail development. Key messages, requirements and objectives • Shopping development pipeline is at the highest level since the late 1980s.
• The amount of completions in 2009 is expected to be highest since 1990 at nearly 1.1m sq m.
• Largest shopping development pipeline on record – nearly 5m sq m up to 2012.
• The large glut of floorspace could lead to an increased amount of voids
• The majority of the proposed development has not got beyond planning consent stage – so all will not necessarily be developed.
• Only a limited amount of retailers can move into the large amount of new units – not every scheme is guaranteed to be a success.
• Rigorous research will be needed by shopping centre developers in the future to ensure that their scheme can attract retailers and be successful. Opportunities
Issues and constraints
How could the Local Development Framework respond? The Grand Arcade development in Wigan has seen a large amount of floorspace released on to the market in a short period of time. It will be important that the impact on the rest of the town centre of this development is managed and does not lead to a large glut in the number of vacancies. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A15 Title The Impact of New Shopping Centres on Prime Rents Proponent body Colliers CRE Status (e.g. statutory, non-statutory) Non-Statutory Date produced Autumn 2006 Why is it relevant to the Local Development Framework? Analyses the impact that new shopping centre development has on town centre performance – particular relevant to Wigan since the opening of the Grand Arcade. Key messages, requirements and objectives • Retail development pipeline, it its entirety, accounts for nearly one third of total existing floorspace stock
• The market currently reflects the market at the end of the 1980s. The retail boom at the end of the 80s was followed by a retail recession.
• New shopping centres tend to increase town centre rents – this is because of new retailers coming into the town and the increased retail offer meaning a higher catchment population and turnover for retailers.
• Shopping centre developments tend to increase town centre rents in the year before they are opened. Due to market anticipation of enhanced attraction to the town centre, or rising demand reflecting reduced short term supply from disruption caused by shopping centre development.
• Shopping centre development between 500,000 and 750,000 sq ft (46,450 to 69,700 sq m) are generally the most successful in generating town centre rental growth Opportunities
Issues and constraints
How could the Local Development Framework respond? The Grand Arcade at over 40,000 sq m represents a significant retail development in Wigan Town Centre. Whilst the Grand Arcade has been very successful, it will be important to ensure that the successes of the scheme are felt in other areas of the town centre. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A16 Title Wigan Borough Retail Study: Appendix 1 – Current and emerging retail trends Proponent body White Young Green on behalf of Wigan Council Status (e.g. statutory, non-statutory) Non-Statutory Date produced June 2006 Why is it relevant to the Local Development Framework? This appendix is background information that informed the Wigan Borough Retail Study, a key retail document in the Local Development Framework evidence base.
Key messages, requirements and objectives Successful shopping centres increasingly have to fulfil the role of a destination location – combining retail and leisure elements means a broader appeal, wider catchment areas and longer shopper visits.
Increased evidence of polarisation of retail centres – larger, more dominant retail markets such as large city centres and malls continue to outperform average retail growth terms.
Convenience Retail
The report looks at ways in which retailers have improved their market share in the wake of planning legislation restricting large format out of centre stores through the town centre first policy: • Offering a wider product range, for example financial and insurance products, petrol and non-food goods;
• Extended opening hours;
• Offering cheap products and no-frills service;
• Providing an attractive and powerful brand image; and
• Offering a home delivery service.
• Diversification of store formats, i.e. entering the convenience retail sector.
Tesco is still expected to increase its UK floorspace by around 6% in 2007/08, with ASDA, Sainsbury’s, Morrison’s, Waitrose, Marks and Spencer’s and Iceland all set to open more stores.
Farmers markets and organic food continue to grow at the other end of the food retail scale.
Comparison Retail
Tesco and ASDA continuing to developer a larger non-food offer, through ‘homeplus’ and ‘living’ stores exclusively selling non-food goods
By 2011 sales of non-food goods in supermarkets are expected to grow to account for almost £1 in every £5 spent at supermarkets.
The comparison sector is shifting towards national multiples in large centres. The comparison element of small town centres has declined.
Comparison retailers seeking modern, large scale managed shopping centre development rather than high street units.
Emerging forms of retail
It is predicted that by 2012 online sales will account for 20% of all retail sales.
Emphasis will be placed upon shopping experience and creating shopping places as visitor destinations to ensure that centres remain competitive in the face of increased internet retailing.
Opportunities
Issues and constraints
How could the Local Development Framework respond? The appendix, as part of the Wigan Borough Retail Study, will inform retail decisions that are made in the Local Development Framework.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A17 Title The Sequential Approach to Retail Development Proponent body CB Hillier Parker for National Retail Planning Forum, British Council of Shopping Centres and the Department of Environment, Transport and the Regions Status (e.g. statutory, non-statutory) Non-Statutory Date produced 2000 Why is it relevant to the Local Development Framework? Identifies constraints flagged up by developers and retailers concerning the sequential approach. Key messages, requirements and objectives Food retailers changing to Town Centre stores to exploit smaller markets – not just because of planning legislation. Developers feel that the sequential approach is inflexible. The Sequential Approach has not been applied consistently by planning inspectors. Opportunities
Issues and constraints Sequential approach informally subsumed into decision making by retailers, rather than formally introduced – the inclusion of it in decision making has lead to a focus on edge of centre sites. Developers are merely paying lip service to the sequential approach. There is little evidence of flexibility on the part of developers/non-food retailers in adapting formats…etc
The Sequential Approach has lead to increased costs of Town Centre Sites and there are multiple ownership constraints.
Retailers have not increased collaboration with Local Planning Authorities due to local politics, timescales, Local Authorities pushing their own sites and issues surrounding commercial confidentiality.
The report was published seven years ago – prior to Planning Policy Statement 6 but also when there were more commitments for out of centre retail development. Possibility that retailers now have to consider sequential sites more than previously. How could the Local Development Framework respond? A robust evidence base (i.e. the retail study) and frontloading on identifying sites for retail/other uses on edge of centre can ensure that the sequential approach is used effectively.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A18 Title Town centre Vitality and Viability: A Review of the Health Check Methodology Proponent body NRPF/University College London Status (e.g. statutory, non-statutory) Non-statutory Date produced 2000 Why is it relevant to the Local Development Framework? The Town Centre Vitality and Viability data is used for: Annual Monitoring Report – type of data collected and how it is analysed.
Core Strategy – evidence base. Key messages, requirements and objectives The main purposes of the study are to: • Investigate indicators being collected as a basis for a possible set of national core guidance. • Identify good practice on how the data is collected, processed and analysed. Opportunities
Issues and constraints There is a need for: • Clearer definition of Vitality and viability Indicators • Guidance on the relative importance of quantitative versus qualitative data. • National benchmark data • Guidance on interpretation, including use of time series and comparative analysis.
There are variations to the extent of monitoring between different local authorities
Local Authorities tend to measure quantifiable indicators – very few Local Authorities collect all of the vitality and viability data.
There is no standard model for analysis health check data.
The data available to Local Authorities is insignificant when compared to the data available to town centre/retail property investors. How could the Local Development Framework respond? Take account of above.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A19 Title The Retail Strategy Group Report: driving change Proponent body Department of Trade and Industry Status (e.g. statutory, non-statutory) Non-Statutory Date produced April 2004 Why is it relevant to the Local Development Framework? The report sets out recommendations that would improve the role of retail across central Government. The changes set out in the report could be important to the drawing up of the Framework. Key messages, requirements and objectives The need to raise the profile of retailing within the Department of Trade and Industry.
Improving relationships between retailers and government. Opportunities
Issues and constraints Property is cited by retailers as the 2nd biggest cost. The current regime is not inflexible to adapt with changing market conditions. The Government needs to improve official data collection with Office for National Statistics.
Regulations that affect retail should be brought it only on two common dates per year.
National partnership between policy makers, retailers and other key stakeholders is necessary to improve planning process.
Engagement with stakeholders such as the Police is necessary to develop a national retail crime reduction strategy. How could the Local Development Framework respond? The Local Development Framework can take into account the issues identified from this report.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A20 Title Planningstatistics.org.uk – Town Centre and Retail Planning Statistics for England and Wales Proponent body Geofutures/Communities and Local Government Status (e.g. statutory, non-statutory) Non-Statutory Date produced Up to 2004 Why is it relevant to the Local Development Framework? The data defines a spatial extent of these town centres and in the case of Leigh and Wigan also defines a retail core. Data on employment and floorspace by sector, as well as rateable value by sector is provided. The information is available on an annual basis from 1999 to 2004. The latest data (2004) identifies 7 Areas of Town Centre Activity in the Borough at Wigan, Leigh, Ashton in Makerfield, Atherton, Tyldesley, Lamberhead Green (Pemberton) and Hindley. Golborne and Standish have been identified in previous years. Key messages, requirements and objectives 2004 data:
Wigan
• Wigan’s town centre area is 45.75 hectares. Altrincham, Sale, Oldham and Lancaster are of a similar size. This makes Wigan 114th biggest nationally and 14th regionally.
• The Bulk Rateable Retail Value for Wigan is £14.8m. This is a similar figure to Oldham and Barrow-in-Furness. This makes Wigan 114th biggest nationally and 16th regionally.
• Wigan has 114,000 sq m of A1 retail floorspace, which makes it 99th nationally and 15th regionally.
• Wigan has 63,900 sq m of office floorspace. This is similar to Blackburn and Sale and makes Wigan 125th nationally and 18th regionally.
• For food and drink uses, Wigan has 4600 sq m of floorspace, making it 207th nationally and 28th in the region.
Leigh
• Leigh’s town centre area is 33.25 hectares. Wilmslow, Rochdale and Kendal are of a similar size. This makes Leigh 192nd biggest nationally and 28th regionally.
• The Bulk Rateable Retail Value for Leigh is £7.2m. This is a similar figure to Sale, Kendal and Hyde. This makes Leigh 209th nationally and 27th regionally.
• Leigh has 72,500 sq m of A1 retail floorspace, which makes it 175th nationally and 26th regionally.
• Leigh has 20,600 sq m of office floorspace; regionally this is similar to Runcorn and Lytham St Annes. This makes Leigh 289th nationally and 35th regionally.
• Leigh has 2800 sq m of food and drink floorspace; regionally this is similar to Penrith and Nantwich. This makes Leigh 343rd nationally and 45th regionally.
Other Town Centres
• In terms of size: Ashton is 8.75 hectares, Tyldesley 7.25 hectares, Atherton 6.5 hectares, Hindley 5.5 hectares and Pemberton 4.25 hectares.
• For the Bulk Rateable Retail Value: Ashton is £1.54m, Hindley £1.36m, Atherton £980k, Tyldesley £914k and Pemberton £650k
• For the amount of A1 floorspace: Hindley is 16,400 sq m, Ashton 16,400 sq m, Tyldesley 12,700 sq m, Atherton 10,000 sq m and Pemberton 8,500 sq m. Opportunities • Wigan has a large amount of A1 floorspace for a centre its size, which will have increased significantly since the Grand Arcade development.
Issues and constraints • The newest data is from 4 years ago, before the Grand Arcade development in Wigan. • Wigan and Leigh both have a very low amount of food and drink uses. How could the Local Development Framework respond?
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A21 Title Why the new Planning Policy Statement 6 could damage town centres Proponent body Friends of the Earth Status (e.g. statutory, non-statutory) Non-Statutory Date produced November 2004 Why is it relevant to the Local Development Framework? This MP briefing presents an argument against Planning Policy Statement 6 and highlights negative aspects of large edge of centre retail scheme. Friends of the Earth is a campaign group and present a one-sided argument, nevertheless some of the points made in the briefing are important considerations.
Key messages, requirements and objectives • The briefing urges MPs to take action against the policy in Planning Policy Statement 6 that enables edge of centre retail development.
• The policy is seen to contradict the aims of revitalising town centres
• A clear and robust policy is essential to enable local planning authorities to protect and enhance town centres. Opportunities
Issues and constraints • Edge of centre retailing seen to be biased in favour of one group of retailers. (i.e. large format supermarket operators)
• The needs of this particular retail sector are said to be considered above those of communities.
• The report looks at Tesco schemes in North Norfolk and Sussex that have had negative impacts on town centres – these schemes were made bad by particular issues (such as town centre parking) and there is no discussion on how the edge of town centre schemes could have been more successful. • Previous research shows that edge of centre stores do little to draw customers into town centre How could the Local Development Framework respond? A robust evidence base has already been formulated in the shape of the Wigan Borough Retail Study – this will ensure that retail planning decisions are well informed. Having a strong supply of sequentially preferable sites in town centres/priority areas will ensure that retail development has a more positive impact.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A22 Title ‘Planning White Paper Background (Press release) Proponent body Royal Town Planning Institute Status (e.g. statutory, non-statutory) Non-Statutory Date produced May 2007 Why is it relevant to the Local Development Framework? The press release sets out the Royal Town Planning Institute’s (RTPI) current thinking on the topics that are likely to be included in the Planning White Paper. This provides an overview of how the profession would be likely to respond to changes set out in the white paper. Key messages, requirements and objectives The press release looked at a number of issues including Green Belts and Climate Change. The issues relating to retail and town centre development are highlighted below:
Presumption in Favour of Development
The RTPI opposes any move away from a plan-led system and feel that the Barker proposal for a presumption in favour of development, however circumscribed, is a move in the wrong direction.
Removal of the Needs Test
The RTPI believes that, far from increasing the ability of more traders to enter the retail market, the removal of the test would be likely to compound concerns about monopolistic tendencies and harm the economic, social and environmental health of sustainable and dynamic town centres whilst also exacerbating unsustainable travel patterns.
Resourcing Planning
Local setting of planning fees has been floated as one means of addressing funding shortfalls. The RTPI recognises that this approach is likely to enjoy widespread support in local government. However, care is required to ensure that planning fees do not become disproportionate or vary between localities in ways that act as a penalty to investment or cannot otherwise be justified. There will remain classes of 'public benefit' planning processes that generate no commercial value and should have nominal or no fee charged. Opportunities
Issues and constraints
How could the Local Development Framework respond? By ensuring that town centres are still at the heart of new retail/economic development.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Economy and Employment
Table A23 Title ‘Undermining Planning will not promote competition warn RTPI’ (Press Release) Proponent body Royal Town Planning Institute Status (e.g. statutory, non-statutory) Non-Statutory Date produced January 2007 Why is it relevant to the Local Development Framework? Stresses the importance of effective planning in retail. Key messages, requirements and objectives Less Planning = Less Competition
Strong planning strengthens town centres and can support local productivity.
The planning system can influence the next trends in consumer behaviour.
Tesco were pioneers in moving into town centres (on the back of PPG6 or a commercial move – either way, its worked for them) and that has been a key part in why they have been successful in increasing their market share to what it is today.
It is not the role of the planning system to control the wants of consumers and where goods are supplied. Opportunities
Issues and constraints
How could the Local Development Framework respond? The Local Development Framework can help strengthen the role of the Borough’s Town Centres as discussed above. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A24 Title Town Centres Scale Agenda Proponent body Article from Planning Status (e.g. statutory, non-statutory) Non-Statutory Date produced April 2005 Why is it relevant to the Local Development Framework? Gives background on arguments for/against Planning Policy Statement 6 and the government’s key objectives. Key messages, requirements and objectives
Opportunities
• Important for Town Centres to be required to maintain their vitality • The sequential test allows flexibility without negative impact on Town Centres
Issues and constraints
• Too much emphasis on Town Centres – more balance recognising different formats suited to out of town development is needed • Congestion of Town Centres feared through Town Centre first policy • Pressure on Local Planning Authorities to keep a continued supply of sites
• Retail considered most practical in instances where sites are scarce - but this isn’t reflected in guidance.
