Darlington Gateway Strategy A Report for Darlington Borough Council
Building Design Partnership with King Sturge, Regeneris and CIP
December 2006 Darlington Gateway Strategy – Strand D
CONTENTS
Executive Summary
1. Introduction
2. Darlington Gateway – the context for further progress
3. Darlington Gateway – the context for strategy development
4. Darlington Gateway – a strategy to 2020
5. Darlington Gateway - a framework for Sustainable Economic Growth
6. Darlington Gateway - Making it Happen – the Action Plan
Appendices
Appendix 1 - Town Centre Expansion – Outline Development and Feasibility Assessment
Appendix 2 - Employment Land Portfolio (plans)
Building Design Partnership with King Sturge, Regeneris and CIP December 2006 Darlington Gateway Strategy – Strand D
Executive Summary
Introduction
1. This Gateway Strategy updates and develops on the original Darlington Gateway Development Framework, produced in 2003. This strategy is intended to establish economic regeneration priorities and key actions in Darlington for the period 2006 – 2020.
Darlington Gateway 2003
2. The Darlington Gateway 2003 highlighted the strong locational and quality of life advantages of Darlington. The strategy identified business/financial services, logistics/distribution and retail as key sectors for Darlington. Darlington’s portfolio of sites and property and future development was to be geared towards these sectors.
Darlington Gateway – Assessment to Date
3. The Darlington Gateway has facilitated a strong rate of development activity in the Borough in recent years.
4. At this early stage in the implementation of the Gateway strategy, key indicators present a very positive picture:
x Between 2006 and 2010 it is estimated that close to 1.1 million sq ft of floorspace (office and industrial) is set to become available in Darlington under the Gateway banner with the potential to yield around 4300 jobs (c. 860 per annum).
x Rental values for office developments have increased and are now approaching £15 sq ft, an important threshold for creating a self-sustaining commercial property market.
x The delivery of projects has been comparatively swift and the implementation process has been characterised by efficient planning, effective marketing and a ‘business friendly’ approach.
x The Gateway Strategy has stimulated the development of new sites when Darlington had previously seen comparatively few such developments.
x Significant public and private sector funding has been drawn into Darlington, and the initiative has further bolstered the already strong track record of partnership working in the Borough.
x The Gateway Strategy is firmly embedded in the local policy landscape in Darlington.
x The Darlington Gateway has also become a highly visible component of the principal regional and sub-regional strategies in the North East.
Lessons and Opportunities
5. Looking to the future, it is clear that the Gateway strategy should carry forward some key lessons and opportunities. These are as follows:
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x Gateway Strategy 2006-2020 should be based on a clear and straightforward vision. It should maintain the focus on Darlington’s locational and quality of life advantages, highlight the Gateway initiative’s success in developing sites, and draw attention to the new investment opportunities that are available.
6. The strategy should be strengthened by broadening its scope, by more clearly addressing local procurement, developing linkage to deprived neighbourhoods; strengthening the relationship between the provision of skills and sectoral priorities and enhancing business support provision.
Baseline Data
7. The updated Gateway Strategy 2006-2020 has been prepared in the light of a number of baseline studies, namely:
x Darlington Gateway Development Strategy, An Assessment of Progress so Far;
x A Sectoral Opportunities Study including a Creative Industries Sector Report; and
x An Employment Land Study.
Economic Profile
8. The economy of Darlington has performed strongly over recent years. It has the highest GVA per capita of the North East’s local authorities and has seen a rate of growth in employment over period since 1999 which considerably exceeds that of the region. Darlington’s economy has been strikingly successful at creating new jobs over recent years. However, there remain some signs of concern for the Borough, notably:
x wage levels for those who work in Darlington are behind the regional average
x there remain instances of deprivation in particular neighbourhoods associated with some localised issues of low rates of economic activity and low skills.
x Darlington continues to have a comparatively low rate of start-up enterprise.
Future Prospects and Opportunities
9. The most credible scenario suggests that Darlington will generate a headline growth rate of 330 jobs per annum to 2015, a rate which could be maintained to 2020.
10. The baseline research points to a series of agenda items to be reflected in an updated Gateway Strategy. These are:
x The success of the Gateway Strategy to date has been based in part on clarity, and a clear relationship with sub-regional and regional strategies;
x The principal strength’s of Darlington, in a regional context - quality of life and accessibility - remain valid and a robust basis for further development;
x There are opportunities to enhance the quality of life and accessibility offer;
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11. Key growth sectors to 2020 are expected to be:
x Health x Logistics x Business and financial services x Engineering and Civil Engineering
12. Other growth sectors could include:
x Creative industries and digital media x Renewable energy (and recycling) x Chemicals x Retail x Tourism and leisure, including food
13. The maintenance of a robust land supply in suitable locations for all key sectors. Opportunities to capture and accommodate future growth lies in particular in:
x continuing to develop a strong record of accommodating office development in key locations in the Borough to reinforce market position and profile.
x to develop key supporting infrastructure in the town, not least the town centre;
x create opportunities to foster the town centre office market;
x encourage the provision of larger, modern industrial accommodation; and
x continue to develop Faverdale as a strategy distribution and industrial location.
14. There is benefit in broadening the role of the Gateway Strategy to address:
x the promotion of additional growth in higher wage sectors of the economy;
x local procurement in the development process.
x linking deprived areas to new employment opportunities.
x the links between skills and sectoral priorities.
x more clearly, the role of business support provision;
x the development the Darlington brand and offer, not least the town centre
x the integration of the objectives of sustainable development
Darlington Gateway – A Strategy for 2020
The Vision
15. The Vision established in the Economic Regeneration Strategy is carried forward and refined for this Strategy.
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"To develop a more enterprising, vibrant and diverse local economy, situated in a high quality accessible and sustainable environment, that will attract investment to the region, share prosperity and create better employment opportunities for all.’’
Themes
16. The themes for the strategy are as follows:
a. Enhancing the Quality of Life offer (with a particular reference to the town centre)
b. Enhancing accessibility to and within Darlington
c. Maintaining and developing the employment land portfolio to meet the requirements of all sectors of the economy
d. Supporting the Growth of High Value Sectors
e. Spreading the Benefits of Growth to All
f. Raising the profile of the Darlington brand
Darlington Gateway – Making it Happen
17. The Strategy report draws together the themes and projects into a clear plan of action. In doing so projects are prioritised and an outline phasing programme in proposed. These projects are in addition to those already underway. Key projects already underway or being considered through feasibility work are as follows:
x Central Park
x Darlington Markets
x Independent Retail Sector Strategy
x Commercial Street
x Feethams/Beaumont Street
x Darlington Eastern Transport Corridor
x A66(T) Tees Valley Gateway
x Tees Valley Metro
x Tees Valley Connect
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18. The key actions by theme are as follows:
Theme: Quality of Life Action A. Parkgate – Development of the Eastern Edge of Town Centre Description This project centres on the creation and delivery of a development framework for the Parkgate areas of the Town Centre. The Parkgate project is considered further in an appendix to this report. It primary elements include:
x The development of a planning strategy for the Parkgate area
x Public realm and traffic management improvement to key routes
x The potential to create a Cultural Hub in the Borough Road area
x The assembly of key sites along St Cuthbert’s Way Aims The aims of the project include: x The enhancement of the town centre offer x The creation of a cultural hub and the fostering of creative industries x The creation of opportunities for town centre office and related development x The enhancement of links between the town centre, Bank Top and Central Park Rationale The focus on Parkgate reflects its potential and current assets:
x Areas of under-used, poorly designed, layout out areas adjacent to the town centre
x Existing cultural / leisure uses, including the Civic and the Forum
x A key linking area between the town centre, Bank Top and Central Park
x The potential for significant site assembly Timescale for Delivery The project is a medium to long term initiative and can provide a on-going development resource as site such a Central park are developed out. The existing Arts Centre could potentially be relocated from around 2010-11, subjects to feasibility. In this context the following delivery milestones are proposed: 2007/08 - Feasibility Studies into Parkgate and Cultural Hub (and St Cuthberts Way) 2007/10 - Development of Planning Strategy, including DPD Policy and AAP 2008/10 - Public Realm improvements to Parkgate / Borough Road / Yarm Road to reinforce existing role 2010/15 – Key site assembly and developer procurement 2015/20 – Development of Key sites Potential Lead Partners Darlington Borough Council, Tees Valley Regeneration, One North East. Indicative Resources Required The level of resources required will be determined largely by the approach to procurement. Site assembly in particular may be undertaken by the private sector within the context of a robust planning framework. However indicative public sector capital costs are estimated at: Feasibility - £250,000; Public Realm/Highways - £2,500,000; Cultural Hub - £ 4,000,000; Site assembly - £2,000,000
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Theme: Employment Land Portfolio Action B. Phasing Strategy for Employment Land Portfolio Description This action takes forward the findings of the Employment Land Study (2006). It seeks to refine and articulate Darlington Borough Council’s approach as planning authority, economic development authority and is some cases landowner to the use and/or phasing to be applied to the key strategic sites. Aims To make the most effective use of the land portfolio, maximising the economic development opportunities whilst promoting sustainable growth. Rationale The extant Local Plan offers only limited guidance as to the use and timing (of public intervention) in key sites. Whilst development will continue to be encouraged across all sites there is benefit in providing clarity over the preferred use of sites to inform the markets; maximise the effective use of the sites and reflect the sequential test for offices and other high trip generators in PPS6. The proposed strategic approach to phasing is: Offices
Priority 1 Morton Palms; Central Park
Priority 2 Parkgate
Priority 3 Borough Road and Valley Street North
Industrial / Distribution
Priority 1 Airport North (for airport related activity including some B1); Faverdale Industrial Estate
Priority 2 Strategic Faverdale Reserve Site; Remaining land at Yarm Road Industrial Estate
Priority 3 Yarm Road North; Airport South; Yarm Road South
Timescale for Delivery 2007-2010 – Preparation of Darlington Core Strategy, Gateway AAP and other related LDF documents. Potential Lead Partners Darlington Borough Council Indicative Resources Required Staff resources and feasibility study costs.
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Theme: Employment Land Portfolio Action C. Developing the Employment Land Portfolio Description To undertake further feasibility and action planning work at a number of key strategic sites to facilitate development and the focussing of public intervention. Aims To refine the existing employment land resources of key sites and to create additional office and related opportunities for the medium to long term in the Parkgate /East of Town Centre area. Rationale To prepare feasibility/action plans for the following sites to be incorporated into the Local Development Framework as required: x Valley Street North;
x Borough Road
x East of Town Centre / Parkgate
x McMullen Road West, Blacketts site
x Faverdale Timescale for Delivery 2008 -2010 (for feasibility / action plans) Potential Lead Partners Darlington Borough Council Indicative Resources Required Staff resources and feasibility study costs.
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Theme: Accessibility Action D. Accessibility Projects Description To be enhance Darlington’s market position and promote sustainable transport patterns through the delivery of a series of projects: x Darlington Eastern Transport Corridor x A66(T) Tees Valley Gateway x Environmental improvements to St Cuthbert’s Way x Walk and cycle routes to town centre from Victoria Road, Valley Street North and Haughton Road. x Tees Valley Metro x Tees Valley Connect
x Tackling Congestion
Aims To maintain and enhance accessibility To maintain a strong, flexible supply of labour To reinforce Darlington’s strategic accessibility for industry To enhance links, including public transport with the wider region To promote more sustainable forms of travel To enhance accessibility to key employment locations
To enhances accessibility to jobs and training for deprived communities Rationale To ensure the development of an effective transport network serving Darlington. To address problems of congestion and over reliance on the private car whilst developing the accessibility of Darlington for business and employees. Timescale for Delivery On-going through the LTP Potential Lead Partners Darlington Borough Council, Tees Valley Unlimited, OneNorthEast Indicative Resources Required Resources identified through the LTP for some projects. Resources for the A66 identified through the A66 Tees Valley Gateway Study. Further resources required to progress design and business case to seek funding. Tees Valley Metro Study identifying resources and a bid is being prepared for Tees Valley Connect.
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Theme: Supporting the Growth of High Value Sectors Task E Advance to a More Co-ordinated Approach to Employer Engagement in High Value Sectors
Description This action would see Darlington Borough Council and its partners move to establish a strategic approach to engagement with employers in priority high value sectors. In line with the Gateway framework, the engineering sector should certainly be a prime focus for action but there is a clear case for extending it to the broader range of growth sectors and other high value activities (eg. financial services). The key to delivering this action will be more systematic communication between the key organisations/agencies and employers in the Borough. This should include periodic meetings to identify issues, solutions and follow up any actions that have been agreed. It could also involve a designated coordinator with overall responsibility for keeping open lines of communication, organizing meetings and following up initiatives. There are alternative mechanisms for delivering a more coordinated approach to employer engagement x Create a new standing arrangement x Develop a specialist group out of Darlington Partnership Economy and Environment Group. x Ad hoc meetings but with a coordinator to maintain communication. Aims To develop a targeted approach to engagement with businesses operating in high value sectors which is responsive to their short term requirements and (skills, property etc) and puts in place mechanism to develop medium/long-term support strategy. Rationale x Contribute to improving conditions to sustain and grow high value businesses in Darlington, and to attract new businesses to locate in the area. x Builds on the strong platform of employer engagement established by the Borough Council, Darlington Partnership and other organisations. x Consistent with one of the aims of the Local Area Agreement Enterprise and Economic Development block. x Recognition among consultees that employer engagement needs to be reinforced and that long term strategic approach is important. Timescale for Delivery There are clearly short term recruitment issues, skills requirements and specific training needs for companies and these require partners to work with employers to find solutions for 2007-08. However, this should also be viewed as a long term action to run over the lifetime of the Gateway strategy. Potential Lead Partners Darlington Borough Council (as coordinator), Darlington College, Learning and Skills Council, Darlington Partnership, Tees Valley Engineering Partnership, Tees Valley JSU, One North East. Indicative Resources Required This action would require resources in the form of staff time and potentially a small administrative cost.
Building Design Partnership with King Sturge, Regeneris and CIP December 2006
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Theme: Supporting the Growth of High Value Sectors Action F: Establish Mechanism to Review Skills, Education and Training Provision Description On the basis of a stepped up dialogue between Darlington Borough, Council, key agencies and employers, carry out a review of skills and training supply and demand in the Borough. The focus of this action should be high value businesses, particularly those operating in the engineering (and related) sector, financial services etc. But there is a good case for regarding this as an opportunity to review the skills and training supply and demand for a wider range of sectors including those identified as growth sectors by the Gateway strategy (health, logistics, business services, retail). Action would be based on two related activities: x An audit of current skills and training demand and supply. x A review of the role of the Darlington as education authority in encouraging the development of key skills and an entrepreneurial culture. x A mechanism for collating and sharing quantitative data and other information. For example, this might include information about vacancies, training courses (perhaps building on IT based prospectus). The key to this action will be to move from establishing supply and demand issues to putting in place action to address them and this could be a primary task for the group/arrangements described above. For example, it could involve dialogue with employers and training providers to look at curriculum options. Aims To establish a resource for strategic agencies, training providers and employers that will result in training provision that is better tailored to the needs of companies in the area, more responsive to shorter term issues and provides for a greater degree of strategic planning for key sectors in the Borough. To develop key themes as part of the school curriculum. Rationale x Integrates key skill development into mainstream education and promotes and entrepreneurial culture x Contributes to a response to skills shortages and training requirements identified by major companies in Darlington x Helps to create conditions to assist high value businesses already present in the Borough, and will help to attract new investors x Capitalises on groundwork laid by the Borough Council, the LSP, key agencies and major employers x A skills audit was previously carried out in 2002 and there is a good case for this exercise to be updated. Timescale for Delivery There are clearly short term recruitment issues, skills requirements and specific training needs for companies. Partners are already looking at how these might be tackled. However, this should also be viewed as a long term action for the lifetime of the Gateway strategy. Potential Lead Partners Darlington Borough Council, LSC, key employers, training providers. Indicative Resources Required The resources for this action would take the form of staff time, administrative resources to facilitate the exchange of information and, potentially, funding for the research/audit element.