• Difficult to identify the need for offices compared to retail – both treated same in national policy.
• Schemes in smaller centres are less viable than large town centres – policy advocating development in smaller centres may be ineffective.
• Policy document is good, but it not if Local Planning Authorities don’t have the resources to implement it properly. How could the Local Development Framework respond? By ensuring that there is a good supply sequentially preferable sites for retail development. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A25 Title Various Articles – Retail Forum, The Newsletter of the National Retail Planning Forum Proponent body NPRF Status (e.g. statutory, non-statutory) Non-Statutory Date produced September 2005 – June 2007 Why is it relevant to the Local Development Framework? The articles provide a critical assessment of Planning Policy Statement 6, in particularly the Need Test and the emphasis on town centres. Key messages, requirements and objectives • As of 2005, 70% of retail development was still taking place outside of town centres
Cliff Guy’s comments on retail policy: • Town centre policy at the local level repeats the national policy objectives concerning town centre vitality and viability. Other positive factors of retail development are overlooked. • The Town Centre first policy is ignorant of different types of shopping – e.g. car based ‘trolley shopping’ • The policy should acknowledge existing shopping patterns and be more responsive to them. Criteria of policy should include factors such as: • Accessibility to supermarkets in large urban areas • The inclusion of lower rent areas in city centres for viable convenience shopping • Sub-regional malls.
Geoff Steeley’s comments on Planning Policy Statement 6: • The document is ignorant of suburbs – a lack of a clear vision of suburban areas in retail policy means that suburban revitalisation is not going to occur. • The typologies in the annex of the document present problems. The difference between comparison and convenience retail is becoming increasingly blurred as retail formats and consumer patterns change.
Cliff Guy’s comments on the Need Test: • The abolition of the need test would still see the sequential, impact and transport tests in place. • The above tests would still be enough to stop development that would be to the detriment of the town centre and would prevent developments that would increase vehicular mileage. • Some out of centre development is needed for certain floor space hungry formats. These formats would not be commercially viable in town centre locations as rents have been inflated by Town Centre first policy. Opportunities
Issues and constraints
How could the Local Development Framework respond? The Local Development Framework could respond to the areas that are not covered by Planning Policy Statement 6 such as: • suburban development/district centres • responsiveness to market conditions – promoting lower rent units in areas of low demand • considering the role of existing out of town retail developments – car borne types of shopping Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A26 Title The Future of Retail Property – Future Shopping Places Proponent body British Council of Shopping Centres Status (e.g. statutory, non-statutory) Non-Statutory Date produced 2007 Why is it relevant to the Local Development Framework? The research looks at the future of retail and town centres – relevant to the long term planning of the borough and its town centres. Key messages, requirements and objectives The research aims to inform and inspire the retail industry at a time of such change.
The future of retail is set amongst limitations arising from finance, policy and ownership, as well as increased environmental pressures.
Heightened competition and customer expectations mean that there is pressure on the industry to find the ‘next best thing’ The main conclusions of the report are that future retail will be based around the search for: • New convenience • Difference • Social Responsibility • Well Being Opportunities Urban Design will play an increased role and be at the forefront of Town Centre renewal strategies. Cities and major towns will have to pioneer strategies to provide aesthetically rich shopping experiences – to strengthen the identity of places against their competitors. Retail Warehouse Parks will strive to have a greater sense of place to be able to compete. Sustainable in-store design will be important to ensure competitive advantage. Integrated transport will be a key part of retail developments and their competitive edge. Emphasis on shopping experience – Retail combined with leisure uses to make town centres more appealing. An attractive public realm will be part of this experience. Issues and constraints 60% of new retail floorspace will be outside town centres in the next ten years. There is a lag between the different types of floorspace and formats and the supply of floorspace to accommodate these.
Smaller town centres are more vulnerable to competition from regional centres and increased internet retailing. How could the Local Development Framework respond? Town centres should include an attractive public realm and an appropriate mix of uses for them to remain attractive to visitors and consumers. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Landscapes, Townscapes and Buildings Accessibility
Table A27 Title Future of Retail Property: Shopping Places for People Proponent body British Council of Shopping Centres Status (e.g. statutory, non-statutory) Non-Statutory Date produced June 2007 Why is it relevant to the Local Development Framework? As part of the study by the BCSC (British Council of Shopping Centres) this report looks at what the future of shopping places, ten years down the line, and the people that use them.
Key messages, requirements and objectives • Growing competition and demand in the market will see expansion and acquisitions and a greater share of sales apportioned to a smaller number of conglomerates
• Large modern shopping units high up the retail hierarchy will remain competitive with centres further down the hierarchy needing private and public sector investment to remain competitive.
• An ageing population will play a part in changing shopping places
• Increased comparison spending but at a slower growth rate
• Retail should be more responsive to the expanding ‘experience economy’ – sports, travel, hobbies
• Local Planning Authorities should create attractive retail spaces by easing restrictions on the supply of land and lowering the upward pressure on rents.
• There is a call to support under resourced planning departments to help them handle large scale retail schemes
• The role of the car needs to be realistic – i.e. people want to and will continue to use that mode, so it can’t be ignored.
• New development will need to sustain a diverse mix of formats
Opportunities
• Lessons learnt from previous planning and design mistakes, coupled with the willingness and strength of the retail centre bodes well for creating attractive and sustainable shopping destinations
• More use of on-site renewable energy.
• High quality streetscape offers increased diversity through reinforcing local pride and sense of place
• Experience is an important part of shopping (particularly when responding to online retailing) – creating attractive places is a part of this.
• There is scope for joined up work in creating transport solutions Issues and constraints • Car travel is and will continue to be the main mode for shopping
• The future direction of policy (post Barker review) is an area of uncertainty
• Out of town retail development will still be more than town centre retail development
• Developers are dissatisfied with the amount of time town centre retail development takes to come to fruition
How could the Local Development Framework respond? The Local Development Framework can consider the above.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Accessibility Landscape, Townscape and Buildings
Table A28 Title The Contribution of local high streets to sustainable communities Proponent body Joseph Rowntree Foundation Status (e.g. statutory, non-statutory) Non-statutory Date produced April 2007 Why is it relevant to the Local Development Framework? The study looks at the role of mixed use High Streets in communities and how the High Street can be strengthened. The study looked at urban thoroughfares in Sheffield, Coventry and London (Tooting) Key messages, requirements and objectives The study arose from a desire to answer a number of questions, including:
• Is the role of the High Street relevant to future visions of urban living?
• Has the High Street’s traditional commercial base being weakened by changes in retail provision?
• Do High Streets accommodate other types of activities?
• To what extent does through-traffic dominate the High Street?
• What contribution can High Streets make to the Government’s sustainable communities agenda? Opportunities Mixed use High Streets contain a rich variety of shops and businesses. The majority of local residents travel to them via sustainable modes of transport. The streets act as important local places – informal activity and social interaction. Intensive use by pedestrians and road transport created a buzz. Issues and constraints High Streets have been neglected over the years by planners, engineers…etc The design of High Street should be geared towards the High Street as a ‘place’.
Better co-ordination between agencies and street users (possibly through appointment of Town Centre Manager) is needed.
Enhanced information gathering and sharing of information relating to the High Street is recommended. How could the Local Development Framework respond? The Local Development Framework could consider the role that High Streets play when producing a hierarchy of retail centres or when looking at key service centres.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Landscapes, Townscapes and Buildings Communities
Table A29 Title Shoppers and how they travel Proponent body Sustrans Status (e.g. statutory, non-statutory) Non-statutory Date produced 2006 Why is it relevant to the Local Development Framework? The report presents information on the travelling habits of shoppers, using the case studies of local centres in Bristol, situated on busy arterial routes. Key messages, requirements and objectives The report finds that retail vitality would be best served by traffic restraint, public transport improvements, and a range of measure to improve the walking environment.
Most customers to the shopping centres were local.
Retailers overestimated the importance of car-borne trade by almost 100%
More than half of shoppers walked to the shops
Traders may overestimate the importance of the car because of uncertainty about where customers are travelling from and how they shop
The study found that local centres were predominantly used by local shoppers walking to the shops
This presents a picture of healthy, physically active lifestyles, populous streets and social interaction.
Traffic restraint elsewhere in Europe has tended slightly to reduce retail turnover during the first year, before a positive move as customers adjust to the improvements.
Cyclists and pedestrians make four times as many single-shop visits than car users.
Car-borne shoppers are “drive-thru” shoppers, stopping to pick up one item on the way to their eventual destination.
Opportunities
Issues and constraints
How could the Local Development Framework respond? The Local Development Framework can support local centres by encouraging their connections with their surrounding community and public transport routes.
The attractiveness and ease of access to pedestrians should be a prime consideration when revising the settlement hierarchy.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Accessibility
Table A30 Title Design Reviewed: Town Centre Retail Proponent body Commission for Architecture and the Built Environment Status (e.g. statutory, non-statutory) Non-Statutory Date produced May 2004 Why is it relevant to the Local Development Framework? This report presents a review of town centre retail and discusses the approach that town centre retail schemes should take and looks at lessons that have been learnt from past town centre schemes.
Key messages, requirements and objectives • There is a need to balance the needs of retailers (in terms of footfall and store requirements), the operator (in terms of capital value) and the surrounding urban context.
• Economic and civic aspirations should be viewed as mutually compatible.
• The need for a ‘theatre of consumption’, i.e. creating a high quality customer experience should be integral to the design of retail schemes.
• Successful retail schemes require a clear design vision
• Retail schemes should respect urban morphology, the wider movement framework and contribute to creating a high quality public realm.
• Mixed use is advocated for retail schemes, either retail as a ground floor use in residential development or retail to wrap around big box developments such as large shops, cinemas and other leisure uses.
• Attention to servicing areas and keeping these separate from the customer environment is important.
• Public art should be integral to the design of retail development and not an afterthought.
• The management of new development is critical – partnerships should be forged between developers and the local authority. Opportunities
Issues and constraints
How could the Local Development Framework respond? There isn’t any capacity identified for retail development in the short term but this has been identified in the long term by the Wigan Borough Retail Study. It will be imperative that the identification of opportunities for large scale town centre development are identified at the earliest possible stage through the LDF. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Landscapes, Townscapes and Buildings
Table A31 Title Nightvision – Town Centres for All Proponent body The Civic Trust Status (e.g. statutory, non-statutory) Non-Statutory Date produced October 2006 Why is it relevant to the Local Development Framework? Looks at what various bodies (including Local Planning Authorities) can do to improve the evening economy of town centres, providing ‘something for everyone’.
Key messages, requirements and objectives • The early 1990s dream of varied, congenial and convivial town centres after hours remains a dream today. • Policy makers and practitioners have been overtaken by the speed of growth in the evening economy. • A broader strategic approach with ‘town centres for all’ is the aim • Essential to secure partnership with operators and self-regulation by the industry • Town centres should not be ‘no-go areas’ for anyone at any time • Ten principles for change are set out : 1. Embody the community health agenda 2. Data collection – market and consumer understanding alongside performance indicators 3. Promote local choice 4. Create family/child friendly centres 5. Improve accessibility – safe affordable public transport 6. Set new standards in customer care – a welcoming/hospitable public realm 7. Use planning to shape future of centres at night 8. Design out crime, design in delight 9. Promote flexible hours and multiple use of public buildings, such as galleries, museums and libraries 10. Extend shopping and other services into the evening.
Opportunities • With innovation in the market, there will be increased variety and choice. • Trends show that shopping hours are gradually extending into the evening. • The public sector can find ways of making cultural and other attractions available late at night. Issues and constraints
• The evening economy is currently geared towards alcohol • More people would go out if there was more choice and variety in things to do • Effective public policy and strong leadership are needed.
How could the Local Development Framework respond? The evening economy could be given full inclusion into a town centre policy in the Local Development Framework; perhaps further guidance could be developed. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A32 Title Secondary Shopping Town Centre Dynamics – Research Scoping Paper. Proponent body National Retail Planning Forum Status (e.g. statutory, non-statutory) Non-Statutory Date produced June 2000 Why is it relevant to the Local Development Framework? The scoping paper looks at what the research that should be carried out into secondary shopping areas (Town Centre Fringe, District and Local Centres). Key messages, requirements and objectives Secondary shopping areas have been previously overlooked in research and policy.
The research priorities identified as: • Formulating criteria for identifying secondary areas • Designing tools for measuring characteristics and performance of secondary shopping areas • Assessing the future of secondary shopping areas in light of trends Opportunities
Issues and constraints
• How can secondary shopping areas identify niche markets and exploit their own uniqueness?
• How can independent retailers be encouraged to improve secondary areas?
• Action of public and private sectors to secure long term prosperity of secondary shopping and its contribution to the attractiveness of town centres. How could the Local Development Framework respond? As above
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A33 Title Focus on Retail Proponent body English Historic Towns Forum Status (e.g. statutory, non-statutory) Non-Statutory Date produced March 2008 Why is it relevant to the Local Development Framework? Contains information on the role of retail in, mainly historic, town centres. The report looks at market trends, policy and challenges facing retail in historic towns. The report also contains case studies of schemes successfully implanted in historic towns.
Key messages, requirements and objectives
Opportunities • Policy and market forces have breathed new life into town centres. There is no reason why this shouldn’t continue in the future.
• Business Improvement Districts can help improve the public realm and these can comprise entirely of local independents.
• Public realm strategies, town centre management strategies and area action plans are all tools which can be used to deliver a successful town centre comprising:
o An attractive, safe and clean environment
o Variety in retail offer
o Differences from adjacent retail areas
o Well repaired and maintained buildings
o Well managed parking and traffic
o Facilities for people of all ages
o Other cultural attractions: historic buildings, museums, theatres, sports centres
• There has been a shift to streets and squares, instead of malls and atriums and shopping quarters rather than shopping centres. The Liverpool One scheme is an example of this.
• Mixed use developments can extend the scope of the evening economy, i.e. a residential population to support businesses.
Issues and constraints • The population is ageing and therefore the type of consumer will also change over time.
• Growth in spending will be slower than previous years, particularly for clothing and footwear.
• Town Centre schemes take on average 7 years, due to complexity in land ownership and urban fabric. Town Centre retail development is not for speculators who are looking to make a quick buck.
• In the future, older consumers will be more savvy, fashion conscious and discerning. Retail spend will be competing with other spend (leisure) and fashion will extend beyond clothing and footwear.
• Edge of centre sites need to be better integrated, rather than ‘big box’ schemes that have previously been developed. • Design needs to be sympathetic to the historic environment whilst being operational.
• Mixed use development needs to be properly integrated, possibly with private management of public space, but with access retained 24/7.
How could the Local Development Framework respond? The Local Development Framework can take this document into account when looking at where future retail growth should be accommodated in our town centres. The borough does not contain historic town centres like the ones referred to in the document (Chester, Canterbury…etc) but there are the same issues regarding the urban fabric. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Built Environment and Landscape
Table A34 Title Town Centre Management Articles Proponent body Urban Design Quarterly Status (e.g. statutory, non-statutory) Non-Statutory Date produced Summer 2004 Why is it relevant to the Local Development Framework? This series of articles and case studies looks at the role that town centre management has in facilitating and helping to manage the regeneration of town centres. Town Centre Management is promoted in Planning Policy Statement 6 and is an important consideration for the Local Development Framework.
Key messages, requirements and objectives Town Centre Management as Regeneration
• The type of urban regeneration that is carried out within town centres varies according to the town’s socio-economic status.
• Delivery of regeneration programmes is based on: the place’s economic imperative, development opportunities provided by private investors and regeneration priorities determined by central and local government. .
• Research identified 3 types of centre A (self-sufficient, rich environment and healthy economy), B (industrial legacy, regeneration opportunities, segregation between rich and poor) and C (severe industrial decline, limited marketable resources, dependency culture)
• These types of towns all had different needs and the role and beneficiaries of Town Centre Management will contrast.
Business Improvement Districts
• The need for public private partnership arose from the boom/bust cycle of the 1980s and subsequent over provision of retail space.
• Business Improvement Districts see a levy supplementary to business rates in a defined geographic area, providing that a dual key majority of businesses in the area vote for it (majority of the businesses and also the majority of rateable value).
• These can be public or private sector driven and see an opportunity to coordinate initiatives and resources to make them more effective.
Managing the Evening Economy
• The evening economy has some social and economic benefits but must be managed effectively in the face of negative impacts such as nuisance and disturbance.
• There is a need to strike a balance between the evening economy and increasing numbers of town centre residents.
Opportunities
• Business Improvement Districts can be used to manage the evening economy, in anti- crime initiatives and for public realm improvements.
• Town Centre Management initiatives concerned with creating clean, safe centres (the liveability agenda).
• There is an opportunity for planning and licensing to be joined up to help manage the evening and night time economy more effectively. Issues and constraints • Many town centres lack infrastructure such as taxis, public transport and toilets to help combat problems from temporal concentrations – this is exacerbated by fixed opening times.
How could the Local Development Framework respond? The 9 town centres identified in the Unitary Development Plan and Platt Bridge all have some degree of town centre management. The Local Development Framework could help promote this further and ensure that the town centre managers are fully engaged in the plan making process. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A35 Title Planning for Accessible and Sustainable Retail Proponent body Town and Country Planning Association Status (e.g. statutory, non-statutory) Non-Statutory Date produced July 2005 Why is it relevant to the Local Development Framework? This provides information on how retail policy can be developed so that it makes a positive contribution to sustainable communities. Key messages, requirements and objectives The Town and Country Planning Association calls for a more strategic approach to planning for retail, which will: • provide universal, affordable access to all retail outlets, with access to town centres being more convenient and less expensive than remote locations; • favour town, district, and local centres for development over edge- and out-of-town locations; • transform some edge- and out-of-town retail developments into more intensive, mixed- use sustainable communities to meet local and regional strategic planning objectives; • strategically and positively manage town centre growth or decline; • encourage high levels of human interaction through, for example, markets; • protect local distinctiveness, and actively promote cultural and economic diversity, to offset the ‘clone-town’ impacts of large retailers; • combine civic, retail, and commercial functions to create thriving town centres; • develop alternative distribution modes, such as town centre shipment points, where delivery access is constrained; and • support local economies. Opportunities
Issues and constraints • 48% of all UK food shopping is from out of town retailers of over 7500 sq m in size.
How could the Local Development Framework respond? The Local Development Framework could consider the Town and Country Planning Association’s call for more strategic retail policy as discussed above. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Accessibility
Table A36 Title Retailing, Access and Sustainable Town Centres Proponent body Town and Country Planning Association Status (e.g. statutory, non-statutory) Non-Statutory Date produced 13 July 2005 Why is it relevant to the Local Development Framework? The thoughts of Sir Stuart Hampson, Chairman of the John Lewis Partnership , provides a businessperson’s insight of retail planning and the role that retail has to play in providing sustainable communities. Key messages, requirements and objectives Sir Stuart Hampson, Chairman, John Lewis Partnership:
• Businesses have a responsibility to help deliver a sustainable built environment and the social framework that is passed on to the next generation.
• There is no conflict between the duty as directors to promote the sustainable success of companies and the duty as citizens to protect and promote the quality of public spaces.
• Hampson prizes powerful shopping destinations that emerge with the ingenuity of developers and retailers together with the partnership of pro-active local authorities
• A balanced approach to land use planning depends on encouragement and direction through the political process and ministerial decisions and statements.
• Multiple shopping transactions in a single trip are the basis of trading efficiency – traced back to medieval markets. There is nothing less productive than out of town retailing sapping economic vitality out of a town centre.
• Access for the private motorist is essential for the life of towns and cities
• Extending the boundaries of town centres to accommodate large units without addressing low demand in existing town centre areas is dangerous
• Planning system should take a fuller interest in creating choice and competition Opportunities
Issues and constraints
How could the Local Development Framework respond? The Local Development Framework should consider, where possible: • Consumer choice • Areas of low demand in town centres • The role of the private motorcar in town centre development • Opportunities for partnership with retailers to deliver good town centre retail schemes, where appropriate. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A37 Title Clone Town Britain Proponent body New Economics Foundation Status (e.g. statutory, non-statutory) Non-Statutory Date produced 2004 Why is it relevant to the Local Development Framework? A study looking at the homogenisation of the High Street. Although the study concentrates on prime shopping areas it argues why independent retailing and maintaining diversity and individuality in town centres are important and how these can be restored.
Key messages, requirements and objectives
The assault on the character of town centres has been aided by planning and regeneration decisions that have drawn shoppers away from the high street and created a retail infrastructure hostile to small, independent businesses.
Genuinely local stores have greater local benefits, and that there are good economic reasons for maintaining diversity on Britain’s high streets.
The New Economics Foundation make the following policy recommendations:
Community veto of chain stores: Local communities and authorities should have the ability, following other international experiences, to ban new chain stores from high streets.
Rate relief for small retailers: Priority assistance should be given to locally owned high-street shops contending with out-of-town and edge-of-town superstores.
Local competition policy: Competition policy, normal at the national level, could be applied at the local level to prevent market abuse by big name retailers.
Mandatory code of conduct for supermarkets: This would scrutinise both the supermarkets’ relationships with their suppliers and the degree of market control which the large multiple chains hold over the food retail-market.
Local money flows’ analysis: This would provide an indication of how different types of retail planning and/or public procurement strategies can reduce or augment money flows within the local economy – to keep more where it is needed in poor neighbourhoods.
Local retail plans: Similar to regulations that existed in the Republic of Ireland, which cap the size of supermarkets, ensure that town centres are the primary focus for development, and require local authorities to develop retail plans for their area.
Opportunities
Issues and constraints The report presents these headline statistics: • General stores closing at the rate of one per day.
• Between 1997 and 2002 specialist stores like butchers, bakers and fishmongers shut at the rate of 50 per week.
• Twenty traditional (non-chain) pubs are closing per month.
• Between 1992 and 2002, Britain lost one third of its bank-branch network – leaving nearly 1000 communities across the UK with no access to a local bank.
• Supermarkets have over 80% of the food retail market – therefore are able to control suppliers and food producers.
The report: The report concentrates on primary shopping areas – where rents are higher and are invariably full of multiple retailers. Whilst preventing a strong argument against clone towns, no discussion is included on what the benefits of multiple retailers are.
How could the Local Development Framework respond? Some options could be explored in the plan making process to ascertain how the Local Development Framework can support independent retail and maintain vibrant town centres.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A38 Title High Street Britain: 2015 Proponent body House of Commons: All-Party Parliamentary Small Shops Group Status (e.g. statutory, non-statutory) Non-Statutory Date produced 2006 Why is it relevant to the Local Development Framework? This report provides the analysis of the evidence, both written and oral, submitted to the Inquiry held by the All-Party Parliamentary Small Shops Group, entitled ‘High Street Britain: 2015’, concerning the long term prospects of the United Kingdom’s small retail sector.
Key messages, requirements and objectives The importance of the retail sector: The retail sector in the UK employs 3.1 million people accounting for 1 in 9 jobs.
There are 278,630 shops in the UK, almost half of which are operated by a sole
The small retail sector is a key driver of: entrepreneurship, employment, skills, local economies, innovation, and sophisticated business networks, as well as accessibility to vital goods and services, diversity, social inclusion and community activities.
Local shops can meet the demands of surrounding communities – i.e. deprived communities with no transport access, the elderly and religious groups with specific diet needs.
The report makes the following recommendations: • Implement a moratorium on further mergers and takeovers until the government has brought forward proposals to secure the diversity and vitality of the retail sector • Establish a retail regulator • Revise the two market ruling • Introduce comprehensive codes of practice across the retail sector • Review the tax system and close the Jersey VAT loophole • Review application of rate relief system as applied to independents trading on the threshold of viability • Introduce a new requirement for all local authorities to adopt a retail strategy within the Unitary Development Plan • Develop regeneration units in all local authorities within the UK • Develop retail focused regeneration units in all Regional Development Agencies within the UK • Delegate greater decision-making power to people locally (consumers and communities) • Rapidly implement the recommendations of the Hampton review (reducing administrative burdens) • Make revisions to the retail property market • Encourage the transformation and innovation of the Post Office network • Implement measures to restrict the environmental impact of shifts in the retail sector Opportunities
Issues and constraints Issues facing the small retail sector
Witnesses cite the aggression of larger competitors, distortion of the supply chain, the cost of property, crime, poor planning decisions, a lack of appropriate business support and disproportional regulatory burdens as problematic.
Once a ‘tipping point’ is reached many small shops could be lost instantly as wholesalers no longer find it profitable to supply them, resulting in the urgent need for a review of the market.
For 2015, the outlook for most sectors of independent retail is bleak with only bakers and rural shops rated as likely to survive. Newsagents and petrol forecourts are rated as very unlikely to survive.
Issues regarding large retailers
The maxim to eat five portions of fruit and vegetables a day are inconsistent with a culture that apparently supports the spread of the large supermarkets, and the subsequent inevitable closure of local shops.
Planning issues
Planning policy of councils has reduced footfall, thereby reducing the attractiveness of high streets for retailers to invest in, therefore persuading them to go out of town.
Schemes aimed at cutting congestion and making town centres more attractive places for pedestrians can have unintended consequences for the accessibility of the car borne consumer. How could the Local Development Framework respond? The development of options in the Local Development Framework is based on a robust evidence base, namely the Wigan Borough Retail Study. This will help inform the need that exists in the borough for retail and so that if any large scale retail development takes place, this will not be at the expense of local independent retail or be to the detriment of communities.
The hierarchy of centres will be revised in the plan – this could provide an opportunity to identify how the role of local centres, containing local shops, could be enhanced and what the role of the local centres will be towards the end of the plan period. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Communities
Table A39 Title Retail Development Bill Proponent body House of Lords, Private Members Bill Status (e.g. statutory, non-statutory) Non-Statutory Date produced First reading: 22/01/2008 Why is it relevant to the Local Development Framework? If this Bill is enacted into law, it could have major implications on how we plan for new large- scale retail development and also, supporting small-scale retailers.
Key messages, requirements and objectives • The bill would establish the Office for Retail Development. This would require all local authorities to draw up a retail development plan, refer all large scale retail schemes to central government and have a scheme that supported partnership and co-operative retail schemes.
• A review to be conducted by the Secretary of State will examine:
o Level of rates as a percentage of annual turnover
o Impact of rates on owners / potential owners to make sufficient profit
o The costs and benefits of reducing those rates.
• The Office of Retail Planning would look at the range, availability and accessibility of retail services.
• The Office would have the power to hear representations and make recommendations on large scale retail applications. Local authorities would have to refer all large-scale (classification to be determined) to the Office.
• Each local planning authority would have to prepare a retail development plan. This would:
o Make provision for the three classes (small, medium and large) of retail premises.
o Provide conditions to be attached to permissions, take account of existing provision.
o Make provision for the need to maintain diversity, competition, traditional characters of specific localities and the needs of the local community.
o Consider the circulation of money in the local economy, the provision of employment, the environment and service provision.
• The Retail Development Plan would need to be in conformity with the Local Development Scheme and the Regional Spatial Strategy. An Annual Monitoring Report would need to be produced containing information on the implementation of the plan.
• Before granting permission for large scale retail development, those living and owning retail premises within a five mile radius of the proposed development would need to be consulted. Opportunities • A lot of the work already undertaken as part of Retail Studies could be accommodated into formulating a Retail Development Plan.
• A retail development plan would enable most town centres to be maintained or enhanced, but there could also be scope for out-of-town development in areas requiring investment and employment opportunities. • Local Authorities would be obliged to support social enterprise. Issues and constraints • Some of the requirements for local authorities, such as the five mile radius for consulting on large-scale proposals could be onerous.
• This would require a significant amount of changes to be made to local planning policy to accommodate a retail development plan.
• The bill says that Local Authorities can offer financial support to community co-operative retail schemes but does not give any information on how this would be resourced.
How could the Local Development Framework respond? As this is a private members bill from the Lords, it is unlikely that much time will be set-aside for debating it in both houses of parliament. Nevertheless, it will need to be monitored closely. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A40 Title Under-Served Markets: Retail and Regeneration Proponent body Business in the Community and Department for Communities and Local Government Status (e.g. statutory, non-statutory) Non-Statutory Date produced 2008 Why is it relevant to the Local Development Framework? The report contains some good information on the role of retail in regeneration projects.
Key messages, requirements and objectives • Returns on commercial property in regeneration areas exceed those in traditional areas.
• Brand retail can bring economic benefits to deprived communities: access to quality low cost products, job creation and a multiplier effect that increases footfall for other local businesses.
• Challenges to retail development are exacerbated in deprived areas. There are concerns about the impact of brand retail, retail employment is often undervalued and these areas are often not sequentially preferable and don’t fit with current planning policy.
• Retail-led regeneration works best when it is part of a holistic regeneration strategy.
• Private and public sector stakeholders must work together to promote and encourage investment in deprived areas.
• Local Planning Authorities are encouraged to consider the potential role of retail-led regeneration in the future vision for deprived areas. Opportunities • The proposed changes to Planning Policy Statement 6 places more weight upon the regeneration impact of retail development. Regeneration benefits will be one part of the retail assessment. Issues and constraints • Areas of deprivation in the borough are well served by large scale retail development already. • Using retail-led regeneration may have benefits for deprived areas, but these need to be juggled with maintaining the vitality and viability of town centres. How could the Local Development Framework respond? If the proposed changes in PPS 6 go ahead, the Local Development Framework may be able to carry forward retail schemes based on regeneration benefits, but as stated above this needs to be in a way that doesn’t have a detrimental impact on existing centres. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Consultation on Proposed Changes to Economy and Employment Planning Policy Statement 6: Planning for Town Centres
Table A41 Title The Real Choice – How local foods can survive the supermarket onslaught Proponent body Campaign to Protect Rural England Status (e.g. statutory, non-statutory) Non-Statutory Date produced June 2006 Why is it relevant to the Local Development Framework? This report provides information relating to local food networks and discusses the threats to independent retailers and suppliers. Key messages, requirements and objectives • Food webs – links between different people and businesses that grow, process sell and buy foods within a local area.