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Theme: Supporting the Growth of High Value Sectors Action G: Encourage Stronger Industry Connections into the Tees Valley and the North East Description This action would involve the Borough working with key employers and agencies to examine strategic connections with the wider Tees Valley and, where appropriate, develop new approaches to industrial engagement in the area. This action should certainly include measures to encourage a wider range of companies to participate in the Tees Valley Engineering Partnership. It should also consider the way that businesses in Darlington are plugged into emerging and established sector development programmes in the North East. Companies would be signposted towards the appropriate sector development programme. Here, the particular focus might be the energy and process industries where Darlington already has an established reputation and is located in close proximity to the core of the cluster. Aims Ensure that companies in Darlington secure the benefits of networking and collaboration across the sub- region and region, including support through regional sector development programmes. Rationale x Capitalises on strong degree of alignment between Darlington’s sectoral strengths and priorities for sub-region and region. x Addresses perceived segmentation of Tees Valley and need for improved networking between major employers in the area. x Benefit from the increased collective weight offered by sub-regional or regional industrial networks. Timescale for Delivery Action could begin immediately. Potential Lead Partners This action could be taken up through the arrangements for enhanced employer engagement. Indicative Resources Required This action should require only a small amount of resource in the form of staff time.
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Theme: Supporting the Growth of High Value Sectors Action H: Assess Potential to Develop Flexible Training Packages for the Engineering Sector Description This action would see the key agencies and learning providers - work with AMEC (and potentially other engineering companies) to examine the potential to develop flexible training packages. This should draw on both the existing provision of training through the College and universities in the area but also on in-house training expertise of the companies themselves. The focus would be on flexible, short term packages (over several weeks) of training designed for rapid responses to skills shortages in the engineering sector. The geographical scope of action should probably not be limited to Darlington, and there is a case for pursuing such an initiative across the Tees Valley. Aims Ensure that key employers have facilities to address immediate, short term training needs. Rationale x Fluctuating order books and changing nature of project activities creates short term need for specific training. x Promotes flexibility in workforce and contributes to redeployment. x Supports companies operating in high value sectors. Timescale for Delivery This action is intended to respond to current needs. Partners would have to collaborate to assess possible form of provision and funding issues. Potential Lead Partners AMEC, LSC, training providers. Indicative Resources Required Assessment could be carried out on basis of dialogue between the key partners.
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Theme: Supporting the Growth of High Value Sectors Action I: Provide Supply of Start-up and Grow-on Premises for High Value Businesses Description Work with partners to provide a quantity and quality of property required by support high value businesses. Specifically, this should include strategic planning for the medium and long term supply of high spec industrial and office workspace for start ups. This should include sectoral assessments of demand for specialist premises (eg. ICT facilities). It should also take in the demand for and supply of incubator facilities in the Borough. Aims Attract high value businesses to the Borough and ensure that property portfolio matches needs of start-ups and growing businesses. Rationale x Contributes to delivering higher rate of start ups where Darlington lags behind other areas. x Capitalise on attractiveness of Darlington as a location for businesses (quality of life, communications links). x Consultees pointed to need for small office space and to potential for specialist premises (eg. ICT facilities). Timescale for Delivery This should be regarded as a long term action for the lifetime of the Gateway strategy. Potential Lead Partners Darlington Borough Council, property developers. Indicative Resources Required Resources required both for site infrastructure, conversion of existing premises. Assess scope for Borough Council to offer units.
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Theme: Spreading the Benefits of Growth to All Action J: Promote Work Based Learning and Apprenticeships Description This action has two dimensions: to raise the profile of work based learning and to explore the potential to offer more apprenticeships and advanced apprenticeships across a wider range of sectors. The further development of Darlington’s work based learning forum could be used as a platform to step up the promotion of work based learning opportunities both to young people in education in the Borough and to employers. Employers who already offer WBL opportunities could be drawn into this action to help demonstrate the benefits of WBL routes. While recognising the constraints imposed by financial resources, this action could entail key organisations (eg. Darlington Borough Council) and companies looking at how they might take on greater numbers of apprentices in order to set an example for others to follow. There should also be support for extending the Skills for Success initiative, funded by the Single Programme, which has seen around 830 people receive training and 92 businesses receive grants to part fund training. The key to this action is also enhanced coordination of the range of activities that partners in Darlington are already undertaking in this area. Where possible, action should be directed towards those sectors identified as priorities in the Gateway strategy. Aims To deliver more high quality apprenticeships for Darlington and generate a significant increase in the demand for work based learning and support for training from employers in the Borough. Rationale x Responds to perception that demand from employers is comparatively low in the Borough. x Need to capitalise on vocational routes that have been developed in Darlington. x Contributes to delivery of Local Area Agreement objective. x Addresses issue of creating new opportunities for young people in the Borough. x Contributes to delivery of commitments made in the Community Strategy. x Potential to address twin productivity challenges for North East of upskilling those in work and encouraging more people to enter employment. Timescale for Delivery This action should be seen as part of a long term strategic approach to the upskilling of Darlington’s workforce. However, the LSC operates on a 3 year budgetary cycle and annual allocations – and this points to a shorter term timescale Potential Lead Partners Darlington Learning Partnership and LSP, Darlington Borough Council, key employers Indicative Resources Required This action would require resources in the form of staff time and a budgetary allocation for additional promotional activities. Skills for Success received around £550,000 over the 2003-06 period.
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Theme: Spreading the Benefits of Growth to All Action K: Extend and expand initiatives that enable residents of deprived communities to access employment opportunities Description This action will centre on the marshalling of resources to extend or expand initiatives which aim at: x Enabling residents of deprive communities in Darlington to access employment opportunities x Assist residents to access education/training as a precursor to entering or re-entering the labour market. Several initiatives that have operated for some years using SRB and other sources of funding are now drawing to a close. These include the ‘Into Work’ initiatives which are viewed as an effective support mechanism. The Borough should adopt a strategic approach to identifying successor initiatives and funding streams over the long term (ie beyond a 2-3 year budgetary period. Partners have already taken steps through the Local Area Agreement which provides resource for the ‘Into Work’ initiatives. This may include finding the means to broaden the geographical scope of existing initiatives beyond the small number of wards that are their current focus. Given the sub-regional basis of funding streams, this action might also involve the Borough making a case for this type of initiative to be mainstreamed across the Tees Valley. Aims x Darlington’s deprived communities continue to benefit from tailored programmes of support. x Reduce economic inactivity rates in the Borough. Rationale x Capitalises on tried and tested initiatives that have generated positive results. Central Into Work has assisted 70 people into work and 32 into training. x Reflects priorities identified in Local Area Agreement. x In view of tight labour market in Darlington, economically inactive residents represent a pool of labour for the Borough. x Delivers commitments from Community Strategy, Neighbourhood Renewal Strategy and Economic Regeneration Strategy. Timescale for Delivery There are short term imperatives to find resources for the continuation of existing initiatives. However, this action should be seen as a long term priority for the Gateway strategy. Potential Lead Partners Darlington Learning Partnership Indicative Resources Required The extension of the ‘Into Work’ initiatives requires £120,000 over the period to 2008 to enable them to continue to operate.
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Theme: Spreading the Benefits of Growth to All Action L: Strengthen Local Procurement Measures Description This action will see Darlington put in place procedures to make local procurement a routine element of projects. The key will be to ensure wherever possible that local procurement clauses are written into tender documents. The focus of this action should be on the employment (and training) of residents of the Borough by contractors and will build on commitments by the Borough Council to deploy the NAPP toolkit in relation to major projects in the area. This could apply both to employment in physical construction projects and in the end uses (eg. major retailers). It could involve rolling out the type of scheme that has been piloted for the construction sector in Tyne and Wear which is based on assessment of the jobs that could be created by a particular scheme followed by work with training providers, Job Centre Plus to identify potential recruits and put in place the training provision for them. The Tyne and Wear scheme has reportedly demonstrated the utility of this approach and their scheme is now being extended to a broader range of projects (eg. waste disposal). A second dimension of this action might be further work to embed the local procurement of goods and services into contracting arrangements. Aims To ensure that a higher percentage of local residents are offered employment opportunities through projects delivered in the Borough. In effect, the Borough would develop a job guarantee scheme for construction, retail and other industries. Rationale x Consultees have highlighted need to bolster local procurement measures in the Borough. x Reflects commitments already made by the Borough Council. x Reduces economic inactivity in the Borough. x Number of major schemes in the pipeline in Darlington (Central Park, Commercial Street) should generate substantial number of new employment opportunities for local residents. x Consistent with position adopted in North East’s input to CSR 2007. Timescale for Delivery In effect, elements of this action are already underway in the Borough and activity arising from the Gateway strategy should centre on sustaining the momentum. Potential Lead Partners Darlington Borough Council, training providers, contractors Indicative Resources Required The Borough Council has allocated resources to support locally recruited employees to service new contracts. Expanding this practice could involve an approach for additional resources from the Single Programme to underwrite the job guarantee component of the action.
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Theme: Developing the Profile of the Darlington Brand Task M: Developing a Corporate Approach to the Management of the Darlington Brand
Description To draw together all current marketing initiatives and develop a strategic, corporate approach Aims To confirm the core Darlington brand and raise it profile in key target markets Rationale To underpin other elements of the Gateway Strategy. Timescale for Delivery On-going Potential Lead Partners Darlington Borough Council, Darlington Advantage, Darlington Partnership, One North East. Indicative Resources Required Re-focusing of existing marketing budgets. Circa £50,000 per annum to support the Darlington Advantage Initiative.
Conclusions
19. Gateway 2003 removed a key barrier to economic growth in the Borough by establishing a robust supply and choice of sites and premises to meet the needs of key growth sectors. Gateway 2003 has been very successful in supporting job growth in the Borough.
20. Building on the approach to date, Gateway Strategy 2006-2020 should continue to be based on a clear and straightforward vision. It should therefore maintain the focus on Darlington’s location and quality of life advantages. The Gateway’s success in developing sites should be highlighted and attention drawn to the new investment opportunities that are available. The delivery of projects should continue to be characterised by efficient planning, effective marketing and a ‘business friendly’ approach. The Gateway Strategy should be strongly reflected in the local and regional policy framework.
21. Looking forward, the next key potential barrier to growth will the supply of skills. Education and training should therefore be a key focus in the years to come. The strategy should also broadening its scope, by more clearly addressing local procurement, enhance linkages to deprived neighbourhoods and improve business support provision.
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SECTION 1: INTRODUCTION
1.1 This strategy report has been prepared for Darlington Borough Council by Building Design Partnership with King Sturge, Regeneris and CI:P.
1.2 The Strategy updates and develops on the original Darlington Gateway Development Framework, produced in 2003. This strategy is intended to establish economic regeneration priorities and key actions for the period 2006 – 2020.
1.3 The strategy has been prepared in the light of a number of baseline studies undertaken as part of this project, namely:
x Darlington Gateway Development Strategy, An Assessment of Progress so Far;
x A Sectoral Opportunities Study including a Creative Industries Sector Report; and
x An Employment Land Study.
1.4 This report draws together the outcomes of these baseline studies, together with other plans and strategies and the findings of consultations with key stakeholders to present a Strategy for the continued development of the successful Gateway concept. The Strategy will provide a structure within which the energies of the public and private sectors can be channelled to achieve agreed economic and related goals through sustainable economic development.
1.5 The baseline work to this strategy has not considered tourism in particular. However it is acknowledged that tourism is important to the economy of Darlington. Tourism initiatives are therefore being progressed and developed alongside the Gateway Strategy.
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Darlington Gateway Framework 2003
1.6 The Darlington Gateway Development Framework was the product of a 2003 report by Donaldsons and SQW which identified and assessed key employment sites that would meet the proven demand for new property in the Borough. The Framework highlighted the strong locational and quality of life advantages of Darlington and suggested that it had the potential to capture economic activity which would be unlikely to locate elsewhere in the Tees Valley sub- region. Although the report did not contain extensive analysis of business sectors in Darlington, it nevertheless pointed to business/financial services, logistics/distribution and retail as key sectors for Darlington. Darlington’s portfolio of sites and property and future development was to be geared towards these sectors.
1.7 Delivery of the Gateway Framework to date suggests that this approach has been vindicated as companies which operate in sectors such as logistics and financial and professional services have made major new investments, or have committed themselves to maintaining their operations in the Borough. Both the Gateway Framework and Darlington’s regeneration strategy plot the direction of the Borough’s economy to 2010/11. Assessment of the Gateway projects suggests that Darlington is well placed to meet the property needs of different sectors up to that period.
Gateway Strategy 2006 – 2020
1.8 This is however an opportune time to refresh the strategy and consider the period to 2020. The process of securing funding from sub-regional and regional bodies for key projects in Darlington is due to enter a new round, and the opportunity exists to re-vitalise and refocus the Gateway Strategy to build on past successes and re-focus on new priorities to the benefit of the Borough and region.
Report Structure
1.9 The remainder of this report is structured as follows:
x A brief review of the background reports referred to above, to establish the key themes to be addressed in the Strategy;
x A review of relevant policy considerations;
x Confirmation of the Vision for the Darlington Gateway which establishes an agenda for action;
x The themes and priorities of the Strategy; and
x The plan for action.
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SECTION 2: DARLINGTON GATEWAY – THE BASIS FOR FURTHER PROGRESS
Introduction
2.1 This section of the Strategy provides an overview of the baseline studies prepared as part of strategy development. These are:
x Darlington Gateway Development Strategy, An Assessment of Progress so Far;
x A Sectoral Opportunities Study, including a Creative Industries Sector Report; and
x An Employment Land Study.
2.2 These reports have been prepared in the light of desk-top research, site surveys, stakeholder consultations and a number of relevant local and regional policy documents.
2.3 This section of the Strategy concludes by drawing together key themes and challenges to be addressed.
Darlington Gateway – Assessment to Date
2.4 The 2003 Darlington Gateway Development Framework has been the flagship strategy for employment land and premises in Darlington. The Framework has facilitated a strong rate of development activity in the Borough in recent years.
2.5 The Development Framework strategy was underpinned by the view that the quality of life and accessibility Darlington has to offer were able to form the basis for a land and property strategy to attract new investment to the Borough. This has provided a straightforward rationale for the initiative.
2.6 The Framework pointed to strong latent demand for new, high quality office space and logistics/distribution units and identified priority sites in response to these opportunities. It also confirmed there was scope to develop the town’s retail and leisure offer.
2.7 At this early stage in the implementation of the Gateway Framework, quantitative evaluation based on floorspace and employment density figures suggests that key sites identified through the Gateway process can accommodate a substantial numbers of new jobs in Darlington. Importantly, they should enable Darlington to generate employment on a scale exceeding that of the 1999-2004, a period of particularly strong growth.
2.8 Table 1 below illustrates the impact that the key sites are already having on employment in Darlington and projects this forward to assess their potential impact on employment based on planned floorspace. The Borough experienced marked growth in employment (800 jobs per annum) between 1999 and 2004. The major investment by Orange, whose operation in Darlington now employs around 2500 people, is the most significant. However, this growth is also accounted for by the expansion of existing businesses during this period (eg. Capita, Cleveland Bridge), smaller scale new investments and the opening of large retail outlets. It is estimated that the floorspace developed since mid 2003 has yielded approximately 1,300 jobs. The Argos Distribution Centre on the Faverdale East site (c. 740,000 sq ft) has generated
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around 500 jobs and was the major new investment over that period. Capita’s decision to move to Lingfield Point in 2003 and the decision of Whessoe Oil and Gas to take Hackworth House on the Morton Palms site were the major relocations.
2.9 Between 2006 and 2010 it is estimated that close to 1.1 million sq ft of floorspace (office and industrial) is set to become available in Darlington under the Gateway banner with the potential to yield around 4300 jobs (c. 860 per annum). This provides Darlington with the infrastructure to match the levels of growth in employment achieved over the 1999-2004 period.
Table 1 - Gateway Sites – Employment, current and forecast
Site Floorspace Floorspace Employee jobs Projected employee developed planned/ under in let jobs in planned mid 2003 construction developments developments 2006 (sq ft) /not yet occupied (sq ft)2
Morton Palms 38,800 84,924 135 391 Central Park 301, 392 1250 Faverdale East 740,000 190,000 500 301
Durham Tees Valley 200,210 830 Airport Commercial Street 188, 307 784 (retail only) Lingfield Point 66,250 174,140 1500 722
TOTALS 845,050 1,138,973 2,135 4,278
2.10 A related indicator of the effectiveness of the Gateway initiative has been positive change in the commercial property market. Rental values for office developments are now approaching £15 sq ft, seen as an important threshold for creating a self-sustaining commercial property market. Darlington still attracts investors by being able to offer lower rates but the increase in the volume of speculative development and a good flow of enquiries attest to the property market’s growing vitality.