• There is a need for planning/retail policy to support the development of more local food webs.
• Food webs are largely concerned with maintaining/enhancing sustainable rural development but environmental impact of food production and distribution is relevant to the borough.
• Consumers are increasingly aware of the benefits of local produce, good quality food, environmental impact and animal welfare.
• Planning policy concerning retail should be strengthened.
• National Policy should be revised to further support the needs of local independent retail.
• Local Development Framework policies should support food networks Opportunities
Issues and constraints Threats to independent retailing
• Supermarket domination
• Regulation placing disproportionate burdens on smaller retailers
• Inconsistent interpretation of planning policies
• Lack of information about food and its origins for consumers.
Threats to UK Farmers and Suppliers:
• Economies of scale and streamlined supply chains of supermarkets
• Farming to high environmental and welfare standards means a higher cost and are unable to compete with overseas farmers.
• Independents and wholesalers are playing a smaller role in the retail market leading to a low demand
Planning Policy
• Local Planning Authorities need to have a strong evidence base in order to properly assess the need for development.
How could the Local Development Framework respond? The thrust of food networks appears to be more of a rural issue – the Framework could include policies that support local retail but it could be difficult to reach a consensus on how to do this. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A42 Title Food Webs Proponent body Campaign to Protect Rural England Status (e.g. statutory, non-statutory) Non-Statutory Date produced February 2002 Why is it relevant to the Local Development Framework? The concept of food webs analyses the sophisticated network of farmers, suppliers and retailers – particularly in rural areas but some of the points are relevant to the borough. Key messages, requirements and objectives • Mapping local food webs – initially a survey in response to a proposed supermarket at Saxmundham, East Suffolk.
• The concerns related to the impact on both shops and suppliers – a loss in vitality and viability of local towns and loss of jobs.
• The survey sought to find out where local independent retailers sourced food from and what the impact of the supermarket would be on this.
• The survey found that local independent retailers played a key part in the midst of an intricate economic and social network. Opportunities Local food webs have a range of environmental benefits. For example the distance between farm, supplier and retailer is much shorter than would it would be for a large supermarket operation. Issues and constraints The survey found that the opening of the supermarket would invariably lead to the closure of local shops. This would undermine the vitality of local food businesses who supply the shops.
Supermarkets have centralised and streamlined supply chains. Food is sourced from large farmers and wholesalers. The role of local farmers and wholesalers could be undermined. How could the Local Development Framework respond? The rural food web might be difficult to implement in Wigan, an urban area where the majority of food retail is already accounted for by large supermarket chains. Strengthening the independent retail sector and improving consumer choice could be addressed in the Framework.
How exactly the Local Development Framework could support the role of local and independent retailers without discriminating against large national retailers could be problematic.
Investigating the role that local retailers play in terms of supporting local food producers could be a possibility. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A43 Title Relocalising Food Shopping Proponent body University of Southampton Status (e.g. statutory, non-statutory) Non-Statutory Date produced 2006 Why is it relevant to the Local Development Framework? • The study, commissioned by Tesco, looks at the impact of small format Tesco stores in local centres on shopping patterns.
• The study is carried out by the University of Southampton and looks at three semi-rural centres in Hampshire: Whitchurch, New Alresford, Four Marks and a deprived inner city area at St Mary’s, Southampton. In all these local centres a One Stop convenience store was replaced by a Tesco Express store. Key messages, requirements and objectives • The emergence of large corporations into the convenience store sector has some benefits to consumers: an extended range of products and a high quality distribution and supply chain system
Opportunities • An increase in amount of people using the local centre for primary shopping from 8.3% to 12.6% • The relocalisation of primary food shopping was modest – but there was some change nonetheless. • Secondary shopping saw a significant relocalisation – large increase in those walking and cycling to carry out secondary shopping • Large decrease in car based food shopping mileage • Trade being diverted from distant supermarkets more than local stores
Issues and constraints • The amount of secondary shopping from other local stores has been reduced from 29.2% to 25.3% in the year since Tesco emerged. • In some instances Tesco is acting as an anchor in the local centre and drawing consumers to the other shops too. • Concerns about Tesco disregarding the local community How could the Local Development Framework respond? Through revising the retail hierarchy – local centres could play an increased role in retail provision. Information from the retail study can inform the need that exists for retail in such locations.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Accessibility Communities
Table A44 Title The Retail Planning Knowledge Base Briefing Paper 2 ‘Food Deserts’ Proponent body Institute for Retail Studies – University of Stirling Status (e.g. statutory, non-statutory) Non-Statutory Date produced June 2006 Why is it relevant to the Local Development Framework? Summarises research that has taken place on food deserts and links between social exclusion and food retail. Key messages, requirements and objectives The social exclusion agenda initially envisaged small-scale retailing and community measures to redress disparities in levels of provision – tight planning controls and the regeneration agenda became influential and large retailers became involved. Opportunities Large retail developments: • Have had positive impacts on employment in deprived communities • Improved shopping behaviour – more walking to stores • When located in district centres, clawed back trade to these. Issues and constraints
• People living in food deserts travel far to shop in superstores
• The fresh food/healthy eating offer in neighbourhood shops is poor
• Small shop provision in deprived areas does not meet the requirements of low income families.
• Large supermarkets are better at increasing access to healthy eating than a local initiative. How could the Local Development Framework respond? The Local Development Framework should identify whether or not there are any food deserts in the borough. A methodology could be followed for this that maps distances away from local shops/centres and Super Output Areas that are below a certain threshold in terms of the Indices of Multiple Deprivation. The identification of deprived areas with minimal food retail provision could help identify where new food development is located, should the need arise. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Communities
Table A45 Title The Retail Planning Knowledge Base Briefing Paper 3 ‘Clone Towns’ Proponent body Institute for Retail Studies – University of Stirling Status (e.g. statutory, non-statutory) Non-Statutory Date produced June 2006 Why is it relevant to the Local Development Framework? Studies the impact of large numbers of multiple retailers in town centres and how this affects town centres. Key messages, requirements and objectives Clone Towns was coined by the New Economics Foundation, a left of centre think-tank. The New Economics Foundation see Clone Towns as town centres being dominated by multiple retailers and independent retailers are losing out. The lack of diversity attacks sense of place and sense of belonging – puts a large amount of power in a small amount of hands. Opportunities
Issues and constraints Although the New Economics Foundation’s Clone Town Britain report caught the imagination of the public, it offers little in understanding retail. The New Economics Foundation has a strong philosophy and the Clone Towns study is centred on this philosophy and is not very objective.
Clone Towns study does not acknowledge that secondary retail areas play a crucial part in retail structure.
Secondary Shopping areas have been neglected by planning guidance – greater attention needs to be given to competitive small independent shops.
A lack of diversity means that town centres are vulnerable to company fortunes and changing economic conditions/globalisation.
Homogeneity of Town Centres places a greater emphasis on place marketing. How could the Local Development Framework respond? Give consideration to the role of secondary shopping areas. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A46 Title The Retail Planning Knowledge Base Briefing Paper 4 ‘Neighbourhood Retailing’ Proponent body Institute for Retail Studies – University of Stirling Status (e.g. statutory, non-statutory) Non-statutory Date produced August 2006 Why is it relevant to the Local Development Framework? Summarises academic and policy documents relating to neighbourhood retailing. Key messages, requirements and objectives Changes in consumer behaviour mean that the concept of neighbourhood retail has altered.
Multiple retailers are now emerging into the convenience sector –dominated by symbols (e.g. Spar) and independents.
There is a potential to capitalise on growing consumer concerns over localness (local food and market) and ‘place’. Opportunities Entrepreneurial independent retailers can be more responsive to local neighbourhood needs than multiples.
Research relating to new urbanism says that neighbourhood shops based on a catchment area within walking distance can work providing community is valued and neighbourhood interaction is desired. Issues and constraints There is a lack of guidance on neighbourhood retailing in national policy. Concepts of main/top-up shopping may not adequately reflect shopping behaviour.
National based funding and associations and retail based town centre management initiatives mean that independent shops are less successful than in Spain, where town centre management is more holistic and funding is a bottom-up process. How could the Local Development Framework respond? Recognise the role of neighbourhood retailing – although Planning Policy Statement 6 does not include local shops in the retail/centres hierarchy, the Framework could afford them some kind of protection. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A47 Title The Retail Planning Knowledge Base Briefing Paper 5 ‘Retail Planning and Food Retailing Competition Issues’ Proponent body Institute for Retail Studies – University of Stirling Status (e.g. statutory, non-statutory) Non-statutory Date produced October 2006 Why is it relevant to the Local Development Framework? Summarises academic and policy documents relating to competition issues and planning in food retailing. Key messages, requirements and objectives The Grocery sector was subject to Competition Commission investigation at the end of the 1990s – found to be working in the interests of the consumer but subject to Competition Commission investigation again, due to acquisitions of Safeway and Convenience stores.
In the context of retail, planners are assailed from all angles – retailers, politicians, consumers, economists Opportunities Competition in retail encourages retailers to make productivity improvements Issues and constraints The issues the Competition Commission are looking at regarding retail planning are whether it acts as a barrier to entry, constrains grocery retailers and whether retailers use the planning system to restrict others, e.g. land banking.
The Office of the Deputy Prime Minister found that planning policy was not found to impede productivity across different industry sectors – industry desired greater speed of processing planning applications.
Greater awareness of the need to encourage retail competition and innovation, through changes of format required.
Councils don’t have the power to face retailers in the appeals process – economic considerations distorting the planning system.
Retailers consider that policy does not promote competition – is less favourable to some formats than others. Contradictory to other Government Policy that promotes competition How could the Local Development Framework respond? Although competition isn’t a material planning consideration, the Local Development Framework should still contribute to a buoyant retail market. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A48 Title The Retail Planning Knowledge Base Briefing Paper 7: The Need Test Proponent body Institute for Retail Studies – University of Stirling Status (e.g. statutory, non-statutory) Non-Statutory Date produced May 2007 Why is it relevant to the Local Development Framework? Summarises academic and policy documents relating to the need test. Key messages, requirements and objectives
• In England, Land Use Planning concerning retail has become more complicated – to the frustration of business and Government. • Barker Review recommends that removal of the needs test, without damaging overall policy. • Distinguishing between need and demand is a difficult balancing act.
Opportunities Arguments in favour of the need test: • Strengthens Retail and Town Centre Policy • Helps Planning System manage resources and welfare rather than fostering competition • The need test is robust • The Barker review/Competition Commission are not seeking to strengthen Town Centres, but planning policy is, therefore need test is important • The Market is regulated – retailers are forced to be innovative Issues and constraints Arguments against the need test: • Planning Policy in Scotland is still effective – without the need test • The Need test favours extension and increases barriers to entry • Need test is nebulous, compared to impact tests • Regeneration sites are often outside of town centres – need test restrain these. • Space restrictions in town centres mean raised prices and land values. How could the Local Development Framework respond? Take account of the above.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A49 Title The Retail Planning Knowledge Base Briefing Paper 8: The Sequential Approach Proponent body Institute for Retail Studies, University of Stirling Status (e.g. statutory, non-statutory) Non-Statutory Date produced August 2007 Why is it relevant to the Local Development Framework? This briefing paper brings together information from academia, retail planning and government reports and looks at the sequential approach to site selection and whether or not this is an effective retail policy.
Key messages, requirements and objectives • The sequential approach was first mentioned in the House of Commons in 1994 and became part of Planning Policy Guidance 6 in 1996, continuing as part of Planning Policy Statement 6 in 2005. • The Barker Review of Planning, Planning White Paper and the Competition Commission inquiry into the grocery sector suggest that the sequential test is a more important retail planning policy than the need test. Opportunities
Issues and constraints Outstanding Issues in respect of the Policy: • Some formats are incompatible with current policy • Town centre sites are expensive to develop • Town centre stores may not attract equivalent levels of custom to out of centre stores • Multi-level stores are not always a satisfactory outcome • Proving flexibility can be difficult • Obtaining larger sites in town centres remains problematic • Disaggregation of activities may be expensive • Some preferred sites are sub-optimal. Emerging Issues: Sequential versus Need: Concerns about the interaction between the sequential and need tests include: • An edge of centre site may be available but the need is taken up already by out of centre developments • An extension to an out of town store may be fulfilling need requirement but then may prevent the development of a sequentially preferable site. • Edge of centre sites could be refused as need is met by existing town centre retailers. • A lack of sites in town centres for a preferred business format could act as a barrier to entry. There is a possibility that the there may be a new interpretation of the role that edge of centre sites play in the sequential approach to site selection. The new Planning Policy Statement 6 could address this. How could the Local Development Framework respond? The Local Development Framework will need to have a retail policy that is in conformity with national planning policy. The new Planning Policy Statement 6 is likely to have an impact upon Core Strategy retail policy.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A50 Title The Retail Planning Knowledge Base Briefing Paper 9: Evidence Based Retail Planning Policy: Data Crisis Proponent body Institute for Retail Studies, University of Stirling Status (e.g. statutory, non-statutory) Non-Statutory Date produced January 2008 Why is it relevant to the Local Development Framework? This briefing paper brings together information from academia, retail planning and government reports and looks at the collection of data for planning policy purposes.
A sound evidence base is an integral part of the Local Development Framework, but whilst the government advocates this, there is no common retail evidence base available to inform planning policy.
Key messages, requirements and objectives 1971 was the last time that data on retailing was collected on a mandatory and comprehensive basis, in the form of the census of distribution. Despite this, local authorities are expected to base local policy on actual data. Opportunities
Issues and constraints Several problems with data have been identified: • Varying definitions • Collection by different organisations on different bases for differing purposes • Lack of transparency, consistency, continuity, benchmarking and data archiving. • Costs of collecting data are high, so local authorities often have to rely on data collected by consultants or applicants. • In the UK, data for planning is poor in comparison with other countries.
These problems with data lead to several consequences: • A lack of consistency means that there is room for much debate over the data used by applicants and local authorities. • If planning tests become more complex (the competition test, for example) the discrepancies between different data could increase. • Companies often have more data than local authorities. How could the Local Development Framework respond? Data collection is an integral part of the Local Development Framework, to inform the database. We will have to ensure that how we collect data ourselves is consistent from year to year and there is also an opportunity to look at collecting data on a sub-regional basis with other Greater Manchester authorities.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A51 Title The Retail Planning Knowledge Base Briefing Paper 11: Retail-Led Urban Regeneration Proponent body Institute for Retail Studies, University of Stirling Status (e.g. statutory, non-statutory) Non-Statutory Date produced June 2008 Why is it relevant to the Local Development Framework? This briefing note summarises a number of research papers from academia and the private sector looking at the role of retail in urban regeneration. The Local Development Framework will address issues facing both retail and regeneration, but these issues are often looked at in isolation.
Key messages, requirements and objectives Key issues identified in the briefing paper include: Research base: • There are not often ‘before and after’ studies into retail-led regeneration schemes. • There is no ‘one size fits all’ retail regeneration model, all schemes will deliver the same outcomes or produce the same positive or negative impacts. Planning Decision-Making: • Retail provision is not usually a regeneration priority and regeneration is not a retail priority. • Projects have to be on a large scale to attract retail-led regeneration, but this may not fit with other planning goals (e.g. scale appropriate to the centre or impact on the vitality and viability of other centres) Outcomes: • The outcomes of retail-led regeneration initiatives depend on the nature of retailing, the regeneration needs and the way that development is carried out. • Employment impacts of schemes will depend on the area’s employment needs with job security and skills needing consideration. • Retail-led regeneration can act as a catalyst for the wider regeneration of an area, but there is no guarantee that other uses will be attracted. There are good examples of where other uses have been attracted by large schemes at Merry Hill and the Metro Centre. Opportunities
Issues and constraints There are several emerging issues surrounding retail-led regeneration: • A worsening economic climate may reduce interest in retail-led regeneration schemes, particularly in areas which involve greater risk (possibly those in most need of regeneration) • Changes to planning policy, such as abandoning the need test and giving more importance to qualitative impacts could impact (perhaps positively) on retail-led regeneration • The Competition Commission proposals may no longer allow exclusivity agreements between retailers and regeneration priorities.
How could the Local Development Framework respond?
Take account of the above. Any major policy changes regarding retail-led regeneration will be at national level, so the Local Development Framework would need to take account of these.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Economy and Employment
Table A52 Title Market Towns Distinctiveness Project (link to Barnard Castle report) Proponent body One North East (North East of England Regional Development Agency) Status (e.g. statutory, non-statutory) Non-Statutory Date produced 2006 Why is it relevant to the Local Development Framework? The project looked at three market towns in the North East Region: Alnwick, Barnard Castle and Guisborough. One North East commissioned research into how investments and development planning could be used to maximise the effects of retail distinctiveness on creating great places to live, work, visit and do business.
The project saw retail distinctiveness reports produced for each of the three towns, with each town centre being surveyed by a number of criteria. Key messages, requirements and objectives The survey of each centre measured its vitality and viability, looking at the following criteria: • Occupier profile – National and Regional occupiers by use class and location (primary / secondary frontage) • Diversity of uses – in additional to retail and associated services • Pedestrian footfall • Vacancy rates • Rental levels • Retail confidence surveys – retailers typical for that type of centre that are considering the centre for investment • Consumer confidence – surveys / focus groups of shoppers • Transport and parking • Accessibility
The criteria for measuring retail distinctiveness are: • Physical / Aesthetical survey – looks at town context and countryside setting, townscape of retail core, streetscape and street elements. Many of these elements were mapped. • Visual retail survey – looked at a number of criteria including retail provision (particularly types related to market towns / visitor attractions), opening hours, distinctiveness of independent shops and amount of local / specialist goods on display. • Markets – looked at the design of the market, number of traders, relationship with the rest of the town centre and vibrancy • Customer care – Used a mystery shopper to assess greeting, knowledge and ‘added value’.
The results of the above were shown on a chart, comparing with 3 case studies of other market towns.
A SWOT analysis for each town was then undertaken and next steps identified. Opportunities • A lot of the same techniques used in this study could be applied to town centres in Wigan. • Some of our town centres host an array of independent retailers; we could identify ideas from this project that could be applied to centres in the borough. • Multiple retailers, of the right scale, could be an opportunity for smaller town centres
Issues and constraints • The surveys are concerned with rural market towns, which attract tourists or are looking to improve their tourism offer and serve large rural hinterlands, different to the smaller centres in Wigan borough. How could the Local Development Framework respond? • Retail distinctiveness could be looked at in the future, particularly for how this can be developed in our smaller town centres to define their future role.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A53 Title Venuescore 2009 Proponent body The Javelin Group Status (e.g. statutory, non-statutory) Non-Statutory Date produced January 2009 Why is it relevant to the Local Development Framework? This provides information, so we can see how Wigan is performing in a national and regional context, particularly after the opening of the Grand Arcade. The information is based on the presence of certain retailers in centres, as shown below:
Key messages, requirements and objectives • Wigan fell back outside of the top 100, to the 105th ranked centre in the country. This change was largely due to changes in methodology. Wigan was 76th previously. • Leigh is identified as the second most downmarket centre in the country. • Leigh is ranked 377th • Manchester (2nd), Liverpool (6th), Chester (26th), Trafford Centre (40th) and Preston (44th) were centres from the region that are in the top 50 nationally. • Southport and Warrington both attained higher rankings than Wigan. Opportunities
Issues and constraints
How could the Local Development Framework respond? The information can be used as part of the Local Development Framework evidence base, to ensure that Wigan is competing effectively with neighbouring sub-regional centres.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table A54 Title Looking After Our Town Centres Proponent body Communities and Local Government Status (e.g. statutory, non-statutory) Non-Statutory Date produced April 2009 Why is it relevant to the Local Development Framework? This guidance was issued by the Government as the country is facing a downturn in the economy and recession is affecting retail, amongst other sectors, badly. The guide is primarily aimed at town centre managers and the initiatives in the document are largely based on approaches to town centre management, however the guidance touches on issues that are important to the formulation of policy for town centres. Key messages, requirements and objectives • The guidance is for different levels, from large city centres to market towns, district centres and local shopping parades.
• Vibrant town centres are good for business: they create jobs and generate income. At their best, they create a local buzz and define the wider area, attracting people from near and far.
• Town centre partnerships and town centre management is important because they can provide a forum to involve local stakeholders, influence other organisations so that town centres have a clear strategy for development, enable access to funding and outside resources.
• Town centre strategies can help town centre partnerships focus their efforts, represent a vision for change, clarifies each partners role and provides information for residents and businesses about how their town centre is being developed.
• Safe and attractive town centres require an attractive and easy-to-use ‘public realm’ in terms of facilities such as public toilets, high quality street furniture and clear signage. Good design is a key part of this.
• A range of planning tools is available namely local development orders which can speed up applications for change of use.
• The night-time economy can play a positive part in a town centre’s image and atmosphere, as well as have economic benefits, providing it is managed properly. This should look beyond pubs, bars and night-clubs but also to a range of retail, leisure and cultural facilities.
• Good practice cited in the North-West include the use of the town centre streets in Blackburn for markets, community events and fairs and also the use of empty shop units for art and culture projects in Chorley.
Opportunities • Vacant units in the town centres at street level are not currently a major issue in Wigan and Leigh town centres. Ashton has a small pocket of vacant units, as does Wigan, in a shopping mall. • Wigan currently has a town centre management structure in place and a lot of the guidance in this document is already
Issues and constraints • The guidance brings together advice from a number of existing sources, some of which are already reviewed in this document, there is nothing new put forward in the document. How could the Local Development Framework respond? • The Local Development Framework take heed of the guidance set out in the document, particularly regarding making town centres attractive places at all hours of the day.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table B1 Title Town Centre Assessment Study Proponent body Prepared for North West Regional Assembly by White Young Green Status (e.g. statutory, non-statutory) Non-Statutory Date produced June 2005 Why is it relevant to the Local Development Framework? The study provides an overview of retail and leisure patterns at the regional and sub-regional level and has been used by the North West Regional Assembly to inform the development of the spatial Policy W5 in RSS.
However, it is not possible to carryout detailed analysis of the study at the local level. Key messages, requirements and objectives 1) The study highlights people’s travel patterns or shopping habits at a sub-regional and regional level. 2) The study analyses the likely future trends in the retail and leisure markets and the effect on the type, size and distribution of future provision. 3) The study also highlights the potential capacity of the sub-regions within the North West to accommodate future predicted growth from which strategic options can be formulated on where the future growth should be focused. However, this is to be used as a guide only and shouldn’t be used to set exact limits or parameters for future growth. It is not the purpose of regional studies to set specific floorspace requirements for particular centres. Opportunities
• Greater Manchester dominates the retail market - According to Promis, by 2004, Greater Manchester contained 43% of the entire region’s retail floorspace. • It is reasonable to expect further increases in total retail floorspace in major retail locations in the future. • Expenditure on non-food goods is increasing year on year. • A survey carried out to identify key trends and patterns (p51) shows Wigan as a perceived centre that is likely to be more successful than others over the next 10 years. Other Local Planning Authorities in close proximity include Liverpool, Chester, Warrington, and Preston. This is due to new or proposed development in the centres. • Wigan is moving up the UK retail rankings and maintains its regional position. Leigh too is maintaining its position. • There is a steady increase in retailers requiring representation in Wigan 2002-04. There is a marked increase in retailers requiring representation in Leigh 2003-04. • Decrease in number of retailers requiring representation in neighbouring Bolton 2003/04. • Amount of vacant floorspace in Leigh has decreased 1994-2004. • Compared to other centres in Greater Manchester, Rental (Prime Zone A) levels in 2004 were relatively low (£969/sq m). Leigh was recorded as having the lowest rental values (£431/sq m). However, Leigh has seen the greatest percentage change in increase of rental values since 1996. • There has been a fall in commercial yields 1994-2004 showing an increase in investor confidence for Wigan and Leigh Town Centres (p64, figure 5.10). Comparably only Manchester and Hyde have seen a bigger change (p65, 5.11). Issues and constraints The study methodology: • The approach adopted for the study provides only broad indicators of need at the regional and sub-regional level, due the large catchment area involved robustness reduces at the local level. Does not replace local studies. • The model is only a snap shot in time and as new retail development is built, there will be changes to shopping and expenditure patterns. • There is no ability to build into the model an update mechanism to predict likely future expenditure on completion of any new large development. It will be the responsibility of local planning authorities to regularly monitor development and its impact on shopping patterns within its administrative boundary and beyond.
The study outcomes: • The study results show the dominance and polarisation of development in Greater Manchester, which has consequently changed the retail environment in the North West Region. However it must be remembered that Greater Manchester represents 48% of the whole population of the North West, the level of floorspace in the area represents 53% of the total regions and this is proportionate if compared with other areas across the region. • Merseyside in 2004 were disproportionate in terms of retail provision (14.5%) against a population of 26.1%. However, this position will ultimately change once the Paradise Street Redevelopment has been completed. • In the retail hierarchy, neighbouring Preston is given major regional status which compares with Chester and Liverpool – in comparison Wigan only has regional status – similarly to Bolton, St. Helens and Warrington (refer to section 5 ‘Retail and Leisure Audit: An Overview’ pg 53 -103). • St. Helens in 2003/04 was ranked 11 against Wigan 13 as a regional centre. It has also seen a greater increase in ranking nationally (p65, table 5.2). • Wigan has been grouped within the Mid-Mersey zone and not Greater Manchester for calculating the needs assessment. Key points to note (pg134-137): much available expenditure being spent outside the survey zone (32.9% outflow), this is not surprising given that the survey zone is positioned between the two largest regional centres (60% of outflow being spent in Greater Manchester). • Mid Mersey zone is estimated to have a surplus expenditure of only £0.959m compared to the £3,925m for 2005-2021. This equates to 883,743 sq. m (net) for Gr. Manchester compared to 215,823 sq. m for mid Mersey which falls below that for Lancashire and Cheshire also. • Mid Mersey zone (based on WYG assumptions) have sufficient non-food planning commitments to satisfy the estimated retail capacity up to 2010. However, there needs to be caution in interpreting these results, as this is based on regionally consistent assumptions, more robust figures are best achieved at the local level, which will have regard to local circumstances. • The figures provided in the study are a broad baseline position based on assumptions, White Young Green recognise this may differ to more local studies.
Future Trends in Retail and Leisure • Research into trends indicates an upward drift in out of town retail development (such as retail warehouses); this needs to be treated with caution as it will impact on town centres. • Significant new developments are under construction or planned in Liverpool and Preston which could impact on shopping patterns with Wigan Borough. • There is increasing evidence that polarisation of centres is occurring across the UK, whereby large, more dominant retail markets have continued to outperform the average in retail growth terms. • The reduction in the amount of new floorspace coming through the out of town development pipeline is likely to further inflate rents in prime locations, adding further to the divide between prime and secondary retail property. Similarly, the more attractive and accessible town centres are likely to perform better than the less attractive centres. • The effects of expansion of Wigan Town Centre on existing businesses will need to be carefully monitored.
Non food Retailing: • International market conditions and price deflation in some key sectors mean that many high street names are becoming increasingly vulnerable to takeovers. The merger and consolidation of companies is likely to lead to fewer national multiple outlets competing in the market place during the course of Regional Spatial Strategy – two principle effects for town centres will be: 1) It will drive down demand in the longer term. This will in turn reduce the attractiveness of investing in speculative redevelopment opportunities. 2) Result in an increased occupation of core town centre shopping units by non-retail uses. • Increased sensitivity over future viability will mean a cautious approach to new investment for many key national retailers. Marginal locations within centres, and prime locations within smaller town centres, will be increasingly rejected. Investment decisions will be influenced by the scale of commitment from other retailers. • There is a significant growth in discount retail sector. • Recent growth in DIY market is now slowing (anticipated by the Keynote Market Review (August 2001)
Retail Warehousing: • Demand is greatest for 2,500 and 5,000 sq.m and for 10,000 -12,000 sq.m but many retail parks are unable to accommodate this new demand owing to the configuration of the existing units. • Demand is weakest in the size range where supply is greatest (of about 1,000 sq.m). This leads to investors seeking to create greater flexibility by incorporating mezzanines and to remove restrictive conditions to increase number of ‘non bulky’ goods operators able to use the space.
E-Commerce: • There is a growth in electronic commerce which will have an impact on high street stores – impact not yet accurately established. Popular on line purchases include books, CDs and holidays. • Increased shopping on the internet will reduce spending growth and expenditure capacity for retail units which could in time, further reduce the demand for retail premises and lead to the creation of new ‘sui generis’ retail collection centres on the edge of major conurbations. How could the Local Development Framework respond?
• When devising options to be taken forward through the Local Development Framework, we need to be aware of the opportunities, issues and constraints identified above including future predicted trends in retail and leisure. • The foundation of a robust evidence base at the local level – need to undertake a local retail and leisure study for Wigan Borough. • Future policy needs to be based on creating a balance between accommodating the dynamism of the market place, its increasing competitiveness, and the widening gulf between differing shopping locations. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Wigan Borough Retail Study
Table B2 Title Key Service Centres - Role and Function Study Proponent body North West Regional Assembly (undertaken by Land Use Consultants). Status (e.g. statutory, non-statutory) Non-Statutory Date produced September 2006 Why is it relevant to the Local Development Framework? The North West Regional Assembly commissioned Land Use Consultants (LUC) in April 2006 to undertake a study to help inform future policy development in the area of Key Service Centres. This work is useful as current RSS policy (RDF2) is focused on Key Service Centres in a predominantly rural context, it does not easily provide a policy framework for centres in urban areas. Key messages, requirements and objectives Purpose of this work: • Analyses of the role and function of a number of settlements across the region, addressing a comprehensive region-wide approach to the consideration of Key Service Centres. • It explores the identification of Key Service Centres (of sub-regional significance) in the Metropolitan area of Manchester.