2.11 Qualitative evaluation of the Gateway’s delivery indicates that it has made an effective and significant contribution to the strategic objectives for Darlington set out in the Community Strategy (2003 – 2013) and the Economic Regeneration Strategy, A Gateway to Quality (2004 – 2009). Delivery of projects has been comparatively swift and the implementation process has been characterised by efficient planning, effective marketing and a ‘business friendly’ approach.
2.12 The Framework can also demonstrate added value in a number of ways. It has stimulated the development of new sites when Darlington had previously seen comparatively few such developments. Significant public and private sector funding has been drawn into Darlington, and the initiative has further bolstered the already strong track record of partnership working in the Borough. This partnership approach is seen to be an important factor in the success of the Gateway Framework.
2.13 The Gateway Framework is firmly embedded in the local policy landscape in Darlington. Both
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the concept of Darlington as a gateway location and the sites that are being developed under the Gateway banner have become key elements of the Borough’s economic regeneration strategy.
2.14 The Darlington Gateway has also become a highly visible component of the principal regional and sub-regional strategies in the North East. This is perceived to have greatly assisted in securing funding commitments from key providers, particularly One North East. This should be carried forward into the revised Strategy.
Gateway Framework 2003 – Projects
2.15 The Gateway Strategy identified three Priority sites, namely Central Park, Faverdale and Darlington Great Park. Both Central Park and Faverdale have been the subject of development, whilst Darlington Great Park is the subject of informal phasing and more particularly the implementation of the Eastern Transport Corridor. A number of other initiatives that were developed in the light of the Gateway Study, or are of particular relevance to this study are worth considered briefly in this section.
Central Park (Haughton Road)
2.16 The Central Park development comprises around 30 hectares of land, largely brownfield located close to Darlington Station. It is a mixed use development which will incorporate high specification office space, hotel/conference facilities, leisure and green spaces and a sculpture park. It also accommodates the new Darlington College campus.
2.17 The priority is for new investors to take up property on Central Park rather than the relocation of existing companies from within Darlington. The site is projected by impact analyses carried out for Tees Valley Regeneration to create net 1,926 additional jobs and total GVA of £28.5 million (at 2001 prices).
2.18 The Gateway Study 2003 considered that a high quality, mixed use site at Central Park would significantly enhance the regional and national profile of the town and reinforce its status as a gateway business location for the Tees Valley.
Faverdale East Business Park
2.19 This 35 hectare greenfield site on the northern edge of Darlington has been identified for commercial, industrial and warehousing uses. It is immediately adjacent to the Faverdale Industrial Estate and the Faverdale Reserve site. The development received planning permission in 2004 and is being brought forward in phases. A major success for the site and Darlington was attracting Argos to build a £30 million distribution centre (740,000 sq ft) on part of the site. The Argos centre will accommodate around 700 jobs in warehousing and administration.
2.20 Easter Developments has constructed 190,000 sq ft of distribution and production space in units ranging from 100,000 to 20,000 sq ft for freehold or leasehold.
2.21 Faverdale East was one of the key sites identified in the 2003 Gateway Report and in many respects exemplifies the thinking behind the Gateway initiative. Its position close to the A1 takes advantage of the locational strengths of the Borough. The development of the site, particularly the location of Argos, raised the profile of the Gateway concept in the North East and beyond. More specifically, Faverdale East fulfils the demand for new logistics/distribution sites which
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was identified as a current and potential strength of the Darlington economy. The Faverdale East site expands the choice available to potential investors and further improves the portfolio of property Darlington is able to offer. It has been described as a ‘shop window’ for Darlington.
The Pedestrian Heart
2.22 The Pedestrian Heart project is intended to significantly enhance Darlington town centre by creating an improved public realm and changing traffic flows to make it more pedestrian friendly. The £6.5 million scheme will include new surfaces, seating areas, improvements to landmarks and space for events, markets and street activities.
2.23 The Pedestrian Heart scheme has a clear strategic fit with the Gateway Development Strategy. Darlington is an important hub of commercial and leisure activity for its hinterland and the Tees Valley. Improvements to the town centre are an important part of efforts to boost the profile and retail offer of Darlington by making it a more attractive and striking place to visit. The 2003 Report identified the potential for major new retail development in the town and suggested that steps should be taken to retain non-food retail. By introducing a scheme to change the environment in the town centre, the Pedestrian Heart can be seen as a facilitator of further development which sends a powerful message to potential retail investors.
Commercial Street
2.24 The development of Commercial Street will see £80 million invested in a new shopping complex to considerably strengthen the town centre’s retail offer. The development will include space for a new department store together with other units primarily intended to attract new investment from retailers not yet present in Darlington. It will also incorporate a multiplex cinema, bars and restaurants along with large scale car parking. A planning application for the development has been submitted and the project is expected to be completed in 2010.
2.25 There is a strong Gateway rationale for bringing forward this scheme. It responds to one of the findings of the 2003 Report in that the retail offer of the town centre should be strengthened.
2.26 Furthermore, it is regarded as pivotal to the process of improving the quality of life in the town and increasing its appeal to potential investors. The retail sector benefits from the locational advantages of the town and the Commercial Street development will further raise the profile of a sector that is currently strong but is not as well served by national multiples as towns of a similar size. Despite demand from the major multiples, Darlington has not been able to provide the type of accommodation they seek. The scheme should see a significant increase in leisure and retail visits to the town.
Durham Tees Valley Airport
2.27 Durham Tees Valley Airport (DTVA) is a vital gateway into the sub-region and, increasingly, into the North East region. Peel Holdings acquired a 75% interest in DTVA in 2003 and embarked on a major programme of investment to develop the airport’s facilities, services and infrastructure. A new access road has already been constructed and the car parks have been significantly improved. Major improvements to the existing terminal building are underway and the construction of a new terminal building is in the pipeline. Planning consent has been sought for the construction of a business park with new office space and a new hotel. The Airport now serves 30 destinations and has seen substantial increases in passenger throughput in recent years.
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2.28 Capitalising on the proximity of the DTVA is seen as a key project for Darlington. There is a mutually beneficial relationship between the town and the airport and this has served to ensure that the latter has a high profile in the Gateway strategy. Darlington is critical in the accessibility of DTVA. A frequent bus service has been established to link the town centre, station and airport. The A1 and the road network around Darlington is the principal route for much of the traffic to and from the airport. The prosperity of the town and the surrounding area is an important determinant of demand for flights and therefore the performance of the airport. The income profile of the immediate catchment area for DTVA is regarded as highly favourable and points towards the continued growth of services. Furthermore, the Airport is a substantial employer for Darlington, with the majority of the 700 strong workforce residing in the Borough.
2.29 DTVA has ambitious plans to expand and is projecting strong and sustained growth in both its passenger throughput and freight movement. The volume of passengers is expected to reach three million by 2015, representing a 30% share of the North East market (compared to its current 16%). It forecasts handling 28,000 tonnes of freight by 2030. While development around the Airport will continue to be led by Peel, further improvements on access routes – particularly the A66 - will be vital.
Lessons and Opportunities
2.30 Looking to the future, it is clear that Gateway strategy should carry forward some key lessons and opportunities.
2.31 Gateway Strategy 2006-2020 should be based on a clear and straightforward vision. It should maintain the focus on Darlington’s locational and quality of life advantages, highlight the Gateway initiative’s success in developing sites, and draw attention to the new investment opportunities that are available. This approach would make it clear to developers that Darlington knows its direction of travel and how prospective investments will contribute to strengthening the economy of the town.
2.32 The strategy should be strengthened by broadening its scope. There is a perception that more could have been done to encourage local procurement in the development process. Beyond the benefits to the economy of the area, the construction industry is regarded as a priority sector which could be bolstered by steps which lead to it securing contracts from site development in the area.
2.33 Supporting people into employment is a strategic objective in Darlington’s Economic Regeneration Strategy and Framework 2006-2020 should assess how to link deprived areas to new employment opportunities. Unemployment remains a problem in the most deprived areas of Darlington. Measures to better enable these residents to access employment opportunities generated by new developments and investments would help to address this problem. It may also help to increase the visibility of the Gateway initiative and help to encourage enhanced ‘ownership’ in the community.
2.34 The Strategy 2006-2020 should include detail on the relationship between the provision of skills and sectoral priorities. The 2003 Report did not articulate the relationship between skills and the economy in the Borough. Earlier work on the baseline and scenarios for the Tees Valley contained a brief overview of skills levels in the area, while a 2002 study (The Tees Valley’s Economic Future – University of Glasgow) identified some of the general skills issues
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associated with key sectors of the economy. However, this does not appear to have been carried through into the Development Strategy.
2.35 Similarly, Gateway Strategy 2006-2020 should also more clearly outline the role of business support provision. Again, the Development Framework did not explore this issue. If growth in individual sectors is to be encouraged it is likely to require a range of associated business support interventions both within the Borough and in the wider Tees Valley area.
Sectoral Opportunities Study
Economic Profile
2.36 The economic headlines for Darlington paint a picture of a Borough that has performed strongly over recent years. It has the highest GVA per capita of the North East’s local authorities and has seen a rate of growth in employment over period since 1999 which considerably exceeds that of the region. Darlington’s economy has been strikingly successful at creating new jobs over this period.
2.37 However, there are also some signs of concern for the Borough. Notably, wage levels for those who work in Darlington are behind the regional average, suggesting a need to generate higher paid employment. Furthermore, there are significant issues of deprivation in particular neighbourhoods in the Borough, which brings with it some localised issues of low rates of economic activity and low skills. Here too there is clear recognition in the Borough of the scale and intensity of the issue, and the Gateway Strategy 2006-2020 will need to respond.
2.38 Within that overview, a number of social and economic factors are at work which are worth a brief review.
2.39 Over the last 15 years Darlington has had a stable population. In the 1991 census the total population stood at 99,300. By mid 2006 the Borough had an estimated resident population of 99,800 people in 45,100 households according to the Annual Population Survey. This represents around 15% of the population of the Tees Valley and 3.9% of the North East. Darlington has an older population than the other Tees Valley local authority areas (35 retirement) and the lowest proportion of young people (0-19). The population of the Borough is projected to expand to 100,300 by 2011, before falling back to the 2006 level by 2021. Over the same period, the working age population (16-retirement) is expected to fall by 5%. By contrast, the number of retired people will sharply increase by around 29% to around 25,000. These forecasts markedly change the profile of Darlington’s population, giving the Borough a larger proportion of older people.
2.40 The resident population of Darlington has a comparatively strong skills profile for the North East. At least 22.4% of Darlington’s working age population are educated to NVQ level 4 (degree or equivalent), while 15.7% have no qualifications. This represents a better profile than the sub-regional and regional populations, although it lags behind the UK figures.
2.41 At £365 per week the median gross weekly wage of people working in Darlington Borough (ASHE, 2005)1 lags behind the average for the Tees Valley (£388) and North East (£385), and significantly below the UK median (£432). This is probably partly accounted for by concentrations of employment in relatively low-wage health and social care work, and partly
1 ASHE – Annual Survey of Hours and Earnings
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because of the relatively small number of high value, high pay financial and professional business services jobs of the type that provide a significant number of opportunities for graduates. However, the average wages of people who live in Darlington (£368) are above the average for the sub-region and the North East. This suggests that significant numbers of higher earners who live in Borough travel to employment outside it.
2.42 Approximately 66% (30,000) of Darlington’s residents in employment work within the district and 34% (13,000) travel to work outside. The main destinations for those residents who travel to work outside the Borough are Sedgefield, Stockton and Middlesbrough. Darlington attracts around 15,400 residents from other districts to employment within Borough. This makes Darlington a net importer of around 2,400 workers from other districts. The inflows and outflows of workers vary across the different occupational groups. A greater proportion of those who travel to work outside the Borough are in graduate/professional occupations than is the case for those commuters who travel to Darlington.
2.43 Darlington has a comparatively low rate of start-up enterprise. In 2004, new VAT registrations amounted to around 8.8% of the total VAT registered business stock of 2,170. At 1.9 registrations per 1000 residents, this figure puts Darlington at the head of the five Tees Valley Authorities and the North East, but well behind the UK figure of 3.0 per 1000. Between 1998 and 2004, Darlington saw a contraction in the annual number of VAT registrations from 240 to 190, though the figures have fluctuated from year to year. The stock of VAT registered businesses has shown a small increase by 100 from 2,070 in 1998 to 2,170 in 2005. Survival rates compare unfavourably with the rest of the Tees Valley - at 2.0 per 1000 residents in 2005, the rate of VAT de-registrations each year is higher than those of the other Tees Valley districts and the North East.
Current Strengths
2.44 The Darlington economy has, since 1999, developed particular strengths in the business services sector, with call centres accounting for substantial employment growth over recent years. Financial services including the insurance industry have also been a strong contributor to the Borough’s recent economic fortunes. The provision of new sites and office premises should encourage further growth. Given Darlington’s communications links, logistics and distribution will always be important and this is borne out by the data – the opening of the Argos facility at Faverdale East attests to this strength.
2.45 Darlington’s manufacturing and engineering traditions are also reflected in the analysis. While the scale of employment in these industries has contracted over the past few decades, Darlington retains a number of major employers and, increasingly, specialist companies (eg. consultancies) which are operating in global markets.
2.46 In many respects, other strong sectors in Darlington mirror the pattern nationally. Health and social work are major employers and are set to expand further as the population ages. Public administration and education also account for a large share of the workforce, as is the case elsewhere in the UK. Retail has performed well, consistent with a national economy that has experienced good, sustained rates of growth since the late 1990s.
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Future Prospects and Opportunities
2.47 Darlington’s current strengths are reflected in the forecasts for employment in the Borough. The most credible scenario suggests that Darlington will generate a headline growth rate of 330 jobs per annum to 2015, a rate which the analysis and assessment presented below suggests could be maintained to 2020, given developments currently underway in the town and measures being taken to capture further growth.
2.48 The health sector, business services and logistics are all set to see strong and sustained growth over the medium to long term. Capturing the opportunities presented by these forecasts will require a combination of strategic decisions about the type of activity that is to be encouraged; measures to ensure that the property needs of businesses and organisations are met; and attention to skills, an issue that is widely seen as critical to the future of Darlington.
2.49 Financial services, construction, engineering/manufacturing and retail are forecast to experience some growth in the short term, but a period of little growth or even contraction over the period to 2020. However, there are good reasons to suggest that the future for these sectors could be rather more positive than the data would suggest. In particular, planned developments in the Borough such as Central Park and Commercial Street should have a marked catalytic effect.
2.50 Beyond those sectors in which Darlington has established significant strengths, there are a series of opportunities to generate new specialisms. There are opportunities to stimulate the creative industries in the Borough centring on assets including the Civic Theatre, Arts Centre and Forum. In addition to any economic contribution which this fast growing sector might make in the future, this ‘sector’ plays a fundamental part in making the town an attractive place to live and work. Modest potential has been identified for the chemicals and renewable energy sectors, though these are likely to become increasingly important as the shift to green energy production gathers pace.
Creative Industries Sector
2.51 Within the sectoral review, particular consideration has been given to the creative industries sector. This particular study confirms that there is a strong strategic base for the development of the creative industries sector at both national and regional levels. However, there is to date no clear strategy locally to support or develop the sector in Darlington, although the prospects of achieving a ‘strategic fit’ within existing economic and regeneration plans is favourable.
2.52 Darlington does not currently contain a very active commercial creative industries sector. There are no local structures, programmes or strategies in place to actively support or develop the sector. Compared to other towns of similar size, Darlington’s commercial sector is certainly weak. Further development of the sector will depend on:
x The development of a broadly agreed and resourced development strategy that focuses on the key specialisms that Darlington could have to offer; x The full and integrated involvement and partnership of the Further Education Sector. x The formal engagement and involvement of the existing commercial and independent creative industries sector, including the Forum Music Centre.
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2.53 Darlington does not maximise the potential of ‘culture’ to attract people to the Town. While there are the notable ongoing success stories with the Arts Centre and the Civic Theatre, and more recently the Forum Music Centre, Darlington is not generally recognised as a ‘cultural destination’. The issue of young people leaving Darlington to go to University or to find employment, the lack of any creative industries infrastructure and the fact that many professional workers live outside Darlington, contribute to this situation.
2.54 However, the key strengths in the Arts Centre, Civic Theatre and Forum Music Centre do form the basis for potential development, both in terms of developing the Performing Arts, and the potential to develop new buildings, programmes and resources. This opportunity is considered later in this report as an important part of developing the Town’s ‘Quality of Life Offer’ within the wider Gateway Strategy.
2.55 It is clearly a limitation for Darlington that it is not the home to a University Campus. However, both Queen Elizabeth 6th Form College and Darlington College are well respected nationally and offer an impressive creative/media curriculum, with particular strengths in Performing Arts and Digital Media. Darlington College is developing formal links with Teesside University in the delivery of its digital courses, which can only benefit a developing strategy. It is vital that both colleges are fully involved in any planning for the development of the sector in the future.
2.56 Given other advanced developments in the sub-region in creative industries development, Darlington may need to focus on a ‘specialism’ within the sector. There are identifiable strengths in Darlington that may point to a prospective specialism in the performing arts and music sub-sectors, focussed on youth development and education.
2.57 The option of rehousing the Arts Centre in the Borough Road area and develop a wider Cultural Hub or District around it, the Civic and the Forum is considered later in this report. This potential project opens up the opportunity to deal with some existing physical problems such as front of house capacity at the Civic Theatre; look ahead to the needs of the Forum in terms of its venue size and capacity; and create the Town’s first managed workspace and incubator development to support the sector in the area.
Employment Land Study
2.58 The approach taken to the Employment Land Review involves a review of the supply and demand for employment land, an assessment of existing employment provision, and an analysis of the economic factors affecting Darlington. The review assists in the development of a ‘balanced’ employment land portfolio, which reflects the wider aims of the Darlington Gateway Strategy.
Current Employment Land provision
2.59 Major industrial estates in the Darlington area include Faverdale Industrial Estate, situated to the north-west of the town centre and close to the A1(M), and also Yarm Road Industrial Estate which is situated immediately to the south of Lingfield Point. Both estates presently have high occupancy rates. At Faverdale there are companies such as Argos, Aldi, George Allinson
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Transport and Stagecoach. Major occupiers to Yarm Road Industrial Estate include Orange, Darlington Building Society, Magnet and Amec.
2.60 The town centre office supply generally comprises older stock with a small number of new developments. The supply out-of-town is focussed on the eastern edge of Darlington around McMullen Road and Yarm Road. Lingfield Point provides converted and refurbished accommodation on McMullen Road. The Orange call centres and the Darlington Building Society headquarters are based on Yarm Road close to Morton Palms, Darlington’s first comprehensive business park development.
2.61 A new business park is also being designed to capitalize on the dramatic turnaround in business of Durham-Tees Valley Airport - previously known as Teesside Airport. There are two separate sites which are designated for employment land related to airport activity. These comprise of 65.7 hectates on the North side and a total of 100 hectares on the South side, albeit only 38.6 hectates of which falls within Darlington authority boundary. The remainder is in Stockton.
2.62 The Faverdale Reserve Site is approximately 120 ha (297 acres) and is held on reserve for a large inward investor. Darlington Great Park is subject to informal phasing and the delivery of the Eastern Transport Corridor.
2.63 Current land availability on allocated sites can be summarised, together with land available on key larger sites is as follows:
Table 2: Current Employment Land Availability – Darlington
Total Area Developed Available Name Ha Ha Ha Faverdale 55.48 48.45 7.03 Whessoe Road 32.51 21.17 11.34 McMullen Road West 7.06 0.62 6.44 McMullen Road East 6.37 1.85 4.52 Yarm Road 54.82 6.37 48.45 Faverdale 51.38 23.32 28.06 Heighington Lane 15.11 0 15.11 Faverdale Reserve 119.78 0 119.78 DTVA North 65.77 55.39 10.38 DTVA South 38.63 0 38.63 Other --- Totals 649.22 415.44 233.78 * excludes Faverdale Reserve site
2.64 All existing and potential employment sites have been assessed against sustainability objectives, market and policy requirements. The majority of existing allocations are considered robust. A small number of existing employment land allocations or areas which would be better being given to uses other than solely employment were also identified.
2.65 Further sites were also identified which would benefit from masterplan and/or further feasibility work to unlock there potential. There are:
x Valley Street – consideration as ‘area of opportunity’ for office led mixed-use town centre development
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x McMullen Road West – for consideration as part of the key sites, with strong sustainability criteria (a brownfield designation within the urban area and will benefit from good communication links).
x East of Town Centre – for consideration as a mixed use development site with good prominence on the ring road.
x Borough Road – for consideration as an ‘area of opportunity’ incorporating some office and other commercial development.
x Faverdale – consideration of a phased approach to releasing sites for the development of a distribution hub.
Economic Conclusions
Market Overview
2.66 There are a number of contextual issues which influences the market potential of the Borough:
x The Borough’s environment and accessibility with a reasonably priced housing market remain key draws;
x The local economy has been successful in shifting from a predominately manufacturing base to a business services and retail economy.
x A key threat to the town is the range of facilities being too limited to retain or attract a young workforce and the lack of higher education makes the town vulnerable to the loss of young people who leave for higher education or jobs in more specialist services.
x The town lacks a distinctive positioning and the cultural offer is relatively small and weak when compared to other areas in the region.
x Darlington has strength in its business and education links and could draw from a wider area and strengthen FE/HE linkages in the sub-region.
x There is considerable potential to market Darlington’s distinctive image as a ‘good value well-located town’ and complement the regeneration of the Tees Valley.
Office market
2.67 There is a distinct lack of Grade A office accommodation in Darlington town centre. There is strong demand nationally from owner-occupiers and private investors for small office units which has been evidenced at Pioneer Court which represents the only available accommodation of this type in central Darlington. This type of accommodation is not only attractive to small and medium sized companies from outside of the town, but also offers the opportunity for existing companies to relocate within central Darlington.
2.68 For Darlington to be able to attract other large-scale requirements and companies, such as Orange, Capita and Government related occupiers, it is necessary to compete with other established office sectors both regionally and nationally. This need is being addressed by the development of Morton Palms, the first comprehensive business park, and future long term supply at Central Park and Darlington Great Park. As these locations are developed out and establish a critical mass with high profile occupiers, Darlington will become more recognised as
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an office location. Continued promotion of the Gateway Strategy and effective marketing of the town will promote this growth. The town is well placed to attract these larger office occupiers.
2.69 Prime office rents in Darlington are currently at a headline of £156.07 m² (£14.50 ft²).
2.70 Prime office yields, having been achieved on the sale of Hackworth House at Morton Palms reflect 6.5%.
Table 3: Take-up year on year from 2003 to 2006 (1st quarter only)
Office Floorspace Q1 2006 2005 2004 2003 Take-up Sq. ft Sq. ft Sq. ft Sq. ft
Darlington 58,254 59,879 30,332 8,209
Source: ERS
2.71 It is expected that the following types of office development will appeal to occupiers in Darlington, these are as follows:
x Hybrid office/workshop units
x Small office units
x Standalone pavilion style office units
x Managed workspace
x Large office buildings
Industrial Market
2.72 Darlington is an attractive location for industrial/logistic occupiers with its close proximity to the A1(M), Teesport and Durham Tees Valley Airport.
2.73 There is a significant supply of older stock in the industrial market in Darlington with a large proportion of buildings being left over from Darlington’s industrial past when it centred around the railway industry and other significant occupiers, such as Painton & Baldwin.
2.74 There is a variety of second-hand space in existing industrial areas including Faverdale Industrial Estate; North Road Industrial Estate ; The Forge; Banks Road Trading Estate, Lingfield; Yarm Road Business Park; Morton Park; and Yarm Road. Within these areas there has been some degree of modern development, however the majority of this has been targeted towards SMEs and new start-up businesses, with the majority of the units being under 929 m² (10,000 ft²) and the most recent comprising of small to medium workshop units.
2.75 There would appear to be a distinct gap in good quality modern industrial space above 929 m² (10,000 ft²) for occupiers looking to expand their existing businesses located within Darlington or for companies generally looking at the region as a whole. Whilst Darlington will potentially be an attractive location, the fact that there is a limited supply of suitable accommodation may force these parties to look elsewhere.
2.76 Darlington is also well placed to take full advantage of the fledging distribution market which it is predicted will continue to grow as the North East becomes a desirable location for the logistics industry.
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2.77 Faverdale, due to its close proximity to the A1(M), is the natural location to promote this sector notably on the back of Argos’ 69,676 m² (750,000 ft²) distribution development. Easter Group’s 9,290 m² (100,000 ft²) speculative unit at Faverdale is also targeted at the distribution sector. Other opportunities exist at the remainder of the Faverdale Reserve Site as well as St Modwen Properties’ proposals for large-scale distribution warehouses to be built on their adjacent site. However, there may be issues surrounding the distribution market that are raised within the emerging RSS and these will need to be taken into consideration whilst planning to take Faverdale forward as a major distribution location.
2.78 The value of industrial land in the Tees Valley varies from £308,000-£370,000/ha (£125,000 £150,000/acre) for the best sites to £123,000-£185,000/ha (£50,000-£75,000/acre) for poorer locations. There has, however, been a significant decline in good quality sites available within the region as a whole which may further be affected by the emerging RSS and this may have an impact on future land values.
2.79 Prime locations within the North East will include sites along the main arterial routes of the A1(M) and the A19 which are in short supply due to the large swathes of greenbelt in between the major conurbations along the length of these main routes. Darlington is therefore well placed having strategic sites on both the A1(M) at Faverdale and close to the A66 east of Darlington.
2.80 With regard to rent levels, Easter Group is quoting rents of £48.43 m² (£4.50 ft²) for three of their units at Faverdale which range from 1,858 m² (20,000 ft²) to 3,716 m² (40,000 ft²) with an asking rent of £45.74 m² (£4.25 ft²) on the 9,290 m² (100,000 ft²) unit. These rents are in line with other good quality locations in the region and are a sign of developers growing confidence in the Darlington market. Rental levels can, however, be as low as £10.76 m² (£1.00 ft²) for large areas of second-hand space in poor quality premises on less attractive estates.
2.81 The investment market has flourished in recent times due to the cheap cost of money which has fuelled an appetite for investments within the industrial market with average yields currently standing at 7%, although sub-7% yields have been paid for industrial stock depending upon the quality of property and lease terms.
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2.82 Take-up figures over a five year period taken from 2price/Focus reflect an average annual take- up rate of 3,812 m² (41,038 ft²). However since 2003 lettings have dropped significantly to an average of 908 m² (9,778 ft²) per annum.
Table 4: Take Up of Industrial Space in Darlington 2000-2006
Take-up of Industrial Space in Darlington 2000 – 2006
2000 2001 2002 2003 2004 2005 2006 Average Annual Take-up
Industrial Space 49,702 71,572* 60,231** 76,428 10,351 7,545 11,440 41,038 (ft²)
Source: 2pride/Focus this included a letting of 24,619 sq m which included office and ancillary space ** this included 2 lettings at 6,694 sq m & 12,793 sq m - both of which included office and ancillary space *** this included a letting of 39,556 sq m
2.83 This decline in recent years’ take-up can be attributed in part to a number of reasons:
x Competition from other areas in the region particularly those with Tier 2 assistance are more attractive to inward investors and developers;
x Large industrial lettings are often a feature of old manufacturing industries which are in decline nationally; and
x Requirements are increasingly coming from small to medium sized businesses who have sub-464 m² (5,000 ft²) requirements.
2.84 Another factor which needs to be considered is that the overall void rate within Darlington is low and therefore annual take-up figures may also reflect the fact that there has been limited new development within the industrial sector during this time. With the establishment of Faverdale as a location and other potential sites being brought forward as a result of the Eastern Transport Corridor, these figures are likely to rise significantly over the next few years.
The Economy and Employment
2.85 The Darlington economy supports approximately 45,300 employee jobs, according to the latest Annual Business Inquiry data. Key aspects of the structure of employment in Darlington, compared to the Tees Valley area, the North East region and United Kingdom as a whole are a follows.
x Public Administration, Education and Health Services, which employs some 29.9% of the workforce. This compares to the national average of 28.2%, lower than that of the North East region and Tees Valley with 31.9% and 30.4% respectively.
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x The Distribution, Hotels and Restaurant sector employs some 20.2% of employees in Darlington, above the national average (19.6%), regional average (19.0%) and local Tees Valley (19.7%).
x Transport and Communications account for 8.6% of all employee jobs in Darlington, proportionally higher than the sectors share of employment in the UK (6.8%), the North East (7.2%) and the Tees Valley (6.6%).
x The share of jobs in manufacturing industries (at a total 14.5%) is above the national average of 13.5%, but lower than that of the North East region (15.1%) and the Tees Valley (15.9%).
x Conversely, proportionally fewer jobs in Darlington are in Banking, Finance and Insurance (12.5%) compared to the UK as a whole (15.5%), but higher than both the North East (10.6%) and the Tees Valley (11.1%).
x Darlington has a relatively low proportion of jobs in other services (which covers the 2003 Standard Industrial Classification division 90-99, examples of which include recreational, cultural and sporting activities, hairdressing and beauty treatments, sewage, refuse disposal, etc, activities of membership organisations, such as trade unions, not elsewhere classified) compared to the UK, North East and the Tees Valley.
Employment Change to 2020
2.86 Table 5 below illustrates the overall trajectory for employment in Darlington over the period 2005 to 2020. Alongside the Experian forecasts, we have illustrated the employment growth that would occur if recent growth rates over the past decade were to continue (i.e. growth of around 350 jobs per annum). Overall, the forecasts indicate that Darlington’s employment base will continue to grow over the coming years, at a slightly slower rate than has been experienced recently, but by approximately 330 jobs per annum. After 2010, however, the forecasts show a slowing of the growth rate, with employment growth starting to flatten out by 2014, and remaining relatively static up to 2020. This suggests, and is backed up by our partner consultations, that the strong rates of growth experienced in recent years are highly unlikely to continue post 2010.
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Table 5: Employment growth 2005- 2020 (2005 = 100)
Employment growth, 2005-2020 (2005 = 100)
114
112 110
108
106 104
102
100 98
96 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020
Experian Forecast Long Term Trends
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2.87 The growth trends overt the period can be summarised as follows.
2005-10
2.88 Employment is forecast to increase by 1,700 jobs in this period. The following sectors are set to drive this growth:
x Health - with 1,200 net new jobs anticipated
x Business Services – also a strong source of recent growth, d the business services sector is predicted to gain a further 750 jobs overall.
x Logistics – Employment in transport, storage and communications is predicted to increase by 500 jobs.
x Construction grows by 160 jobs.
x Banking and insurance and “other financial and business services” are each set to increase by 150 jobs. It is likely that this will encapsulate the insurance and mortgage brokerage activities, which have been a recent source of growth.
2010-2015
2.89 In this period, employment continues to increase with1,520 net new jobs are created in this period. The continuing growth is:
x Health is again the strongest growing sector, with growth of 1,325 jobs.
x Logistics also continues to grow by 1,150 jobs.
x Retailing, after some falls, begins to grow again, gaining around 100 jobs overall.
x Business Services does see some growth, with 50 new jobs, but its status as a driver of employment growth is no longer applicable.
2015-2020
2.90 In this period, the rate of growth flattens out, and employment remains fairly steady – employment in 2020 shows negligible growth on 2015. The majority of sectors are forecast to see employment fall; only a handful are predicted to grow, however:
x Health activities continue their strong growth, and are the only sector to continue to grow at a strong pace – 1,400 further jobs are created in the sector.
x Logistics also gains jobs - 240 overall.
Job Growth and Floor Space Requirements
2.91 From the Experian data on predicted job numbers for Darlington the floor space requirements for each of the sectors using English Partnerships’ Employment Densities: A Full Guide 2001 have been estimated.