Key message: It is appropriate for the Regional Spatial Strategy to provide a policy framework for centres of local significance which should be identified in Local Development Frameworks. Opportunities The study looked at the way places functioned and interacted with one another, including the 9 defined town centres within the Unitary Development Plan. A wide range of data was collected and analysed including: • Selected 2001 census variables – demographics, household structures, housing stock and tenure, transport (car ownership and average distance to work) • Travel to work analysis using 2001 Census Output Area data to indicate self-containment for employment and net overall employment role • Migration ‘turnover’ analysis using 2001 Census Output Area data • 2005 house price information (Land Registry) • CACI retail catchment data Issues and constraints
• The study did not take the traditional approach of anticipating what key service centres should look like in terms of defining of criteria around the provision of services (i.e. presence of a shop, school, health centre etc). • It has proven difficult to develop a comprehensive region-wide approach to the consideration of Key Service Centres – due to differences in typology of locations. • The study did not provide acceptable outcomes for centres within Greater Manchester and so may need revisiting. How could the Local Development Framework respond? Identification of key service centres may need to be explored further at the local level through the Local Development Framework – this could be a factor that is taken into consideration when establishing a retail hierarchy. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table B3 Title NWRA Panel Briefing Paper 14 – ‘Key Service Centres – Role and Function Study: Recommendations and Initial NWRA Response’ Proponent body North West Regional Assembly Status (e.g. statutory, non-statutory) Non-Statutory Date produced September 2006 Why is it relevant to the Local Development Framework? It provides the response from the Regional Assembly to the research undertaken for identifying Key Service Centres in the North West and how the assembly may pursue this through the Regional Spatial Strategy. Key messages, requirements and objectives The Regional Assembly believe it is appropriate for the Regional Spatial Strategy to provide a policy framework for centres of local significance which should be identified in Local Development Frameworks. Opportunities
• The Regional Assembly support the idea that further research may be needed at the local area for the Greater Manchester sub-region and are open to this being taken forward into a future review of Regional Spatial Strategy. Issues and constraints
• There is clear justification for naming centres of sub-regional significance within Regional Spatial Strategy – but it is unclear what centres the Regional Assembly are proposing for Greater Manchester area. This could lead to unjust priority being given to some centres above others with the same position in the hierarchy.
• It does not easily provide a policy framework for centres in urban areas. How could the Local Development Framework respond? Wigan and the other Greater Manchester Authorities could explore the value of undertaking our own assessment of key service centres within the existing hierarchy – local and sub regional. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table B4 Title The North West Key Service Centres – Roles and Functions Evidence Base Proponent body North West Development Agency and Land Use Consultants Status (e.g. statutory, non-statutory) Non-Statutory Date produced November 2006 Why is it relevant to the Local Development Framework? Land Use Consultants were commissioned by the North West Development Agency to carry out the North West Key Service Centres report. The evidence base looks at each city region separately. The study itself is covered in further detail in table 9. The study has been carried out for the Regional Spatial Strategy – which previously only identified Key Service Centres in non-metropolitan areas. Key messages, requirements and objectives There is a need for a city regional functional evidence base in order to plan city regions effectively.
Hindley, Leigh and Standish are looked at in the context of a network of towns in a local network. Opportunities Leigh identified as having a large non-food catchment area, exaggerated for a town of its size and role. The town’s retail catchment area stretches as far north as Leyland and as far south as Knutsford.
Hindley and Standish are shown to play a modest role in food retail.
Leigh is identified as a service centre of sub-regional importance. Issues and constraints
How could the Local Development Framework respond?
Consider the future need for a regional functional evidence base.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table B5 Title Cities North West Proponent body North West Development Agency and Centre for Cities at Institute for Public Policy Research Status (e.g. statutory, non-statutory) Non-Statutory Date produced July 2006 Why is it relevant to the Local Development Framework? Provides information regarding the role of city-regions in strengthening the local economy. Key messages, requirements and objectives The North West currently has a £13 billion productivity gap compared to the English average.
City regions best fit with economies – allowing for strategic city planning. This, therefore, means a greater amount of cross boundary co-operation between local authorities. Opportunities The success of Manchester City Centre can be spread across the whole city region
Local leaders (including Wigan) supported Manchester’s regeneration as they knew their local authorities would reap the benefits. Priorities for the North West City Regions identified are: • Improving intra-urban and inter-urban connectivity • Sustained public investment • Overcoming fragmentation – strong leadership and good cross-boundary co-operation • Developing different roles for the city regions – Mersey and Central Lancashire to compliment the Manchester City Region.
Given Wigan’s location within the Manchester City Region and adjoining the other two North West City Regions – there is the potential to improve Wigan Town Centre, particularly regarding connectivity – a hub between Preston, Liverpool and Manchester. Issues and constraints
How could the Local Development Framework respond? The Local Development Framework can contain policies strengthening Wigan and Leigh town centres to help them meet the city-region objectives.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Economy and Employment Accessibility
Table C1 Title Wigan Borough Retail Study 2007 Proponent body Wigan Council (undertaken by White Young Green) Status (e.g. statutory, non-statutory) Non-statutory Date produced May 2007 Why is it relevant to the Local Development Framework? This is the main source of evidence in respect of retailing in the 9 defined town centres of Wigan Borough. Identifies trends – where centres are performing well and or not so well within certain uses i.e. Health Checks. It is based on primary research – 1,950 household surveys, 629 in- centre surveys and business surveys. The study assesses the vitality and viability of the Wigan’s centres. The study also considers, in general terms, the role function and distribution of smaller centres in the Wigan Borough.
The study includes an in-depth analysis of the retail and leisure provision in the 9 town centres, assessment of the extent to which the centres are meeting the retail and leisure needs of local residents and the role of the centres in the local shopping network and the sub regional hierarchy. The retail study provides a commercial market overview and an analysis of emerging retail trends to inform the Local Development Framework.
The findings of the study are intended to assist retail policy formulation in preparation of Development Plan Documents for the Wigan Local Development Framework (in particular, the Core Strategy and Allocations and Infrastructure Development Plan Document). Key messages, requirements and objectives It is an optimum aim for the town centres to attract all of the expenditure growth, which is apportioned to them when applying current market share. This could come about through significant qualitative improvements in the current retail offer; this should be an aspiration of the Council. Visitors to smaller town centres mainly undertake food and grocery shopping and to visit the bank/building society/Post Office. The smaller town centres accounted for a much larger proportion of top-up shopping, than main convenience shopping, which is indicative of their residential catchment areas.
Golborne predominantly a service role for its local catchment – 34.8% vacant in 2007, although outside the retail core and under construction. Golborne has seen a reduction in overall retail uses since the 2001 retail study and the town centre has seen an increase in residential uses. Customer views showed that choice of shops, quality of shops, range of services such as banks and other financial services, range and choice of pubs/restaurants, leisure facilities etc were much worse than in other centres.
Hindley does not just provide a role in the provision of retail goods and services to the population it serves. It also provides a number of additional services to local people, including a community centre and 3 dental surgeries. In addition a number of residential dwellings are located with the Goad town centre boundary.
Comparison retailing under-represented in smaller town centres and continuing to decline in many. Independent retailers in smaller centres.
Trends in a decrease of convenience operators in small independent retailers in smaller town centres over the years since 2001, although provision still well provided for by larger national stores in or on the edge of centres.
An overall decline in retail units but an increase in retail floorspace in many centres.
From examining Focus data, it is clear that retailer requirements are low for the smaller town centres with the exception of Atherton.
Retailer Representation
The presence of national multiple retailers (defined as being part of a network of nine or more outlets) can greatly enhance the appeal of a centre to consumers and investors. Other retailers in a centre can also benefit from the increased pedestrian traffic generated by the presence of national multiples. However, multiples also provide strong competition for rivals and over concentration may threaten the independent sector in a town, undermining diversity and local identity. An appropriate balance between multiples and independents is therefore desirable. The national average (Goad) figure for the proportion of national multiples in town centres is 34% which is a useful benchmark for comparing centres. However, it should be noted that larger centres are expected to contain a higher than average proportion of multiple retailers than lower order centres.
Street Level Vacancies
The number of vacant units within any centre can provide a good indication of town centres are performing. However, care should be taken when interpreting figures. Vacancies can occur for positive as well as negative reasons e.g. the opening of a new retail centre elsewhere in a town may draw retailers from older properties or more peripheral areas of the town.
Car parking, environment quality and lack of public toilets seen by many as needing improved – along with better marketing strategies and promotion/events. Opportunities Vitality and Viability
Wigan • The study has shown Wigan to be a vital and viable town centre. Over the past few years, its ranking in the sub-regional shopping hierarchy has increased and commercial yields have decreased, indicating a strengthening retail sector. A strong demand was shown by retailers seeking to locate to the town, accessibility was seen to be generally good, and the shopping environment was attractive. • Additionally, the comparison retail sector in the town was shown to be strong when compared to the national average. • According to Management Horizons Europe’s (MHE) UK Shopping Index, in 2003/2004 Wigan Town Centre was ranked 111th out of the 1,672 shopping centres surveyed within the UK, which places it in the top 7% of all UK shopping venues. • Wigan is classed as a Regional centre in the MHE index. • Since 2000/2001 Wigan has improved its ranking, showing a strengthening of the centre. • Comparison retailing adequately represented when compared to the national average. • Since 2003, the number of comparison units has declined by 36, whilst comparison floorspace has declined by 9,699 sq m. However, recently the Grand Arcade opening which has increased comparison floorspace in the town by a third. • The town contains a mixture of multiple and independent comparison traders. • Wigan is well represented by retailers in the top 20 national retailers as defined by Focus – this is expected to increase due to the pull of the Grand Arcade. • Goad compiles information on the size of units present in Wigan town centre as a whole and includes non-retail units. The number of units in Wigan which are below 5,000 sq. ft (86.9%) are slightly below the national average (91.3%). Conversely, the town centre contains a higher than average representation of larger units (13.1%), specifically those between 5,000 and 14,999 sq ft and those above 20,000 sq ft. Note, these will include other uses such as civic uses. • Retailing in Wigan is dominated by national multiples, however there are also independents throughout the centre. It contains 65% of the top 20 national retailers as defined by Focus. In addition the town centre contains a number of national retail banks. This due to increase in the opening of the Grand Arcade. • The current level of retailer requirements (48 at February 2007 according to Goad) is a particularly high level for Wigan. However, the Grand Arcade will have satisfied many of these requirements. • Zone A rents for Wigan town centre have been recorded since June 1997 when they were £754/sq m, rising to £1130/sq m at June 2006. This represents a 33% increase. When compared to neighbouring centres, Wigan had the highest overall Zone A rents and the increases in rents are relatively steep when compared to other centres. • In July 2006, yields at the lowest ever recorded level of 6%, indicating improved investor confidence in the town centre. • Over half (54%) of visitors planned to stay in Wigan for up to two hours, with a further 27% planning to stay for half a day. • The most popular responses recorded when visitors were asked why they were in Wigan were: to undertake clothes/shoes shopping (23%), to undertake food and grocery shopping (21%). • Environmental quality of the shopping environment is good. There is a mixture of architectural styles within the town centre including a number of historic buildings.
Leigh • In the past few years, commercial yields have decreased, indicating a strengthening retail sector. • A fairly strong demand was shown by retailers seeking to locate to the town. • Accessibility was seen to be generally good. • The town centre shopping environment is attractive. • The convenience, comparison and leisure retail sectors were shown to be strong when compared to national average. • Vacancy rates have decreased significantly over the past few years, highlighting strength in Leigh’s retail sector. Although a cluster of 7 units exist in Bradshawgate which is part of the Principal shopping area. • Most popular method of arriving to the centre was by bus.
Ashton-in-Makerfield • Accessibility was seen to be generally good. • The town centre shopping environment was seen to be attractive. • The convenience sector, retail service, leisure service and financial business service sectors were shown to be strong when compared to the national average. • Vacancy rates have decreased significantly in the past few years.
Atherton • Convenience retailing, retail services, leisure services and financial and business services are all well provided, having above average representation. • The proportion of vacant floorspace at 2005 was seen to be below national average, with Focus database recording a high number of retailers currently seeking representation in the town centre. • Atherton is accessible by a variety of means of transport. • The Principal Shopping Area provides a safe environment for pedestrians.
Hindley • Accessibility seen to be generally good • Retail service and financial and business service sectors shown to be strong when compared against national average. • Vacancy rates decreased in recent years
Pemberton • Shown to be a healthy centre • The proportion of floorspace occupied by retail services and financial and business services is above the national average. • The proportion of convenience, comparison and leisure service floorspace is only slightly below the national average. • Vacant floorspace is below the national average. • The town contains a good mix of traders and is easily accessible by public transport and by private car.
Standish • Standish is a vital and viable centre. In terms of the proportion of floorspace occupied, the provision of convenience goods, retail services, leisure services and financial and business services are all above the national average. • The proportion of vacant floorspace is below the national average, although the proportion of vacant outlets is above the national average. • Overall the retail sector in Standish has grown since 2001. • Environmental quality in the centre is good although it frequently suffers from congestion. • The business survey indicated that businesses in the centre have a strong trading position with most trading well or very well. Tyldesley • The proportion of floorspace in use for convenience retailing, retail services and leisure services are above the national average.
Retail and Service Provision • Convenience retailing is well provided for (floorspace) when considered against the national average in the smaller town centres of Ashton-in-Makerfield, Atherton, Hindley, Standish, and Tyldesley. However, Hindley and, to a lesser extent, Atherton have a significantly low amount of convenience retail units considering the amount of floorspace because of large supermarkets falling within town centre boundaries. • Pemberton is unique in that it is adequately provided for and well represented in terms of the percentage of convenience units above the national average. • Pemberton contains representation from a broad range of comparison retailers indicating that the centre does adequately meet the needs of its catchment population – but does not contain a chemist. • Service retailing is well provided for when considered against the national average in the smaller town centres of Ashton-in-Makerfield, Atherton, Golborne, Hindley, Pemberton, Standish, and Tyldesley. • Financial and Business Services (A2 uses) are well or adequately provided for, when considered against the national average and well-known national multiples in the town centres of Ashton-in-Makerfield, Atherton, Hindley, Pemberton, Standish. • Leigh Town Centre is reasonably well provided by convenience provision. • Comparison retailing in Leigh is well represented when considered against the national average. The town contains a mixture of multiple and independent comparison traders and the indoor and outdoor markets provide further provision. Since 2002 the number of comparison units and floorspace has increased. • Retail service outlets increased since 2002 and adequately provided for in Leigh. • Leisure Service sector well provided for but similar to the smaller centres this is dominated by fast food and take away units. • Visitors stay in the larger town centres longer – most up to 2 hours compared with up to half hours for smaller centres. Retailers rely less on immediate local residents for business.
Leisure Provision • Ashton-in-Makerfield, Atherton, Standish, Tyldesley has adequate provision in this sector for restaurants, cafes, fast food units and public houses. • Number of Leisure Service traders in smaller town centres seen an increase since 2001.