2.92 In the table below each of the sectors has been considered in terms of the type of floor space needed in terms of B1 office space, B2 general industrial and B8 distribution for those sectors which are demonstrating growth:
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Table 6: Estimated Floorspace Requirements to 2020
2005-2010 2010-2015 2015-20 Gross Average per Amount of annum ft² (m²) ft² (m²) ft² (m²) floor space by type ft² (m²) [acre/ha] [acre/ha] [acre/ha] 2005-20 [acre/ha]
ft² (m²)
[acre/ha]
B1 Offices 301,799 81,685 83,150 415,893 31,108 (28,038) (7,588) (7,724) (38,637) (2,890)
[21.55 / 8.72] [5.84 / [5.94 / [29.7 / [2.22 / 2.36] 2.4] 12.0] 0.89]
B2 General 97,359 45,828 41,548 150,830 12,317 (9,044) (4,257) (3,859) (14,012) (1,144)
[4.88 / [2.3 / [2.08 / [7.5 / [0.62 / 1.97] 0.93] 0.84] 3.03] 0.25]
B8 Distribution 371,348 850,153 175,440 1,396,941 93,129 (34,499) (78,981) (16,298) (129,780) (8,652)
[18.57 / [42.5 / [8.77 / [69.84 / [4.66 / 7.51] 17.2] 3.77] 28.26] 1.89]
Total 770,506 977,666 300,138 1,963,664 136,554 (71,581) (90,826) (27,881) (182,429) (12,686)
[45 / [50.64 / [16.79 / [107.04 / [7.5 / 18.2] 20.49] 7.01] 43.29] 3.03]
2.93 To summarize, from the table above the total land requirement for new commercial space using the employment forecast model is as follows:
x Offices - Just under 12 ha (30 acres)
x General Industrial - 3 ha (7.5 acres)
x Distribution - 28 ha (70 acres)
2.94 The total land requirement for all employment land equates to just over 43 ha (107 acres) of land up to 2020.
2.95 The total land requirement projected using the Experian data can be benchmarked against the other sources mentioned previously in this report. These sources provide evidence of different levels of take-up and given that the Experian employment model has its limitations; particularly where current planning policy is pushing towards higher growth expectations for Darlington in terms of attracting more occupiers and investors, it is considered essential that all these sources are considered in terms of making an assessment of how well supply matches demand. This review suggests:
x Prime/Focus – 16.9 ha (41.7 acres)
x ERS Database – 169.7 ha (419.3 acres)
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x Experian Forecasts – 45.5 ha (112.3 acres)
2.96 The amount of available land within existing employment allocations provides some 353 ha, on this basis it can be seen that there is a significant amount of supply available to provide for employment in Darlington.
2.97 However, the overall supply needs to be considered in the context of modern occupier requirements and the need to direct the development of employment locations into sustainable locations.
2.98 The potential of allocated sites has been examined and suggest that the following approach set out in Table 7 be taken in terms of the matching the overall demand with supply.
Table 7: Equating Employment Allocations to Demand
Justification Area ha Total Employment Allocation 353 ha Deducting Heighington Lane x RSS In Public Recommendation - 15.11 ha – Recommended for de- for De-allocation allocation. x Greenfield x Out of town site
Yarm Road South x Long term aspiration beyond the 43.52 Long term aspiration for plan period development, potentially x Greenfield site beyond the plan period Airport South x Immediate and medium term need 38.63 Long term aspiration for for airport related employment development, potentially sites fulfilled by other airport sites beyond the plan period x Long term aspiration beyond the plan period Faverdale Reserve Site x The site is not required at the 119.78 Recommended to be present time with other Faverdale allocated for distribution sites still available. activity as part Faverdale x The site should however be employment area, but allocated as the prime distribution likely to fulfil long term site aspiration and needed x A slow phasing and release of this beyond the plan period site for distribution is needed and should be held for distribution activity only x Encouraging more distribution and the development of a ‘distribution hub’ will require a significant amount of land which maybe developed beyond the plan period.
Employment allocations minus deallocated sites and sites which will 135.96 provide for some longer term needs ERS Projected need within the LDF plan period 169.7 ha
2.99 The supply of sites and actual demand are extremely difficult to match accurately, with some of the prime sites having the best location criteria however (in some cases) these have significant land supply potentially over and above what is needed within the LDF plan period. In these
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instances it is proposed to retain these on the basis that a phased approach can be achieved and undeveloped parcels can be reserved beyond the plan period.
2.100 It is difficult to predict what level of take-up is likely on specific sites within the plan period. Expressly reserving parts of sites beyond the plan period was not considered to be a favourable strategy as this approach could stymie development and subsequently the economic development and improvement of Darlington’s economy. It is therefore proposed to prioritise key sites which will deliver the majority of Darlington’s future employment, the following section sets out this approach. Plans identifying the key employment sites are appended to this report.
Offices
Stage 1
x Morton Palms
x Central Park
Stage 2
x Parkgate (to commence site assembly)
x Development of some office space at Borough Road including creative industries
x Some development of office space at Valley Street North
Industrial / Distribution
Stage 1
x Airport North (for airport related activity)
x Faverdale Industrial Estate
Stage 2
x Strategic Faverdale Reserve Site
x Remaining land at Yarm Road Industrial Estate
Stage 3
x Yarm Road North
x Airport South
x Yarm Road South
The agenda for a Re-vitalised Gateway Strategy
2.101 The background studies referred to above point to a series of agenda items to be reflected in an up-dated Gateway Strategy. These are:
1. The success of the Gateway Strategy to date has been based in part on clarity, and a clear relationship with sub-regional and regional strategies;
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2. The principal strengths of Darlington, in a regional context - quality of life and accessibility - remain valid and a robust basis for further development;
3. There are opportunities to enhance the quality of life and accessibility offer;
4. The Darlington economy has the potential to sustain strong levels of employment growth to the benefit of the sub-regional and region.
5. The maintenance of a robust land supply in suitable for all key sectors. Opportunities to capture and accommodate future growth lies in particular in:
x continuing to develop a strong record of accommodating office development in key locations in the Borough to reinforce market position and profile. Products to be encouraged are:
a. Hybrid office/workshop units
b. Small office units
c. Standalone pavilion style office units
d. Managed workspace
e. Larger office buildings;
x developing key supporting infrastructure in the town, not least the town centre;
x creating opportunities to foster the town centre office market;
x encouraging the provision of larger, modern industrial accommodation; and
x continuing to develop Faverdale as a strategy distribution and industrial location.
6. Key growth sectors to 2020 will be:
x Health x Logistics x Business and financial services x Engineering and Civil Engineering
Other growth sectors could include:
x Creative industries and digital media x Renewable energy (and recycling) x Chemicals x Retail x Tourism and leisure, including food
7. There is benefit in broadening the role of the Gateway Strategy to address:
x the promotion of additional growth in higher wage sectors of the economy; x local procurement in the development process. x linking deprived areas to new employment opportunities. x the links between skills and sectoral priorities. x more clearly, the role of business support provision; x the development the Darlington brand and offer, not least the town centre x the integration of the objectives of sustainable development
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2.102 These points are carried forwarded into the emerging Gateway Strategy 2006 – 2020 in the remainder of this report.
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SECTION 3: DARLINGTON GATEWAY THE CONTEXT FOR STRATEGY DEVELOPMENT
Introduction
3.1 This section of the Strategy provides a brief review of key policy statements at national, regional and local level that assist in confirming the agenda for the Darlington Gateway Strategy. This is not intended to be exhaustive review of all policy documents that influence the Gateway Strategy and its implementation but rather to identify those key policy strands, notably at regional level, where a clear and direct relationship is important to the success and wider understanding of the Gateway Strategy.
3.2 The benefit of embedding the Gateway Strategy in the regional policy landscape has already been highlighted in this report.
3.3 This review will therefore focus on:
x PPS1 Planning for Sustainable Development
x The Northern Way
x Regional Spatial Strategy
x Regional Economic Strategy
x Tees Valley City Region Development Plan
x Darlington Community Plan
x Darlington Gateway to Quality
x Darlington Local Development Framework Core Strategy
x Cultural Strategy
x Local Transport Plan
3.4 The review focuses on two principal aspects of the policy context, namely strategic objectives and sector growth priorities. This will give confirmation to the focus of the strategy, in terms of business sectors, and the objectives in terms of priorities and outcomes. The remainder of this section is structured accordingly.
Strategic Policy Objectives
PPS1 Planning for Sustainable Development
3.5 PPS1 places sustainability at the area of the spatial planning process. The aims for sustainable development are:
x social progress which recognises the needs of everyone;
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x effective protection of the environment;
x the prudent use of natural resources; and
x the maintenance of high and stable levels of economic growth and employment.
3.6 Spatial and related planning should facilitate and promote sustainable and inclusive patterns of urban and rural development by:
x making suitable land available for development in line with economic, social and environmental objectives to improve people’s quality of life;
x contributing to sustainable economic development;
x protecting and enhancing the natural and historic environment, the quality and character of the countryside, and existing communities;
x ensuring high quality development through good and inclusive design, and the efficient use of resources; and,
x ensuring that development supports existing communities and contributes to the creation of safe, sustainable, liveable and mixed communities with good access to jobs and key services for all members of the community.
Moving Forward, The Northern Way
3.7 The Northern Way Business Plan to 2008 identifies ten investment priorities for the North, namely:
1. Bring More People into employment
2. Strengthen the North’s Knowledge Base
3. Build a more Entrepreneurial North
4. Develop Key Clusters
5. Meets Employment Skills Needs
6-8. Enhance connectivity
9. Create Truly sustainable communities
10. Market the North to the World
3.8 City Regional Development Plans are to be prepared in the context these priorities and the related investment programmes.
Regional Spatial Strategy (Submission Draft, June 2003)
3.9 The submission draft of the Regional Spatial Strategy confirms core objectives of:
x Delivering Economic Prosperity and Growth
x Delivering Sustainable Communities
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x Conserving, Enhancing and Capitalising on the Region’s Diverse Natural and Built Environment, Heritage and Culture
x Improving Connectivity within and Beyond the Region
3.10 In the Tees Valley Region plans and programmes are to support polycentric development. Key relevant policies (Policy 7 Draft RSS) are:
x giving priority to the regeneration a number of sites, including Central Park Darlington and its links to the town centre for appropriate mixed use development;
x supporting the expansion of the renewable energy and recycling sector and their links to sustainable regeneration;
x encouraging the development of land for airport-related uses, to enable Durham Tees Valley Airport’s potential as an economic driver to be realised and cater for its anticipated passenger growth;
x supporting the development of Darlington as an employment location, particularly to take advantage if its location close to the A1, A66 and East Coast Main Line;
x supporting the expansion of the Universities of Teesside and Durham and the research and locating the majority of new retail and leisure development in the sub-regional centres of Middlesbrough and Darlington;
x encouraging the growth of passenger and freight services from Durham Tees Valley Airport in linking the region to international markets;
x developing a modern integrated public transport network for the Tees Valley;
x supporting the upgrading of the East Coast Main Line;
x supporting improvements to the A66 Darlington Bypass; and
x encouraging the development of renewable energy whilst carefully considering the local impacts of proposals.
Regional Economic Strategy (July 2006)
3.11 The Regional Economic Strategy for the North East establishes a series of actions which are intended to deliver on the vision centred around greater and sustainable prosperity. Key relevant themes of the RES include:
x Promoting and encouraging business start up;
x Providing high quality business advice and support;
x Improving skills for business;
x Addressing areas of industrial opportunity, delivered through the ‘three pillars’ of energy and the environment, health care and health business and process industries, which in turn of supported by themes of emerging technologies and digital media and technology;
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x Enabling transition to a more innovative economy;
x Tackling worklessness;
x Linking areas of economic opportunity to deprived communities;
x Ensuring provision of appropriate and high quality sites, business premises and infrastructure;
x Taking forward regeneration in Darlington, including the development of Central Park and Tees Valley Airport; and
x Implementing evidence based City Region Development Plans.
Tees Valley City Region Development Plan 2005
3.12 The aim of the City Region Development Programme is to improve the economic performance of the Tees Valley, through:
1. Building a strong diversified economy based on the following economic assets:
x The industrial complex based on chemicals, hydrogen economy, renewable energy, and steel with a core of world-class companies and a strong research base.
x A world-class port – Teesport.
x A knowledge based economy based on the capacity of the universities to generate new sectors.
x The development of Durham Tees Valley Airport as a major employment location.
2. Developing sustainable communities based on:
x The creation of attractive places and an environment with the quality of life which both makes people want to stay in the region and attracts entrepreneurs;
x The regeneration of the inner areas of our main towns into vibrant, socially diverse communities;
x The creation of a revitalised housing market fully integrated with the economic renaissance of the City Region; and
x Developing the financial and business services sector to create jobs in the core of our urban areas.
3. Removing barriers to growth by:
x Increasing the stock of companies in the Tees Valley;
x Developing UK levels of economic activity and improved skills;
x Reduced levels of worklessness; and
x Developing high quality public transport as the key means of accessing locations for economic growth from both the urban and rural areas of the City Region.
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x Growth in business start-ups
x More investment retained within the local economy
Darlington Local Development Framework Core Strategy Preferred Options
3.19 The emerging Core Strategy establishes a series of strategic objectives for the Local Development Framework. These include:
x Creating an environment that encourages quality of life and promotes healthy and inclusive communities whilst supporting economic vitality for Darlington.
x Ensuring continued and sustainable levels of economic growth that provides employment for our residents, supports existing businesses and encourages new businesses to set up in Darlington.
x Enhancing and promoting the historic market town centre of Darlington as the hub for hopping, culture and civic administration whilst protecting and enhancing key commercial centres and accessible local commercial and community facilities for which there is, or is expected be, a continuing need.
x Protecting and enhancing the separate identities and character of the town, distinctive parts within it and the villages, and promote development that is in keeping with the size, character and function of the location.
x Encouraging high quality, sustainable and safe design for places and spaces, in both the private and public realm.
x Promoting development in locations where it will be accessible by various modes of travel, optimise the use of existing infrastructure, ensure the best use of previously developed land whilst also minimising the need to travel.
x Providing a continuous supply of appropriate land in sustainable locations, that will meet our strategic requirements for housing, employment, shopping, recreation, education and other services.
x Provide a framework to facilitate infrastructure provisions commensurate with community and business needs.
Darlington Second Local Transport Plan: Overview
3.20 The Provisional Second Local Transport Plan (LTP2) considers how transport investment will be implemented between 2006/7 to 2010/11. This transport investment is reviewed to see how it will contribute to the long-term vision for Darlington, as well as considering how the investment will contribute to sub-regional and regional objectives and to national shared priorities.
3.21 Based on the national shared priorities, the regional and local analysis, and the longer-term Transport Strategy for Darlington, the objectives for the Plan are:
x To provide the framework for sustainable development of new and existing businesses, housing and services in Darlington;
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x To improve access to employment and education, particularly for those without access to a private car, those with a disability and those that have greatest need;
x To tackle traffic congestion on key corridors and its potential affects on the economy and environment by making the most effective use of the transport network;
x To improve travel safety and security for all by addressing the real and perceived risks;
x To provide and promote travel choices to all, in particular to reduce the proportion of car driver trips; and
x To improve the health of the community through increasing levels of sustainable travel and improving access to health, leisure and fresh food.
3.22 LTP2 is intended to deliver a sustainable transport system in Darlington through a mix of road network enhancement measures and improvements to sustainable transport. Key projects include:
x Increase number of cycle and bus lanes along key routes;
x Ensure new developments are well served by public transport;
x Require schools and work places to have travel plans;
x Better promotion of sustainable transport modes;
x Improvements to the A66 trunk road; and
x Delivery of the Eastern Transport Corridor between A167 and A66.
Darlington Cultural Strategy: Moving Up, 2002, updated January 2006
3.23 Darlington’s Local Cultural Strategy is premised on four ‘Strategic Aims’:
Strategic Aim One - Preserve and develop Darlington’s built and natural assets and utilize them to promote local culture and heritage
Strategic Aim 2 - Creativity will underpin Darlington’s economic and physical development to ensure a high quality environment and profile
Strategic Aim 3 - Ensure inclusion and cohesion by improving access to cultural activities which promotes safe and healthy lifestyles
Strategic Aim 4 - To advocate the value of culture in raising educational standards and develop an ethos of life long learning by providing opportunities for access, achievement and engagement
Strategy Objectives 2006- 2020
3.24 This review of policy highlights clear themes linking local objectives to national sustainable development policy. This firm policy context combines to create a series of fundamental elements for the Gateway Strategy. The table below illustrates this synergy.
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Table 8 - Gateway objectives in context
National Social Progress Environmental Protection Economic Growth (PPS1) Resource Efficiency Regional Tackling Worklessness Environmental Protection Employment Land (Northern Way, RSS, Skills Connectivity Infrastructure RPG) Employment Growth Image Knowledge based Economy Key Sector Growth Business Advice Enterprise and Business Start Ups Central Park Tees Valley Airport Sub-Regional Tackling Worklessness Quality of Life Diversified economy (CRDP) Town Centres Knowledge based Connectivity Economy Finance and Business Local Educational Attainment Environment Economic Growth (Economic Strategy Inclusive Communities Quality of Life Employment Land Community Plan, LDF) Wage Levels Connectivity Infrastructure
Gateway 2020 Tackling instances of Quality of Life Employment Land worklessness, Town Centres Infrastructure community Connectivity Knowledge based deprivation Image Economy Skills Key Sector Growth Employment Growth Business Advice Wage levels Enterprise and Business Start Ups
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Sector Growth Context
3.25 The emerging sector priorities identified in the sectoral study referred to earlier as follows:
x Health x Logistics x Business and financial services
Other growth sectors can include:
x Creative industries and digital media x Renewable energy (and recycling) x Chemicals x Retail x Tourism and leisure, including food
3.26 Clearly these sectoral opportunities for Darlington cannot be seen in isolation from sector prioritisation and development in the Tees Valley and the wider North East. The future for some industries in the Borough is likely to be driven more by external factors than by indigenous forces and there is some merit in the argument that Darlington should ‘join forces’ with the region and sub-region. Understanding how Darlington might capture growth generated elsewhere in the economy is therefore an important exercise in determining its sectoral opportunities.
3.27 For these reasons it is useful to map sectoral priorities for Darlington, the Tees Valley and the North East. The table below demonstrates direct matches and, more generally, a strong degree of congruence between the priorities at these three levels.
Table 9 - Sectoral Priorities in Darlington, Tees Valley and the North East
Darlington Tees Valley (Vision and CRDP) North East Financial and Business Higher value financial and Knowledge intensive business Services professional services (inc. call services centres/shared service centres) Chemicals Chemicals and process industries Chemicals and pharmaceuticals (Process Industries Cluster) Renewable energy Renewable energy and Energy environmental technologies Civil engineering and Civil and mechanical engineering, construction including engineering services Healthcare and health Health and social care including Health and Social Care sciences expansion of health R&D Digital media Digital media technologies Tourism Tourism Tourism and hospitality Logistics Logistics Defence and Marine Emerging technologies Food and Drink Creative industries Commercial creative
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The Tees Valley
3.28 One of the principal successes of the Darlington Gateway initiative is the prominence it has achieved in sub-regional strategies. These include the Tees Valley Vision and the Tees Valley Partnership’s sub-regional investment plan. The latter will be a key source of funding for Gateway projects. More recently Darlington and the Gateway Strategy are identified among the economic drivers in the Tees Valley City Region Development Programme (CRDP) under the banner of ‘creating sustainable communities’.
3.29 Table 9 above demonstrates that there is a good fit between the sectoral priorities identified for Darlington and those of the Tees Valley. Additionally, the Tees Valley has not identified creative industries as a priority, though it does focus on digital media technologies centred on the University of Teesside.
3.30 Linkages between sectoral opportunities in Darlington and priority sectors for the Tees Valley could potentially centre on health care, chemicals, renewable energy (the new energy economy) and advanced engineering. The expansion of the health care sector in the Tees Valley will be driven by the same factors that will underpin its growth in Darlington. In its own right, the chemicals sector is seen as an economic driver for the sub-region and the wider North East. With the development of major new specialist facilities in recent years and the high value activity at Wilton, there may be scope for Darlington to position itself as a potential location for niche investments. 3.31 The story may be similar for renewable energy, where Darlington’s engineering base could provide the means to capture some of the benefits from the growth of a sector in which Teesside is emerging as an important player. The Tees Valley Engineering Partnership is looking at the future of the engineering industry in the area and this may in time generate initiatives that benefit companies in Darlington. Thus far, few companies based in Darlington participate in the Partnership which aims to bring together businesses in the area to take a lead in plotting the course for the future of engineering and identify and pursue strategic priorities.
The North East
3.32 Sectoral priorities at the regional level which have recently been set out in the Regional Economic Strategy (2006) show slightly less congruence with those of Darlington. Nevertheless, there is direct read across in business services, chemicals, health, energy and commercial creative. Furthermore, the RES identifies 3 ‘pillars’ as the strategic framework for support to science and technology based industries. These are Healthcare and Health Sciences; Energy and the Environment; Process Industries. The relevance to the current sectoral strengths of Darlington and the priorities it has identified as potential opportunities to pursue is clear and these are discussed below.
3.33 The implications for Darlington in identifying and capitalising on its sectoral opportunities are twofold here. First, it may be necessary to consider how sector development activity in Darlington is connected to existing cluster support. For example, ONE North East, the North East Process Industries Cluster (NEPIC) and Tees Valley Regeneration have backed development by the Biofuels Corporation on Teesside. In view of NEPIC’s support for activity in the area, how might companies be signposted towards sectoral development opportunities? Second, with One North East committed to restructuring and refocusing its
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sector/cluster support activities, Darlington may want to consider how it might best position itself to secure backing for those sectoral opportunities which contribute to the objectives of the regional economic strategy.
Gateway Strategy – Growth Sectors
3.34 This review of sub-regional and regional growth sectors confirms a strong fit between higher level strategies and those proposed for the Gateway Strategy.
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SECTION 4: DARLINGTON GATEWAY – A STRATEGY FOR 2020
Introduction
4.1 This section of the Gateway Strategy draws together the agendas established through baseline work undertaken as part of this project and that established by regional and local policy to propose a series of focus themes for the updated Gateway Strategy. These relate closely to the scope and focus of work undertaken as part of this project. They will need to be incorporated into wider strategies outlined notably in the Community Strategy, the Economic Strategy and the emerging Local Development Framework. However there is a high degree of alignment both in terms of priorities and scope with established strategies.
A Gateway Strategy for Darlington
4.2 In the light of the preceding assessment a structure for the up-dated Gateway Strategy can be developed. This is centred round:
x A Vision
x Themes
x Objectives and Actions
4.3 The Vision established in the Economic Regeneration Strategy is carried forward and refined for this Strategy.
"To develop a more enterprising, vibrant and diverse local economy, situated in a high quality accessible and sustainable environment, that will attract investment to the region, share prosperity and create better employment opportunities for all.’’ Note: additions, amendments underlined
4.4 The proposed focus themes for the strategy are as follows:
1. Enhancing the Quality of Life offer (with a particular reference to the town centre)
2. Enhancing accessibility to and within Darlington
3. Maintaining and developing the employment land portfolio to meet the requirements of all sectors of the economy
4. Supporting the Growth of High Value Sectors
5. Spreading the Benefits of Growth to All
6. Raising the profile of the Darlington brand
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Darlington Community Plan
3.13 The Darlington Community Plan is centred on four visionary goals and eight connecting themes. The Visionary goals are:
x An area creating and sharing prosperity
x A location for learning, achievement and leisure
x A place for living safely and well
x A high quality environment with excellent communications
3.14 The complementary themes are:
x Improving the local economy
x Raising educational achievement
x Promoting community safety
x Enhancing the local environment
x Promoting inclusive communities
x Stimulating leisure activities
x Improving health and well-being
x Developing an effective transport system
Darlington Economic Regeneration Strategy 2004 – 2009
3.15 The Darlington Economic Regeneration Strategy provides a clears basis for the an updated Strategy. It establishes an economic regeneration vision as follows:
"To develop a more enterprising, vibrant and diverse local economy, situated in a high quality environment, that will attract investment, share prosperity and create better employment opportunities for local people"
3.16 The Economic Regeneration Strategy is centred on a series of themes, performance on which will be measures against four key indicators.
3.17 The key themes to achieve the overall vision of this strategy are:
x Support the economy
x Support new and existing businesses
x Support people into employment
x Create a quality environment for economic growth
x Promote Darlington as a quality location for business and tourism
3.18 The overall performance of the Darlington economy will be monitored against four key strategic outcomes:
x Increased levels of employment
x Higher wage levels
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4.5 To reinforce the value of these themes, it is useful to compare them against the themes and objectives of the Economic Regeneration Strategy. This review, set out below indicates a high degree of alignment with current policy.
Economic Regeneration Strategy Gateway Strategy Themes Themes Theme: 1Support the Economy Supporting the Growth of High Value Sectors Enhancing / Maintaining and developing the employment land portfolio Theme 2 Support New and Existing Businesses Spreading the Benefits of Growth to All Theme 3 Support People into Employment Spreading the Benefits of Growth to All Theme 4 Create a Quality Environment for Enhancing the Quality of Life offer Economic Growth Maintaining and developing the employment land portfolio Accessibility Theme 5 Promote Darlington as a Quality Raising the profile of the Darlington brand Location for Business and Tourism Quality of Life
4.6 To further confirm the consistency of themes and the approach to considering outcomes and indicators it is useful to consider the proposed themes against relevant outcomes and themes referred to in the Community Strategy.
Gateway Strategy Community Strategy Community Strategy Themes Outcome Indicator Enhancing the Quality of Increased levels of Proportion of people of working age in Life offer employment employment Unemployment by age and duration Supporting the Growth of Higher Wages Average weekly earnings High Value Sectors % of benefit claimants
Spreading the Benefits of Growth in business start ups VAT registered businesses Growth to All Number of local jobs
Spreading the Benefits of More investment retained % of goods and services procured in Growth to All the area
Spreading the Benefits of Narrowing the inequalities Proportion of population who live in the Growth to All gaps wards that rank most deprived 25% in England Proportion of under 16s who live in low income households Enhancing the Quality of Building Community % residents satisfied with the local area Life Confidence % residents who consider there local area is getting worse Enhancing the Quality of Wider participation in cultural % of residents who have participated in Life activities a cultural activity Numbers attending and proportion reporting a positive experience at key local facilities Enhancing accessibility Increased use of public Number of passenger journeys per year transport Enhancing accessibility Improved accessibility Indicators not directly relevant
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4.7 These focus themes for the Gateway Strategy are therefore taken forward in the next section where detail is provided on the projects and outcomes which contribute to each theme.
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SECTION 5: DARLINGTON GATEWAY – A FRAMEWORK FOR SUSTAINABLE ECONOMIC GROWTH
Introduction
5.1 The preceding section of the report identified the focus themes for action in taking forward the Gateway Strategy to 2020. This section of the report considers these theme area in more detail, confirming the links between the themes, objectives and envisaged outcomes. The component projects under each theme are also considered. The following section of the report draws the strategy together into a prioritised action plan, considering in more detail delivery and funding mechanisms.
Gateway Themes
5.2 Before considering the Gateway themes it is important to stress that running through the themes is a consistent emphasis on sustainable economic development and focus on the key growth sectors of health, logistics and business and financial services and the complementary growth sectors of creative industries and digital media, renewable energy (and recycling), chemicals, retail and tourism and leisure.
5.3 The Gateway Strategy Themes to 2020 are as follows:
1. Enhancing the Quality of Life offer
2. Maintaining and developing the employment land portfolio to meet the requirements of all sectors of the economy
3. Enhancing accessibility to and within Darlington
4. Supporting the Growth of High Value Sectors
5. Spreading the Benefits of Growth to All
6. Developing the profile of the Darlington Brand
5.4 These themes are largely complementary and necessarily have a significant degree of crossover. This reflects an integrated strategy. Notwithstanding that there are key priorities and catalytic projects which unlock further opportunities. Priorities are considered in this section of the report and confirmed in the Action Plan.
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Theme 1 – Quality of Life
Quality of Life – Theme summary Core Objectives Core Projects Core Outcomes
To improve quality of life Development of the Eastern Enhanced town centre offer To enhance the Darlington brand edge of the town centre Growth in retail, leisure and related To foster balanced spatial growth Cultural Hub sectors To create opportunities for economic Darlington Markets Additional floorspace for ‘town development in key sectors Central Park centre’ office based services To promote sustainable travel patterns Commercial Street Enhanced creative industries infrastructure To enhance further civic pride Enhanced education and related Independent retail sector infrastructure Feethams/Beaumont Street Enhanced market profile Enhanced local accessibility to retail and leisure services Greater graduate retention Increase in business start-ups Increase in tourist trips
Overview
5.5 Quality of Life is an increasingly central part of the investment decision making process, be it corporate, householder or employee. Darlington performs well in many quality of life areas, with a pleasant environment and good housing, local services, schools and so on. However, the town centre has failed to keep pace with progress elsewhere in the Borough and continues to under-perform.
5.6 This challenge for the town centre was highlighted through the 2003 Gateway Framework, the development of the ‘New Pedestrian Heart’ scheme and associated retail development proposals.
5.7 A strong, mainstream retail offer is envisaged to be maintained and developed through current initiatives. However there remains a concern over other key aspects of a quality town centre offer, namely the quality and depth of the cultural and leisure offer and the strength of the independent / ‘leisure’ retail sector. The challenges faced by Darlington market, a central feature of the town centre environment is an important indicator in this respect. Similarly there are currently gaps in the town centre offer which limit is on-going potential and its linkages with other key assets, namely Bank Top railway station and Central Park. The extent of town centre living (important in underpinning vitality, diversity and quality) and constraints on town centre business floorspace are further opportunities.
5.8 A continued emphasis on the town centre is therefore proposed for the Gateway Strategy to 2020. The further development of a strong town centre, made central to the regeneration of the Borough as a whole, with a full range of cultural and leisure opportunities supported by a
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quality environment and creating opportunities for business development is critical to the development of the Darlington brand and the strengthening the Borough’s market position.
5.9 To deliver on these objectives and potential is it proposed to proactively support the expansion of the town centre (but not its retail core) eastward encompassing Bank Top railway station, developing improved links with Central Park and critically the fostering of a Creative Hub around the Civic and The Forum in the Parkgate / Borough Road area. A further later phase of expansion will be to the north east of the town centre, taking the opportunity to regeneration and develop areas around Valley Street North area and support the important heritage asset of Northgate (a key element of the independent retail and tourism offer).
5.10 The expanded town centre will focus on mixed use development as the key driver with an emphasis on office and workspace accommodation creative industries, small scale leisure and retail
5.11 As part of this approach to the town centre, it will remain important to build on the successes of New Pedestrian Heart through work to revitalise Darlington Market and deliver Central Park and Commercial Street.
Projects
Town Centre Eastern expansion
5.12 The opportunity to develop the town centre lies to the east and north east of the existing town centre. The priority focus area can be defined lies between Victoria Road in the south to the area around Parkgate / Borough Road, including the Civic Theatre and the Forum. To the north further opportunities for development towards Chestnut Street to the east of Northgate, including areas around Valley Street North. The site is in multiple ownership and comprises a range of uses, including some key public infrastructure.
5.13 An appendix to this report deals in more detail with the nature of the development opportunity.
5.14 The town centre development project enables existing and emerging resources to be capitalised on, whilst contributing significantly to the Darlington brand and creating additional opportunity for creative and business and services industries, both important growth sectors. The strategy can draw together the Railway Station, Central Park and the town centre, the whole representing even more than the sum of these important assets. The pivotal role of the project as part of the Gateway Strategy is underlined by its potential to contribute strongly to all core Gateway themes, as underlined below:
Themes Project Opportunities
Quality of Life Enhanced cultural offer, improved environment
Enhancing accessibility to and within Darlington Stronger links with the railway station, improved highway network
Employment land portfolio Creating opportunities for creative industries and town centre business and services development
Supporting the Growth of High Value Sectors Fostering creative and related industries, creating town
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centre business services development
Spreading the Benefits of Growth to All Opportunities in an accessible l location, particularly well related to some relatively deprived communities
Raising the profile of the Darlington brand Developing the town centre offer and environment
5.15 Core elements of project include:
a. Fostering a Cultural Hub in the Borough Road area, centred around the Civic Theatre and The Forum with the potential to relocate the Darlington Arts Centre
b. Phased development of the land between Park Place and St Cuthbert’s Way for a mix of uses, including residential, and office with small scale retail and leisure
c. Improvements to the Darlington station and its approaches
d. Public realm improvements on key routes including Parkgate and Victoria Road
e. The phased redesign of St Cuthbert’s way between Victoria Road and Northgate to reduce its barrier effect. This is be associated with proposals for improved cross town link (the latter is considered as part of the accessibility theme)
f. The opening up of the River Skerne to create a quality backdrop to development and civic space.
g. Extending the proposed Tees Valley Metro light rail system into the town centre from Darlington Station.
5.16 The strategy is clearly closely linked to other potential Town Centre redevelopment opportunities.
Cultural Hub – Borough Road
5.17 The creation of a cultural hub in the area around Borough Road and the Civic Theatre is a central part of the eastern expansion of the town centre. The strategy has a firm basis in both in terms of existing assets in this area, new opportunities for investment in the area and established strengths in Darlington. Key to these initiatives are the existing Civic Theatre and Forum Music Centre and the future development of the Darlington Arts Centre.