Street Level Vacancies • There has been a reduction of vacant retail units in the town centres of Ashton (2003- 2006, by 11 units or 42.3%), Atherton (2001-2005, by 9 units or 32%), Hindley (2002- 2006, by 8 units or 24%) • Vacancy rates are below the national average in Ashton (8.2% of outlets), Issues and constraints
Vitality and Viability
Wigan • The convenience sector, retail services, leisure services and financial and business services in the town centre are below the UK national average. Additionally, vacancy rates in Wigan have increased in the past few years and are very high, highlighting a weakness in Wigan’s retail sector. • In comparison with other sub-region centres included in the Management Horizons Europe (MHE) UK Shopping Index, Wigan faces considerable competition from the regional centres of St Helens, Warrington and Bolton, the major regional centre of Liverpool and the major city centre of Manchester, all of which have a higher MHE score than it. Aside from Liverpool, all of these centres have strengthened since 2000/2001. • Wigan town centre is slightly under provided for by convenience provision, however, this provision has increased slightly over recent years. • The financial and business service sector is under provided for in Wigan when compared to the national average (9.2% of all outlets and 7.2% of total floorspace compared to a national average of 11.6% and 9.3% respectively). Even so, a number of well known national multiples are present in the town centre in this sector. • According to GOAD. The total number of retail units has declined by 24 (2003-2006) which equates to 4.7% and by 5,640 sq. m also a fall of 4.7%. However, the Grand Arcade development will result in a net increase in floorspace of some 15% overall (2003-2007). • At 2006, there were 84 vacant retail units in the town centre, which occupied a floorspace of 12,969 sq m. This represented 17.1 % of all outlets and 11.4% of floorspace, compared to respective national averages of 9.7% and 8%. This indicates the presence of a high number of small vacant properties in the town centre. Main cluster of vacancies is in the Marketgate Shopping Centre. However, since the GOAD survey of 2006, some of the vacancies identified have been taken up. • Vacancy levels have increased 2003-2006. • The Grand Arcade has created a number of new (and probably only temporary) vacancies throughout the town. • Most popular method of arriving to the centre was by car (40%). • Considered by businesses to be the main constraint – inadequate customer car parking (21%), high rents/overheads (14%) and lack of footfall outside premises (13%). • Traffic congestion in Wigan seen as poor by 78% of respondents to the business survey. • 74% believed the level of parking provision was poor. • 95% of respondents considered that cheaper parking would improve Wigan and 90% indicated that increasing the quantity of parking and reducing traffic congestion would improve Wigan.
Leigh • Leigh is seen by MHE UK Shopping Index as only a major district in the region compared to Wigan which as regional centre. Although Leigh has seen a significant improvement in it’s ranking since 2000/2001, showing a strengthening centre. • The retail service and financial and business service sectors in the town centre are below the national average. • Bolton seen to be the biggest competitor to Leigh
Ashton-in-Makerfield • A low demand shown by retailers seeking to locate to the town. • The comparison sector in the town centres is below the UK national average.
Atherton • The 2005 GOAD information highlighted that there are a high number of vacant units in the town centre and many of these are of poor environmental quality. • Comparison representation in the town centre is below the national average with respect to both the proportion of outlets and proportion of floorspace occupied. • Links between the towns shopping core and periphery areas of the town centre could be stronger. • Lack of public toilets in Atherton was identified as a key issue by traders.
Golborne • Is struggling in terms of vitality and viability. • Although the centre contains above average representation of retail services, all other categories of retail goods and services are below the national average with respect to the proportion of floorspace which they occupy. • The proportion of vacant units and vacant floorspace is significantly above the national average, and many vacant units are of poor quality. • Environmental quality in the town centre is variable.
Hindley • The convenience sector is under-represented • The comparison sector is under-represented • Leisure service sector is under-represented
Pemberton • Large volumes of traffic on the A577 which runs through the centre do have the potential to create vehicular/ pedestrian conflict. The A577 is frequently congested, which detracts from the environmental quality of the centre.
Standish • A lack of car parking in the centre is of major concern to traders in Standish.
Tyldesley • The proportion of floorspace in use for comparison retailing and financial and business services is less than the national average. • The proportion of vacant units is both above the national average. • Environmental quality in the centre is variable and improvements in this regard would benefit the centre. • The vitality and viability of Tyldesley shows signs of decline.
Retail Provision
According to Goad, the number of convenience operators in Leigh and the relative proportion of retail floorspace for which convenience traders account has decreased between 2002 and 2006.
Financial and Business Services are under-provided in Leigh when compared to the national average. Although, a number of well known national multiples are present in the town centre and this sector has seen an increase in the town centre since 2002.
Convenience retailing is under-provided for in Golborne town centre
Comparison retailing is under-represented when considered against the national average in the Town Centres of Ashton-in-Makerfield, Atherton, Golborne, Hindley, Pemberton, Standish, Tyldesley (expected in smaller centres such as Pemberton, Standish) – Many people last visit Wigan or Leigh for clothes shopping due to the increased choice of shops.
There are few national retailers (comparison goods) in the smaller town centres of Ashton-in- Makerfield, Atherton, Golborne, Hindley and Pemberton. Mainly small independent retailers.
Financial and Professional Services are not well provided for in Golborne when compared against the national average.
Leisure Provision Golborne, Pemberton and Tyldesley are dominated by ‘fast food’ and ‘take away’ traders within this sector.
Street Level Vacancies Above average vacancy rates in Atherton (11.4% of all outlets), however mainly on the periphery of the centre.
Above average vacancy rates in Standish (12.3% of all units), scattered throughout the centre and mainly small units.
Above average vacancy rates in Tyldesley (15.5% of all retail outlets) – Redevelopment on Johnson street will bring vacant property back into use.
Marginally above average vacancy rates in Pemberton (9.9% of all outlets)
There is a significant increase in vacant retail units in the Town Centres of Golborne (34.8% of all retail units). Although these are outside the Principal shopping area and in two clusters that are under construction for new uses.
High level of small vacant properties in Hindley Town Centre (25 vacant retail units/18.4% of all outlets of which 15 are in the Principal shopping area), these are mostly old properties, vacant for a long time. Although vacancy overall has decreased in Hindley 2002 – 2006 and since the Goad survey in 2006 some of the vacant units are now occupied.
For those smaller centres with a strong night time economy, many units, particularly fast-food and take away units use steel roll-shutters during the day to cover their fascias. Whilst this is understandable from a security point of view, it does serve to create a dead and unattractive frontage during the day-time – examples are Golborne and Tyldesley.
Competition seen to be Wigan and Leigh Town Centres. Shopping environments are a constraint – public toilets, traffic congestion, and town centre police presence. How could the Local Development Framework respond? The 7 smaller town centres all provide a role in the provision of retail goods and other local services (inc. banks, post office, libraries, dentists, doctors, job centres etc) to the populations which they serve. Golborne provides a more service based function.
The data from the Retail Study can help redefine the retail hierarchy, in line with Planning Policy Statement 6. There is a clear difference in the amounts of floorspace and retail offer between the 7 smaller town centres in the borough, likewise with the local centres.
Allocation of land for retail in centres such as Wigan, protecting the current role of centres such as Pemberton and Standish and improving the performance of centres such as Tyldesley and Hindley.
Protect existing /Increase offer of independent retailer sector in Wigan. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Accessibility Open Space, Play, Sport and Recreation Economy and Employment
Table C2 Title The Wigan Pier Quarter Strategy Proponent body Wigan Council Status (e.g. statutory, non-statutory) Non-Statutory Date produced April 2006 Why is it relevant to the Local Development Framework? The strategy sets out the planning and regeneration framework for the development of the Wigan Pier Quarter up to 2016. The Wigan Pier Quarter is an area well connected with the town centre –and the Queen Street/Caroline Street area has the potential in the medium – long term to become a higher quality mixed use area which takes advantage of its strategic location between the town centre, railway stations and the Wigan Pier historic core. The vision for the strategy has been developed through partnership working and consultation with local residence, businesses and other stakeholders. Key messages, requirements and objectives The Pier Quarter acts as a gateway to the town. The aim is to create a new and vibrant community and cultural quarter, where people can live, work and play.
There are number of guiding principles including: • All development proposals should contribute towards an acceptable balance of uses. • Development proposals should assist in connecting the Pier Quarter to the town centre and other adjacent areas. Opportunities
Key projects - Trencherfield Mill • A mixed use scheme that is complementary to the adjacent Wigan town centre. • The major investment, by Nuttall Construction will act as the catalyst for the wider regeneration of the area.
Key projects – Eckersley Mills Complex • Phased clearance of newer unattractive commercial buildings which currently detract from the town centre. • Creation of a complex, which retains its unique and interesting character and forms a home for a wide range of creative, cultural and other businesses which should aim to complement rather than compete with the town centre.
Key projects – Caroline Street/Wallgate/Queen Street • Suitable for a mixed-use or commercial redevelopment scheme, which would create an attractive link between the town centre and the Mills area - identified as a medium-long term development opportunity. • Will provide high quality redevelopment of existing buildings with active frontages to Wallgate and Caroline Street for uses that do not harm the vitality and viability of the town centre. • Increased ‘off highway’ pedestrian route – linking town centre to the Mills complex.
Integration of Rail Stations The scheme aims to create an integrated transport ‘hub’ for the town centre.
Caroline Street/Queen Street Commercial Areas In the long term, as the Pier Quarter develops, a wider mix of uses may be introduced to the Caroline/Queen Street area. In particular, the development of the integrated transport hub will create an opportunity for higher quality development.
Development/Investment opportunities include underdeveloped/unattractive retail warehouse type buildings. Issues and constraints The current links to the town centre are poor which adds to the concern that development at this location must complement rather than compete with the town centre. How could the Local Development Framework respond? The Local Development Framework needs to have regard to this strategy in relation to bringing forward sites and appropriate edge of centre development to ensure that the vision for the area is realised to complement the town centre.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Landscape, Townscape and Buildings Economy and Employment Accessibility
Table C3 Title Wigan Town Centre Northern Crescent Masterplan and Urban Design Framework Proponent body Wigan Council (undertaken by BDP) Status (e.g. statutory, non-statutory) Non-Statutory Date produced March 2007 Why is it relevant to the Local Development Framework? In November 2006, the Council commissioned consultants BDP to prepare a Masterplan and Urban Framework for the Northern Crescent area of Wigan town centre. This study is a proactive response to the ongoing shift in the focus of development activity towards the south and east of the town centre. The Grand Arcade forms the latest phase of this shift, with movement of retail units creating a number of ‘gaps’ within the older Galleries shopping centre. The report suggests a number of options for the regeneration and future development of this area to improve town centre vitality.
The Masterplan was endorsed by Council’s Cabinet on the 18th October 2007. Key messages, requirements and objectives Study objectives: • Consider market demand and development opportunities in the Northern Crescent area of the Wigan Town Centre; • Consider the merits of a number of development scenarios; • Establish a series of key design principles for new development and the enhancement of the public realm. • Advise on the delivery of development and regeneration in this area.
Key Messages The study identifies a number of key actions to ensure the future viability of the Northern Crescent area. These actions are framed within a series of options ranging from minor public realm improvements to major intervention within the building stock.
The findings of the study illustrate that The Galleries and Marketgate centres are the highest priority in terms of investment and remodelling. This intervention is required to meet the needs of today’s retailers and the expectations of their customers about the quality of the retail environment.
The option appraisal seems to point to the need for radical intervention, particularly within the Marketgate / Galleries areas to ensure these centres can fulfil their role as a base for retail activity. The Grand Arcade has set a new standard for the retail environment, which these earlier centres must now seek to achieve.
Whilst the Council is a significant landholder within the area, a partnership with private developers, including Propinvest, will need to be formed to attract new users and to promote the substantial remodelling of these areas. Opportunities The study identified positive key issues: • The Grand Arcade will substantially improve Wigan’s retail offer and will improve the attractiveness of the town to other retailers. • Any demand for further comparison retail space should be able to be accommodated within the existing building stock (although remodelling and improvement is likely to be required). • Wigan has seen an increase in recently high quality office stock and there is felt to be some potential for similar developments within the Northern Crescent area. • The residential market within Wigan town centre has grown within recent years and there is felt to be some potential within this area, particularly as part of mixed-use developments.
The study highlighted a number of opportunities: • Building on the positive role of the Grand Arcade and increasing footfall in the heart of the town centre. • Potentially willing investor in Propinvest • Use of the Council’s landholdings to promote positive regeneration • The refurbishment and reuse of high quality existing building stock • Planned improvements to Mesnes Park will attract more visitors to the area
The report makes a number of key strategic recommendations: • There is some merit in diversifying uses away from retail – outside the Principal shopping area • The attraction of a major anchor development to the Northern Crescent would be a major benefit and would underpin other improvements. A major food store would appear to provide the best fit and the best market potential. • The creation of stronger physical linkages between The Galleries and the Grand Arcade / Standishgate / Mesnes Park Area. Issues and constraints The study identified a number of key issues and constraints: • Morrisons are considering closing their current town centre store as it does not operate within their economies of scale (looking to double the size of the existing store – up to 7, 432 Sq m). • Whilst the indoor market to some extent acts as a magnet to this end of the centre, the slow decline of the outdoor market needs to be addressed since it provides a level of vibrancy and individuality to the town’s offer. • Given the strong role of the King Street/ Wallgate area in the evening economy, there is felt to be limited potential for similar leisure uses within the Northern Crescent area.
The study highlighted a number of threats: • Further loss of anchor retailers from The Galleries/Marketgate • Shift of retail core and pedestrian activity towards the Grand Arcade • Weakening or peripheral areas, such as Lower Standishgate, leading to physical decline • Limited signage across the town centre. How could the Local Development Framework respond? The various strategic and spatial development options of the study could be taken forward through the issues and options stage of the Local Development Framework for discussion with key stakeholders. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Landscape, Townscape and Buildings
Table C4 Title Wigan Eastern Gateway Development Framework Proponent body Wigan Council Status (e.g. statutory, non-statutory) Non-Statutory Date produced October 2007 Why is it relevant to the Local Development Framework? The Eastern Gateway is a strategic area of land situated just 400 metres to the east of Wigan town centre. The area forms part of Wigan South Central, which is an initiative aimed at regenerating the wider area, south of the town centre.
Whilst many areas of Wigan have seen dramatic and successful regeneration initiatives, the Eastern Gateway has been left largely neglected. The A49 ring road has acted as an unwelcome physical barrier to economic activity and investment and has resulted in an underutilised quarter dominated by surface car parks, empty and dilapidated buildings and vacant and overgrown land.
It is essential that a holistic approach is adopted for the redevelopment of the area which brings together the many opportunity sites which lie on either side of the A49. The number of low intensity land uses in the area and the amount of vacant and derelict properties, means that an excellent opportunity for the regeneration of the Eastern Gateway has arisen. The document seeks to build upon this opportunity and provide a clear framework to guide and inform future development.
This document provides guidance to stakeholders in the development process to ensure that identified development opportunity sites in the Eastern Gateway are not only of exceptional design quality but also that they are integrated with the surrounding area. The guidance provides the opportunity for the council to promote the revitalisation of the Eastern Gateway and to stimulate its redevelopment. It was approved by Cabinet on 18th October 2007 and was endorsed by Planning Committee on the 6 November 2007.
Key messages, requirements and objectives The Eastern Gateway is seen as a prime growth area due to its potential development sites and its close proximity to the town centre.
A vision for the area has been created which is “to create a dynamic, active, mixed use area which is of exceptional design quality with safe and efficient links to Wigan town centre and the wider area”.
To supplement the vision, eight objectives have been developed which are to create:
• An area with dynamic mixed use; • An area which is a gateway to Wigan town centre; • An area which is accessible and permeable; • An area with a high quality urban design; • An area with a strong and identifiable heritage value; • An area with environmental diversity; • An area that embraces sustainable development; and • An area that embraces sustainable transport.