The Civic Theatre
5.18 The Civic Theatre (formerly the Hippodrome) on Borough Road is a key feature of the cultural landscape in Darlington. It accommodates ‘mainstream’ theatre and musical shows from around the country. It also programmes a range of music and comedy events. The Civic is one of the Town’s foremost assets and serves a very wide area including the Yorkshire Dales, The North Yorkshire Moors, The Lake District and East Coast.
5.19 The Edwardian building is an important local landmark, but front-of-house and back stage facilities are very limiting. Also, the theatre fronts onto a very busy street with a narrow pavement, and is somewhat isolated from the Town Centre.
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The Forum
5.20 Opened in 2004, The Forum is the only identified independent cultural organisation of any real note in the town. The centre is a privately developed and operated music venue, recording studio, rehearsal and meeting place for local musicians. Developed by local entrepreneur the building is leased from the Council on commercial terms. The business plan focus to date has been developed on the basis of becoming a key ‘leisure’ facility for the town and surrounding area.
5.21 The target audience has been anyone in the area who has an interest in playing and creating music or visiting live music events, and is this respect ‘hobbyist’ musicians are welcome, regardless of age or background. The centre has a 170 capacity venue and associated bar/café, which attracts an increasing audience and reputation to its mainly rock/modern music programme.
5.22 More recently, the Forum has started to engage more fully with the training and education agenda, especially with regard to the involvement and training of young people. This now involves various Youth Services, Schools and Disabled Groups, such as First Stop, who use the facilities as part of their Youth Development Programme. These are helping to develop a clearer understanding at the centre of music therapy as a tool for working with various communities. Furthermore, the Forum is now focussing on the delivery of formal education contracts and course modules, particularly for the FE sector. Newcastle College of Performing Arts start a music technology module there in September 2006, and discussions are ongoing with both Queen Elizabeth Sixth Form College and Darlington College concerning the delivery music and performing arts curriculum based courses.
5.23 The Forum is also becoming a strong base and production facility for professional musicians and technicians, and attracts such custom from all over the sub region, including North Yorkshire. The Forum is starting to act as a focus for organisations to cluster around it, such as the Northern School of Contemporary Music, which is based at the Centre and uses the studio facilities in the delivery of its fully validated training programme.
5.24 However, there is very little formal synergy between the Forum and other cultural venues and it does not appear on any strategic map within the Council. The Cultural Industries daughter document to this study provides a set of proposals to help strengthen The Forum’s role and viability.
The Darlington Arts Centre
5.25 The Centre runs a strong programme of events including exhibitions, jazz, folk and R&B music, theatre and comedy. Similar to the Civic Theatre, the Arts Centre has built up a commendable, long standing and loyal audience with high attendance averages for its programme and is generally well regarded in the town and region. In addition, the Centre has a very active education and outreach programme, with a specific commitment to community arts and youth training. A full range of regular classes is on offer ages 4 – 21 years with an interest in drama, dance, arts and crafts. The Centre also acts as the main base and ‘umbrella’ for various theatre, drama and arts companies and groups in the Town, some of which are formal sub tenants.
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5.26 The building is now showing signs of significant wear and tear, and a refurbishment programme is currently on site funded by the Northern Rock Foundation, Arts Council England, CDENT, Tees Valley Investment Fund and Darlington Borough Council. The refurbishment scheme will include improving access and storage, providing a new 100-seat studio theatre to extend and develop the programme of work for and by young people. This will also be available for rehearsals and free-up time in the heavily booked main theatre. A further phase will include external works to transform the approach to the Arts Centre, creating a plaza and outdoor performance and café the venue reception and a small community gallery.
5.27 However, the long-term future of the Arts Centre within this building requires further examination, both in terms of suitability and tenure arrangements.
5.28 An opportunity exists to base some of the wider strategic cultural planning in the Town around the future of the Arts Centre. It is understood that the current building on Vane Terrace could be vacated by 2011 by exercising an existing covenant on its tenure. Therefore, the Council has a great opportunity to address options for the future building and location of the Centre, and it can address the need and opportunity to secure bespoke arts centre facilities that are fit for modern purpose to serve the Town well into the future.
5.29 Given the location of the Civic Theatre and the Forum, both on Borough Road, and wider Gateway proposals referred to above concerning the extension of the Town Centre to the east, there is scope and justification for examining the potential to develop a new arts centre building in the same area, forming an identifiable and physical focus for the Town’s key cultural organisations and facilities. The outline proposal for such a move fuelling the creation of a ‘Cultural Hub’ or ‘Quarter’ is discussed below, but a fundamental part of that process will be in determining if a new, relocated Arts Centre could be part of the mix.
5.30 Therefore, it is recommended that the Borough Council consider the commissioning of detailed feasibility study to examine the future options for the Arts Centre. To achieve this, the Council will initially need to establish the ‘client vision’ and strategic context for the project. Such a vision does not have to be definitive, as the process of working on the feasibility study should help define it, but it should scope out the key targets and aspirations of the project.
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5.31 The outline approach to development and feasibility are considered in an appendix to this report. Common indicators of successful cultural hubs or quarters are as follows:
The Place Characteristics of Cultural Quarters / Hubs2
Activity Legibility
Diversity of primary and secondary land uses Amount and quality of public space
Extent and variety of cultural venues and events Active frontages
Presence of an evening economy, including café culture Meaning
Strength of small-firm economy, including creative Important meeting and gathering spaces businesses
Access to education providers Sense of history and progress
Built Form Area identity and imagery
Fine-grain urban morphology Knowledgeability
Variety and adaptability of building stock Design appreciation and style
Permeability of streetscape
Darlington Markets
5.32 King Sturge and New Markets Solutions were commissioned by Darlington Borough Council to undertake a study that provided recommendations on how best to secure the long-term viability of the Covered and open markets.
5.33 The study has concluded that Darlington’s Markets comprise a physically and culturally longstanding element of the Town Centre that must be protected and enhanced for their own value and for their contribution to the wider offer of the Town. However, the Markets are failing to maximise their potential.
5.34 The strategy has developed an overarching vision as follows: By 2010 Darlington’s Markets will provide a refreshed markets infrastructure that is distinctively attractive to all sectors of society with a high quality, differentiated and speciality customer offer that is readily accessible to all.
5.35 As part of that strategy it is understood that Darlington Borough Council are currently considering option for the markets around the following themes:
x Improving Infrastructure and Offer x Reinforcing Identity x Enhanced management and accessing additional resources x Ensuring the markets support the development of the town as a whole
2 ‘Cultural Quarters as a Mechanism for Urban Regeneration’, Dr John Montgomery, Urban Cultures, Carfax Publishing 2003
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Central Park
5.36 The Central Park development comprises around 30 hectares of land, largely brownfield located close to Darlington Station. It is a mixed use development which will incorporate high specification office space, hotel/conference facilities, leisure and green spaces and a sculpture park. It also accommodates the new Darlington College campus.
5.37 To maximise the potential of Central Park and reinforce its complementary relationship with the town centre it will be important to develop and enhance links between the two locations and the Railway Station. It will also be necessary to allow for any extension of the proposed Tees Valley Metro system to the town centre.
Commercial Street
5.38 The development of Commercial Street will see £80 million invested in a new shopping complex to considerably strengthen the town centre’s retail offer. The development will include space for a new department store together with other units primarily intended to attract new investment from retailers not yet present in Darlington. It will also incorporate a multiplex cinema, bars and restaurants along with large scale car parking. A planning application for the development is due to be submitted in September 2006 and the project is expected to be completed in 2009.
5.39 The scheme is important to the process of improving the quality of life in the town and increasing its appeal to potential investors. The retail sector benefits from the locational advantages of the town and the Commercial Street development will further raise the profile of a sector that is currently strong but is not as well served by national multiples as towns of a similar size. Despite demand from the major multiples, Darlington has not been able to provide the type of accommodation they seek. The scheme will see significant increases in leisure and retail visits to the town.
Independent Retail Sector
5.40 Darlington Town Centre has a strong independent specialist sector which, along with the markets and the physical layout of the centre, can provide characteristics which differentiate it from others and attract visitors and shoppers.
5.41 The Council is working with the Town Centre Board to develop and implement an Independent Retailers Strategy which aims to:
1. attract more independent retailers to establish in Darlington; and
2. support the growth of those already established
5.42 Strengthening this sector is an important component of enhancing quality of life in the town centre and its contribution to attracting economic growth to Darlington.
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Feethams / Beaumont Street sites
5.43 The Town Centre Development Strategy ‘Adding to Quality’ identifies a clear programme for the physical development of the town centre. The next key sites, following Commercial Street are those around Feethams and Beaumont Street, currently occupied by car parks and a bus garage. Development of these sites provides the opportunity to:
x balance the town centre, providing an attraction at the south-east end of the town centre, to draw people past the markets and across the Market Square, counterbalancing the attraction Commercial Street will provide in the north-east sector of the town centre;
x in this way support the growth of the markets;
x stitch the town centre together with the surrounding area better, improving pedestrian and cycle access from residential areas through into the rest of the town centre across the ring road;
x provide a high quality of urban design at this key gateway to the town centre from the ring road;
x make more of the frontage form to River Sherne
5.44 The attached diagram illustrates how these sites from part of an important gap in the ring of attractions in the town centre, ‘glued’ together by the ‘Pedestrian Heart’ scheme. Their development, together with the greater ease of movement provided by the Pedestrian Heart, should improve the functioning and connections between the various part of the town centre, thereby increasing the amount of time visitors stay in the town centre and their spend.
5.45 The Council is about to start work with the Town Centre Board and other partners on an options appraisal and planning brief for the development of this area and this will be an important project to for the longer term development of the town centre.
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Theme 2 – Accessibility
Accessibility – Theme summary Core Objectives Core Projects Core Outcomes
To maintain and enhance accessibility Darlington Eastern Transport Reinforcing of the Darlington offer To maintain a strong, flexible supply of Corridor Enhancing business efficiency labour A66(T) Tees Valley Gateway Underpinning labour supply To reinforce Darlington’s strategic Environmental improvements to Promoting use of sustainable accessibility for industry St Cuthbert’s Way means of transport, in and to To enhance links, including public Walk and cycle routes to town Darlington transport with the wider region centre from Victoria Road, Addressing pockets of deprivation Valley Street and Haughton To promote more sustainable forms of Enhancing quality of life through Road. travel management of traffic congestion To enhance accessibility to key Tees Valley Metro employment locations Tees Valley Connect To enhances accessibility to jobs and Tackling Congestion training for deprived communities
Overview
5.46 The accessibility of Darlington was a key driver for economic growth identified in the Gateway Framework 2003. This remains the case. Whilst Darlington enjoys good transport links the challenge to 2020 will be maintain and enhance competitive advantage in an increasingly competitive and global market whilst managing traffic congestion by a mix of physical improvements and facilitating sustainable travel patterns, so improving the quality of life.
5.47 Challenges for accessibility into and around the Borough going forward comprise:
x Increasing traffic volumes on main routes causing congestion at peak times, both within the town and from outside the Borough
x Potential limits to economic regeneration in future, due to capacity of existing local road network, including the adjacent trunk road network
x Some transport facilities are dated and no longer meet modern expectations or requirements
x The compactness in urban and town centre area resulting in few opportunities for new physical infrastructure
x The growth in air traffic;
x The growth in key economic sectors;
x The growth in employment and potential growth in commuting; and
x To facilitate the expansion of the town centre.
5.48 The Second Local Transport Plan 2006 – 2011 establishes a series of projects to address accessibility issues, not least the Darlington Eastern Transport Corridor. It also identifies a number of physical measures to tackle the growing problem of traffic congestion. Of relevance
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to the Gateway Strategy are proposals to increase the junction capacities of the Ring Road and improvements to Haughton Road. Work has previously been implemented to improve travel conditions for all along Parkgate and Yarm Road. Additional proposals are being brought forward to address issues of accessibility through travel planning with employers and schools.
Projects
Darlington Eastern Transport Corridor
5.49 This £12.5m single carriageway road links the A66(T) to Haughton Road to the east of the town, enabling the implementation of plans for the economic regeneration of this area by providing more capacity in the local transport network. The scheme also includes part of National Cycle Route 14 between Bishop Auckland and Middlesbrough, thus improving access to employment opportunities locally by foot, cycle, bus and car. The scheme has been approved by the Department of Transport and completion is scheduled for 2009.
A66(T) Tees Valley Gateway
5.50 The Darlington Eastern Transport Corridor is seen as a precursor to the realisation of the recommended proposal contained in the Tees Valley Gateway Study. The proposal seeks to provide better access to the Tees Valley, reduce traffic congestion and improve safety on this section of the A66(T) and enable economic regeneration as set out in the Tees Valley Vision. The proposal, for improvements including a dual carriageway section, has been included in the forward plan of the Interim Regional Transport Board after 2011. Further work is being considered, so that the scheme can be brought forward for approval by the Board and funding secured. The scheme will be delivered by the Highways Agency, as the responsible authority for this trunk road with support from the Council.
Darlington Station
5.51 The proposed Tees Valley Metro scheme will result in significant changes to the physical layout of Darlington Station and the way in which people use it. The proposal seeks to convert the existing Darlington to Saltburn railway line to light rail operation, thus reducing journey times and providing opportunities for a better service to major destinations such as Durham Tees Valley International Airport and, by a subsequent extension, to Darlington town centre via Central Park. The outline proposal has been submitted to Government for their consideration. Physically, the scheme will involve the construction of a new platform to the east of the East Coast Main Line, thus giving rise to a need to improve pedestrian/cycle links across the main line (both for rail users and others) as well as providing more transport facilities at Garbutt Square with links to Central Park.
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Buses
5.52 Darlington’s Second Local Transport Plan sets out a range of physical measures to help buses including a programme of bus stop improvements. This physical works are being delivered in partnership with better timetable information and promotion delivered as part of “LocalMotion” – Darlington’s Sustainable Travel Demonstration Town project3. In the sub-regional context, the £37m Tees Valley Connect scheme seeks to implement a step change in bus transport, both in Darlington and elsewhere in the Tees Valley. In this, the scheme seeks to improve accessibility to employment and other destinations, for journeys inside, from and to the Darlington urban area helping tackle traffic congestion. Super Core and Core bus routes will be the basis of this improvement, with each type of route receiving a package of improvements designed to increase patronage and reduce journey times. In Darlington, bus routes 20, 21, 25 (via Parkgate) and 23 (via Victoria Road) are scheduled for improvement thus giving an opportunity to integrate them better with rail services from Darlington Station. The proposals are being worked up in greater detail with an application for approval scheduled for July 2007.
Walking and Cycling
5.53 Darlington is one of six Cycle Demonstration Towns nationally and is implementing a package of physical improvements for cyclists – that also bring benefit to pedestrians, co-ordinating with the work of “LocalMotion” in providing local people with individual travel advice. Plans for this area of the town include cycle routes along Valley Street, Haughton Road (via Darlington College) and Victoria Road (to Darlington Station). Work is also being delivered to improve directional signage for pedestrians and cyclists, showing time taken rather than distance.
DEVELOPER CONTRIBUTIONS EXAMPLE – Warrington Borough Council
Warrington Borough Council has an interim supplementary planning document dealing with planning obligations. This was approved by Council in September 2005. This sets out a number of areas where planning contributions may be required and on what basis. Transport is one identified area.
The SPD notes that all development that results in a net increase in trips has a direct impact on the effectiveness of the transport network and is detrimental to the objective of reducing traffic growth.
The SPD notes that contributions will be sought where development generates an impact, either directly or cumulatively, on patterns of travel on the Borough wide transport network. Contributions are to support the implementation of the emerging Local Transport Strategy in the Council’s draft Local Transport Plan 2 (2006 – 2011). The SPD goes on to say that the Local Transport Plan only brings in limited (capital) funding for transport improvements, and these resources are to be directed towards dealing with existing transport problems and demand.
3 Darlington is one of three Sustainable Travel Demonstration Towns nationally, with a remit to implement and evaluate the effect of marketing, individual travel advice and other measures that help people use the transport system more sustainably.
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The SPD notes that the annual level of expenditure on LTP1, without planning for traffic growth and excluding maintenance was £6.6 million. It is assumed that the planned growth in the Warrington UDP would equate to around 12,460 additional daily trips on the network per year, totalling an additional 249,200 trips every day by the end of the 20 year UDP period.
The SPD goes on to calculate that the cost of measures and initiatives for the wider transport network to manage this growth in trips based on the average annual expenditure in LTP1, i.e. £6.6 million, therefore equates to £530 per daily trip. Based on this the SPD suggests that any obligation will be simply determined as the daily increase in trips over and above any existing movements multiplied by £530. This applied to all developments and is being accepted by the development industry.