The guidance is set within the policy framework of the Wigan Unitary Development Plan (UDP), and supplements relevant UDP policies. If deemed necessary, the guidance will be incorporated within the Local Development Framework (LDF) at a later date. The document will be used as a material consideration in determining applications for planning permission and other matters in the Eastern Gateway area.
The document also identifies five key development sites in the area and details a number of development principles for their re-use. The sites are: the former Town Hall; Wigan International Pool; Harrogate Street car park; Chapel Lane and Darlington Street and the old police station.
Opportunities
• The Eastern Gateway is in close proximity to the town centre shopping area, transport nodes, the civic core and residential areas. • It is in part within the defined town centre boundary with the majority of the Eastern Gateway being immediately adjacent. • Large amount of vacant, derelict and developable land. • Reorganisation and remodelling of the A49 to promote a road hierarchy centred around the pedestrian and cyclist could have huge benefits for the area; • Development of a core where commercial, civic, entertainment and residential uses would exist within a 400 metre walk of the town centre to complement the centre and promote truly sustainable living.
Issues and constraints • The A49 Riverway presents a major hurdle in the successful development of the Eastern Gateway and the extension to the town centre – retaining this in its current state would severely limit the development potential of the area and would compromise the policies recommended in the guidance. • Due in part to the disjointed nature of this area, the Eastern Gateway currently lacks any real character or sense of place. • The main streets lack pedestrian interaction and present poorly to the public domain. • The concentration of unstable land uses and vacant sites further adds to the problem. • Development sites which have been identified may not come to market. • Lack of funding. • The area contains some poor urban design, with a significant amount of unsightly derelict and vacant land, producing a highly fragmented area lacking in character. • The area has an acute lack of open space and outdoor recreational facilities. • The River Douglas is in a very poor condition with limited access for the general public. How could the Local Development Framework respond? • Could assist with bringing forward site allocations identified in the guidance. • Look at the extension of the town centre boundary to accommodate other town centre uses (other than retail which in the first instance should be accommodated in the PSA) – this may be an option for accommodating identified need and growth of Wigan Town Centre. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Accessibility Landscape, Townscape and Buildings
Table C5 Title Atherton Centreplan Proponent body Wigan Council Status (e.g. statutory, non-statutory) Non-Statutory Date produced 2003 Why is it relevant to the Local Development Framework? Atherton Centreplan sets out a plan of action to improve and regenerate the town centre area and forms part of strategic policy to ensure that town centres throughout the borough are attractive, thriving and successful areas which are accessible to all.
• The Centreplan provides a vision which is shared by all partners and users of the town centre. • Its proposals are taken into account as a material consideration for assessing planning applications. • It provides a framework for future management of the town centre. Key messages, requirements and objectives The vision for Atherton town centre is one of an attractive, thriving town which will build upon its identified strengths. It is envisaged that the town centre will continue to be largely based around small, friendly independent shops, but will gradually broaden its economic base.
Strategic Objectives include: a) Broadening and strengthening the appeal of the town centre by introducing new uses which will attract all age ranges at varying times. b) Improving accessibility to the town centre. c) Up-grading the pedestrian environment within the retail core, and reducing impacts of traffic. d) Protecting and enhancing the townscape character. e) Creating a centre which people feel secure and comfortable visiting. f) Developing and delivering action through partnership. Opportunities Strengths identified for Atherton Town Centre include: • Atherton 3rd largest centre in terms of number of units within its defined retail core. • The town centre contains a number of attractive Victorian buildings housing a wide range of small independent shops. • A Tesco store is situated on Crab Tree Lane and attracts additional visitors to the town with associated benefits to other local businesses. • Accessible by public transport • Traffic management scheme along Market Street.
The Centreplan itself provides for a number of opportunities: The area covered by the Centreplan extends beyond the town centre as defined within the UDP to ensure that unattractive ‘Gateway’ sites can be identified for improvement and that the future of important local areas can be considered in detail.
The plan Includes a series of detailed proposals and opportunities for specific sites which identifies a number of development and investment opportunities, and considers improvements for traffic management and car parking, pedestrian and cycle movements, environmental quality and crime prevention and security.
The Centreplan includes an urban design framework which once in place will improve the vitality and viability of the town centre through many ways including creating the right of uses, improving personal safety and creating more sustainable patterns of development.
A number of actions under each objectives as follows, provide opportunity for the town centre: a) It is important to expand the existing range of uses to attract more people into the area and to ensure that sites and buildings on the fringes of the main shopping area are fully utilised. The strategy aims to consolidate the existing town centre and encourage a suitable range of activities which will create a centre which is busy at all time, including evenings. This will be achieved through the following proposals: • The Centreplan will support the town centre, in preference to out of centre locations; • Although retailing will remain the primary activity in the town centre, a diversity of uses will be encouraged; • Identifies sites which provide short and medium term opportunities for development. • Sites which may, in the longer term, provide opportunities have also been identified where they will provide greater benefits to the town centre. • Identifies buildings in need of investment and improvement. b) The viability of the town centre will be improved by providing better access by all forms of transport, this objective will be taken forward through a number of proposals.
There are a number of opportunities being brought forward under objectives c-f but are too lengthy to insert here, but which require noting. Issues and constraints There a number of weaknesses recognised for Atherton Town Centre but of which are addressed through the Centreplan: • The main shopping street, Market Street, is characterised by narrow footpaths and high levels of through traffic which create a poor trading environment. • A high number of solid steel roller shutters along Market Street presents a dead frontage in the evening. How could the Local Development Framework respond? Promote the Centreplan as a Supplementary Planning Document to give it more weight in decisions. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Accessibility Landscape, Townscape and Buildings
Table C6 Title Hindley Centreplan Proponent body Wigan Council Status (e.g. statutory, non-statutory) Non-Statutory Date produced 2004 Why is it relevant to the Local Development Framework? Hindley Centreplan sets out a plan of action to improve and regenerate the town centre area and forms part of strategic policy to ensure that town centres throughout the borough are attractive, thriving and successful places.
• The Centreplan provides the framework for future investment in the town centre and has been developed with input from a range of stakeholders. • Its proposals are taken into account as a material consideration for assessing planning applications. It provides a framework for future management of the town centre. Key messages, requirements and objectives Hindley’s vitality and viability has declined over the past 10 years, highlighting the need for a positive plan of action to improve and regenerate the town centre.
The plan seeks to reverse the decline in Hindley’s vitality and viability by promoting a co- ordinated plan of environmental improvements and identifying sites for development which will be beneficial to the town centre.
The plan proposals aim to provide a high quality environment which encourages investment and which forms a source of pride for local people. Opportunities Strengths identified for Hindley Town Centre include:
There are a number of attractive and important buildings that form the basis of the Hindley Conservation Area.
The town centre is well served by car parking and the local bus network.
The Centreplan itself provides for a number of opportunities:
The boundary for the Centreplan extends beyond the town centre area as defined in the Unitary Development Plan to enable important ‘gateway’ sites around the edges of the town to be considered in detail.
The plan aims to concentrate a wide range of uses into the Town Centre
Short to medium term development sites are identified, along with building in need of substantial investment. The Council will provide assistant on such sites if resources allow.
The traffic management scheme aims to shift priority to pedestrians, cyclists and public transport users and to enhance town centre car parks.
The urban design framework in the plan will enhance the positive townscape features; create a more legible environment contributing to improving the vitality and viability of Hindley Town Centre. Issues and constraints There are a number of weaknesses recognised for Hindley Town Centre but the Centreplan aims to tackle them, these are:
• Above average street level vacancy levels • Vehicle dominated environment, with narrow footpaths, on the main shopping street • High levels of vehicular congestion and impeded pedestrian movement due to Hindley’s location on the junction of the A58 and A577. How could the Local Development Framework respond? More weight could be given to the centre plan when considering planning applications.
The development sites identified in the plan could be allocated for development. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews) Accessibility Landscape, Townscape and Buildings
Table C7 Title Grand Arcade, Wigan – The Trading Opportunity, Market Viability and Retail Strategy Proponent body Modus Status (e.g. statutory, non-statutory) Non-Statutory Date produced February 2003 Why is it relevant to the Local Development Framework? The strategy provides information regarding the market viability of the Grand Arcade
Provides information relating to Wigan Town Centre’s commercial area and wider catchment area (the catchment area is some three times larger than the area used in the Wigan Borough Retail Survey (extending to Knowsley in the west, Leyland in the north, Bolton in the east and Warrington in the south). Key messages, requirements and objectives Wigan needs to consolidate its core and secondary catchment areas
Wigan accounted for only 11% of clothing expenditure from its catchment area and 35% from the core catchment area. A need was identified for increasing this market share. Opportunities Wigan’s catchment area contains an above average number of 25-44 year olds, a high spending age group and above average car and home ownership levels.
The under provision of the clothing sector provides the impetus for development in the centre.
The development of the Grand Arcade offers the potential to move Wigan up to 84th in the MHE retail rankings (all things being equal). The Grand Arcade could increase Wigan’s market share in the clothing sector to 15.4% of its catchment area.
The Grand Arcade will increase Wigan’s appeal as a shopping destination, improving the vitality and viability of the town centre. Issues and constraints Wigan continues to face competition from neighbouring centres Bolton, Warrington and Wigan and larger centres such as Liverpool, Manchester and the Trafford Centre.
The Grand Arcade could be a threat to Standishgate and the Galleries – prior to development these were Wigan’s prime retail areas – could be an issue.
Relocations to the Grand Arcade equate to 20% of Wigan’s retail space. How could the Local Development Framework respond? Ensure that the Standishgate and Galleries shopping areas maintain their commercial appeal – i.e no retail allocations that include similar sized units to existing. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table C8 Title St Helens Retail Capacity Study 2005 Proponent body St Helens Council (produced by White Young Green) Status (e.g. statutory, non-statutory) Non-Statutory Date produced May 2005 Why is it relevant to the Local Development Framework? To ensure consistency between Wigan and neighbouring boroughs in preparing Local Development Frameworks.
To assess the impact that Wigan Borough has on St Helens Retail provision and vice versa. Key messages, requirements and objectives St Helens and Wigan Town Centres had comparative retail floorspace at 83,548 sq m and 81,225 sq m respectively (2004)
St Helens has an under supply of convenience floorspace, with supermarkets such as the two Morrisons stores and ASDA overtrading in excess of 50%.
St Helens needs to respond to both convenience retail improvements at Warrington and Wigan (ASDA at Leigh and Robin Park) and comparison retail development at Golden Square, Warrington, Paradise Street, Liverpool and the Grand Arcade, Wigan. Opportunities Yields in Wigan and St Helens remain comparable and stable. 8% of St Helens Catchment Area visit Wigan for entertainment purposes. Wigan’s nightlife attracts 10% of the St Helens Catchment The market share for Wigan in the Billinge and Ashton zone of the St Helens Catchment Area increased between 2000 and 2004 as improvements took place at ASDA stores in Wigan and Leigh. Issues and constraints Rents in St Helens Town Centre have continued to out perform those in Wigan Town Centre
St Helens Town Centre is ranked higher in the MHE rankings than Wigan Town Centre.
Wigan Town Centre has a considerably higher number of vacancies than St Helens Town Centre
Zone A rents in St Helens and Wigan were both recorded as £753 per sq m in 1996, in 2004 this had grown to £1076 in St Helens compared to only £969 in Wigan. How could the Local Development Framework respond? In drawing up retail options, the Framework will need to be aware of the trends that exist in St Helens and the relationship between town centres in Wigan Borough and neighbouring boroughs. Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table C9 Title The Lancashire Shopping Study 2003 Proponent body The Joint Advisory Committee for Strategic Planning – Lancashire County Council (prepared by Nathaniel Lichfield Partners) Status (e.g. statutory, non-statutory) Non-Statutory Date produced 2003 Why is it relevant to the Local Development Framework? It identifies retail trends and capacity for new retail development in the Lancashire County Area (centres adjacent to the Wigan Borough). These could impact on future spending in the Boroughs own centres and so may need to be drawn on and taken into account when developing options for the Local Development Framework. Key messages, requirements and objectives The study’s purpose is to: • Assess non-food shopping patterns in Lancashire • Consider the non-food shopping roles and performances of the County’s main shopping centres • Estimate broadly the quantitative capacity for additional non-food retail floorspace over the period 2002 - 2011 arising from growth in catchment area spending. Opportunities
Issues and constraints The study considers only expenditure generated within the Study Area and makes some broad assumptions, as such it can only be used as a broad framework for assessment of retail trends and capacity. Will need to visit each district’s local studies to provide detailed frameworks.
Main results with some impact on centres within Wigan Borough:
• Recognises that Preston is the dominant shopping destination in the County, attracting approximately 18% of non-food generated in the Study Area – could attract leakage from the Wigan Borough, in particular the western end
• Chorley is a 2nd tier town below Preston and is trading well.
• The study recognises that leakage occurs primarily from West Lancashire to Manchester amongst others (includes leakage to Wigan from Skelmersdale) – leakage may be reduced dependant on strategy put in place as a result of the study outcomes, i.e. redevelopment of Skelmersdale town centre. How could the Local Development Framework respond? The Local Development Framework will need to consider the retail performance of neighbouring districts.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table C10 Title Preston Retail and Leisure Study 2005 Proponent body Preston City Council (by Drivers Jonas) Status (e.g. statutory, non-statutory) Non-statutory Date produced 23 March 2005 Why is it relevant to the Local Development Framework? To ensure consistency between Wigan and neighbouring boroughs in preparing Local Development Frameworks. It is important to understand Preston’s catchment area when assessing inflow from surrounding boroughs such as West Lancashire and Chorley. Key messages, requirements and objectives The objective of the study is to inform the Development Plan Review process for Preston Borough and to provide a robust evidence base to assess future retail proposals in Preston. Opportunities
Issues and constraints Preston has substantial capacity for new comparison floorspace. Comparison goods leakage from Preston catchment is not significant and outweighed by neighbouring centres. How could the Local Development Framework respond? The Local Development Framework will need to consider the retail performance of other regional centres.
Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
Table C11 Title Warrington Retail and Leisure Study 2006 Proponent body Warrington Council (produced by Martin Tonks) Status (e.g. statutory, non-statutory) Non-Statutory Date produced July 2006 Why is it relevant to the Local Development Framework? To ensure consistency between Wigan and neighbouring boroughs in preparing Local Development Frameworks. To assess the impact that Wigan Borough has on Warrington Retail provision and vice versa – relationship for comparison goods more significant than convenience goods. Key messages, requirements and objectives Warrington is identified as a vital and viable centre using the indicators from Planning Policy Statement 6.
There is no need for Warrington to allocate further comparison floorspace – the current need is absorbed by the Golden Square development. Opportunities
Issues and constraints Only 1% of business respondents mentioned Wigan in reference to perceived threats from other town centres. How could the Local Development Framework respond? In drawing up retail options, Local Development Framework will need to be aware of the trends that exist in Warrington and the relationship between town centres in Wigan Borough and neighbouring boroughs Implications for the sustainability appraisal
Cross references (General) Cross Reference (Topic Reviews)
How could the Local Development Framework respond? Ensure that town centres sustain a diverse range of uses and a high quality streetscape/public realm in order for them to maintain their attractiveness.