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Theme 3 – Employment Land Portfolio
Employment Land Portfolio – Theme summary Core Objectives Core Projects Core Outcomes
To maintain a strong portfolio of quality Develop / enhance key sites Strong, sustained levels of site for all sectors Creation of town centre office employment land take-up space through eastward Sustained levels of employment expansion of the town centre growth A choice of available sites for industry A phased approach to employment land development
Overview
5.54 The Employment Land Study (2006) has been considered earlier in the report and can be read in conjunction with the Gateway Strategy. In overall terms the Employment Land Study confirms that there is a robust supply of employment land in the Borough to 2020. However there is a need to encourage provision in the following areas:
x Hybrid office/workshop units
x Small office units
x Standalone pavilion style office units
x Managed workspace
x Larger office buildings;
x Larger, modern industrial accommodation
5.55 In considering the current and future supply, the Employment Land Study confirms that a series of ‘key strategic sites’ will accommodate the larger proportion of employment growth in the Borough. These key sites reflect the growth sectors identified in this Strategy and offer a range of development opportunities. These sites are as follows:
Areas of Opportunity for Mixed Use, Offices and Creative Industries
Valley Street North, to be considered an important ‘area of opportunity’.
Borough Road – a second ‘area of opportunity’ connecting to the Valley Street North area and Central Park.
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East of Town Centre/Parkgate/Feethams / Bus Station. To be considered as a prime central office location which joins the retail core with the new Valley Street North ‘Area of Opportunity ‘ and the train station.
Safeguarded as a Future Long-Term Employment Site
Yarm Road North. - to be considered as a future long term development site. Further feasibility and master planning will be required to consider, amongst things the access from the Eastern Transport Corridor.
Infill Development within Established Employment Areas
Yarm Road Industrial Estate, Yarm Road North (Morrisons), The Forge /Cleveland Street Albert Hill. Yarm Road North (Marchday)/Lingfield Point.
Airport Related Activity
Durham Tees Valley Airport (North) Durham Tees Valley Airport (South) Proposed Business Park, Durham Tees Valley Airport.
To provide for airport related activity. Given developer involvement there is no need for publicly sponsored feasibility or master planning.
Distribution/Large Scale Investors
Faverdale East (St Modwen), Faverdale Extension (North of Argos) Faverdale Industrial Park Faverdale Reserve.
These sites require further feasibility and should be considered together in a phased response to market demand.
Prime Office Development
Morton Palms Central Park.
These sites have planning permission; development is underway at Morton Palms, Tees Valley Regeneration is currently selecting a preferred bidder for Central Park.
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Other Infill and Brownfield Sites
McMullen Road West Blackett Road/Red Barnes Way.
These sites offer the best in market and sustainability terms for providing for medium-long term mixed employment sites.
Projects
5.56 As noted previously Darlington has a robust supply of land, established in part through the Gateway Strategy 2003. The emphasis going forward should be on effectively managing and bring forward the current supply whilst working in the medium / long terms to bring forward additional sites to target key emerging gaps, notably town centre office.
5.57 Based on this approach the key projects under this theme are:
x Incorporating the findings of the Employment Land Study and this Gateway Strategy in the Local Development Framework through appropriate Development Plan and Supplementary Planning Documents.
x To refine and articulate the development strategy for the following sites
1. Valley Street North;
2. Borough Road
3. East of Town Centre / Parkgate
4. McMullen Road West, Blacketts site
5. Faverdale
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Theme 4 – Supporting the Growth of High Value Sectors
Support High Value Growth Sectors – Theme summary Core Objectives Core Projects Core Outcomes
To create the conditions for the Partnership working to match High value companies expand growth of high value businesses. training provision to needs of operations in Darlington (targets To attract high value businesses to companies and bolster for turnover, size of workforce?) locate in Darlington. employer engagement. An increase in companies Review of skills and training locating new operations in the provision and follow up action Borough. on training provision. A rise in average wage levels. Explore potential to develop specialist training facilities for engineers in Darlington. Assess long term demand for and provision of small starter units (industrial and office based) and ensure supply of high quality premises.
Overview
5.58 Action to support the growth of high value sectors is critical to the long-term economic prospects for Darlington. The Borough has a comparatively small but solid base of businesses operating in those knowledge intensive sectors that can deliver increased GVA, higher paid jobs and have wider catalytic effects on the economy of the area.4 These sectors include:
x Engineering and manufacturing – reflecting the strong base in project management, consultancy, some production (eg. AMEC, CTC Marine).
x Business services (eg. Capita, small law firms, accountants).
x A modest number of small ‘niche’ businesses (eg. computer software, specialist chemicals companies).
x Micro-business (eg. training consultants, management consultants, marketing specialists). 5.59 Business support – specifically skills and training – provide the core projects for this theme. This responds to the acknowledged need for the Borough to ensure a labour supply with the appropriate skill sets, attract more graduates to work in the area (by offering suitable positions) and tailor the provision of courses and work-based learning to the requirements of employers. At the same time, further steps are necessary to increase engagement with employers.
4 Analysis by Local Futures Group has identified a Knowledge Based employment group which can be used as a proxy for high value sectors. These are sectors in which an average of 25% or more of the workforce are qualified to graduate level. For the private sector, the list includes the following SIC based sectors: Oil & gas extraction (SIC 11), Publishing, printing, reproduction of recorded media (22), Manufacture of petroleum/nuclear fuel (23), Manufacture of chemicals and chemical products (24), Manufacture of office machinery and computers (30), Radio, TV & equipment manufacture (32), Manufacture of medical, optical and precision instruments (33), Manufacture of other transport equipment (35), Supply of electricity & gas (40), Water supply (41), Air transport (62), Financial intermediation (65), Insurance services (66), Other financial services (67), Real estate activities (70), Computer and related activities (72), Research and development (73), Other business activities (74), activities of membership organisations (90) and Recreational, cultural and sporting activities (92).
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Darlington has proved itself adept at bringing employers on board but there is acknowledgement that more businesses should be involved, and that the Borough’s companies need to be better plugged into networks in the Tees Valley and the wider region (eg. Tees Valley Engineering Partnership).
5.60 There is also a physical element to the theme. A balance needs to be struck between property to attract larger businesses (either new or existing) with premises suitable for smaller scale operations and start-ups. Businesses consulted during the course of the Gateway study pointed to the good supply of high spec office space, but some highlighted a need for new, smaller units (eg. law firms looking to expand), while some specialist manufacturing businesses indicated a shortage of industrial units (though the provision of new flexible workspace at Lingfield Way will meet demand in the short term). The generic property needs of high value businesses clearly vary significantly – ICT companies tend to demand small premises with broadband facilities and other technological infrastructure. Creative businesses tend to favour town centre sites. The trend in advanced manufacturing and engineering is towards smaller units. Incubator and grow on space are seen as important to servicing demands from spin outs. Although Darlington does not have an HE facility of the type that usually provides a flow of start ups, there may be some potential to for spin outs from established companies based in the Tees Valley.
5.61 The importance of an emphasis in business support is underlined by a number of factors, including:
x Suitably qualified staff is a key asset for high value businesses and a major pull factor.
x Some existing businesses need targeted assistance to help sustain operations in Borough or expand on the back of full order books.
x Action to expand the presence of high value businesses would have a direct impact on wage levels in the Borough. Raising wage levels is a key indicator in both the Community Strategy and the Regeneration Strategy.
x Capitalises on Darlington’s recent record in attracting financial and business services to locate in the Borough and its prime position in the North East to capture further investment in these sectors.
x Builds on success of high value businesses in securing contracts through connections to energy generating specialisms in Tees Valley.
x Potential to deliver higher rate of business start ups, where Darlington lags behind national average but ahead of the other Districts in the Tees Valley. Perception is that more could be done to promote the Borough as a good location to start a business.
x Sectoral opportunities report indicates average income of those who work in Darlington is below average, but average incomes of those who work outside the Borough are significantly higher.
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Projects
5.62 The starting point needs to be stepping up of dialogue between the Borough Council, businesses, training providers (Darlington College), the Learning and Skills Council, One North East and Job Centre Plus to make more systematic the process of matching employer need to training provision.
5.63 Comprehensive and regular assessment of short, medium and long-term provision of training and employer demand to enable the strategic planning of skills development and training provision. Reviews should also focus on the supply of training including the curriculums offered by Darlington College, University of Teesside etc and work based learning provision. On the basis of this assessment, training providers could be approached to discuss the potential to take further steps to tailor provision to employer demand.
5.64 There may also be scope for follow up work on a proposal to develop work based training facility for engineers. This would involve ‘buying in’ training from university or specialist providers.
5.65 Encourage employers to increase take up of support from regional cluster development programmes. As ONE modifies its sectoral support framework this is an important time to work with companies to raise awareness of development programmes. The focus should be the priorities identified in the new RES (eg. energy industry, process industries) where Darlington already has an established reputation and is located in close proximity to the core of the cluster.
5.66 Work with partners (eg. property developers, One North East) to provide a quantity and quality of property required by support high value businesses. Specifically, this should include strategic planning for the medium and long term supply of high spec industrial and office workspace for start ups. This could include sectoral assessments of demand for specialist premises (eg. ICT facilities).
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Theme 5 – Spreading the Benefits of Growth to All
Spreading the Benefits of Growth to All – Theme summary Core Objectives Core Projects Core Outcomes
To tackle economic inactivity in the Support, expand and/or extend A reduction in economic inactivity Borough’s disadvantaged communities. specific successful initiatives rate in target wards To ensure that the growth of (eg. Central into Work, An increase in the number of Darlington’s economy generates Lascelles into Work, Targeted people of working age in employment opportunities for all the Assisted Employment, Building employment Futures). Borough’s residents. A fall in unemployment levels by Promote work based learning age and duration and raise the profile of existing A reduction in number of people of programmes (eg. Train to working age claiming benefits Gain). An increase in average wage Develop and promote levels apprenticeships as a good option for young people.
Overview
5.67 Although Darlington’s economy has performed strongly in recent years, there remain areas of the Borough where deprivation and economic activity are persistent problems. Five wards fall into to the 10% most deprived nationally and, while they continue to receive targeted assistance from the Borough Council and its partners (eg. Central into Work), residents of these communities experience lower wage levels, lower rates of economic activity and a range of associated challenges. Action to ensure that the benefits of growth in Darlington, principally the creation of new employment opportunities, are extended to all communities.
5.68 While a key aspiration for Darlington is to grow its base of high value businesses, recent performance data and employment forecasts indicate that sectors which tend to be lower paid (and lower value) will continue to be a major source of jobs of in the Borough and can expect strong growth over the next 15 years. Forecasts for health and social care, and logistics and distribution suggest particularly robust growth. Construction and retail are predicted to experience slower rates of growth, but will remain a key source of employment for residents of the Borough. With new developments in the pipeline, there are good reasons to assume that employment growth in these sectors will be somewhat higher than the forecasts suggest. The upshot is that employers in Darlington will need an adequate supply of labour to accommodate this growth. Residents who lack the qualifications and skill sets to enter higher paid occupations should be assisted to take up opportunities in these sectors.
5.69 Much of the groundwork for this theme is already in place. The Borough Council and its partners are running a range of initiatives that provide tailored support – targeted at specific wards - to enable individuals to receive training and find employment. These projects include assistance to businesses to enable them to take on new workers from target areas, job brokering to assist those in receipt of incapacity benefits. A broad array of partners are involved including DBC, the Learning and Skills Council, Business Link Tees Valley, Connexions, the
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Morrison Enterprise Trust and work based learning providers. This theme should centre on building from these foundations.
Theme Rationale
x Delivers key priorities from the Neighbourhood Renewal Strategy (Reducing Worklessness, Improving Training Opportunities and Business Development) the Community Strategy (Improving the Local Economy, Promoting Inclusive Communities) and Darlington’s economic regeneration strategy (Target Disadvantaged Groups and Communities).
x Addresses the issue of comparatively tight labour markets by increasing the pool of labour within the Borough. Many residents claiming unemployment or incapacity benefit want the opportunity to return to work.
x Businesses and agencies have identified a need to improve perceptions about vocational routes and work based learning both in schools/colleges and among the existing workforce.
x Addresses needs of employers for workers at entry level with the appropriate basic skills.
x Action will contribute to raising average wage levels.
Projects
5.70 Support, extend and/or expand initiatives that provide tailored assistance to residents of target communities in the Borough, particularly where funding is time limited. Work to ensure that successor programmes are in position.
5.71 More systematic joint working between key organisations and agencies in the Borough, particularly on awareness raising of support programmes, engagement with employers and strategic planning of training provision. The Economy and Environment Group should retain overarching responsibility.
5.72 The Darlington Partnership’s Economy and Environment Group should consider developing sector leads to more directly link existing actions under this theme to specific sectors.
5.73 Assess current provision of apprenticeships and work based learning activity in the Borough. Work with employers to increase the number of apprenticeships and raise profile of support for training, including the availability of financial support (eg. Train to Gain).
5.74 Enhanced employer engagement to assess demand from current employers in the Borough and continue to work with potential investors to identify skills and training needs.
5.75 Working with employers, promote in schools and FE colleges vocational pathways and work- based learning in schools.
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Theme 6 - Developing the Profile of the Darlington Brand
Developing the Profile of the Darlington Brand – Theme summary Core Objectives Core Projects Core Outcomes
To develop the Darlington Brand A brand management and A strong Darlington Brand To develop a consistent, corporate and marketing strategy Greater corporate and partner partnership approach to branding and Quality of Life awareness of brand themes marketing Employment Land Portfolio Increase consistency of marketing To raise the profile of the Darlington Quality of Life themes brand Business Support Increased regional and national understanding of the Darlington brand Increased number of enquiries Increased number of visitors
Overview
5.76 Clearly the development and positioning of the Darlington brand, in the context of the Gateway Strategy, should be based on real progress and outcomes under other themes of Quality of Life, the employment land portfolio, accessibility, business support and a strong cohesive community.
5.77 Whilst Darlington has much to offer wider awareness of the brand, particularly in key target areas such as the north of England, London and the UK in general is limited, unclear and in some cases unhelpful. In taking forward the Darlington Gateway Strategy and delivering on key aspect, notably employment growth there is a need to develop a more consistent, strategic and clear brand and brand management strategy for Darlington.
5.78 It is understood that core marketing effort in Darlington is currently undertaken, to an extent independently, under the heading of Economic Development (Darlington Advantage), Town Centre, Arts and Leisure and Community Services. Whilst the ‘Quality of Life’ theme has been broadly reflected across theses distinct areas, there remains a high degree of flexibility in how marketing is undertaken, resulting in (or responding to) a bottom-up approach with no formal consensus in brand themes, priorities or media.
5.79 The on-going consultancy work by Karol has highlighted a number of issues associated with marketing of the town centre and indeed the Borough as a whole.
5.80 The Economic Development Team, in conjunction with Tees Valley Regeneration and a number of key developers within Darlington have formed the Darlington Marketing Investors Forum. The Forum exists to promote Darlington as a dynamic business destination in the North East of England.
5.81 The 2005 a campaign “Darlington Advantage” was developed to promote Darlington as a location with a growing stock of high quality office space on a number of key strategic sites in
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Darlington. A website was also developed to support the campaign. (www.darlingtonadvantage.co.uk). This campaign is now being carried forward to October 2006 – January 2007.
5.82 Darlington Advantage is strongly focus around the property marketing in Darlington, however clear links are made with other Gateway themes, notably lifestyle and business support.
5.83 The primary objective for the campaign as it goes forward it to address some current gaps in brand marketing, namely a clear differentiation for Darlington and a higher sub regional, regional and national profile. Given the nature of partners it is also important to raise awareness of the wider Tees Valley offer and support the One North East Passionate People Passionate Places brand, reinforcing Darlington’s position in the North East.
5.84 The target sectors, reflecting the Gateway Strategy are financial, business and professional services, logistics, manufacturing, health and social care and public sector relocation.
Projects
5.85 To develop a corporate marketing strategy within which distinct areas of activity are addressed under a clear brand and brand themes.
5.86 To continue the work of the Darlington Advantage group within the overall marketing strategy.
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SECTION 6: DARLINGTON GATEWAY – MAKING IT HAPPEN
Introduction
6.1 This section of the Strategy report draws together the themes and projects into a clear plan of action. In doing so projects are prioritised and an outline phasing programme in proposed. Funding and delivery mechanisms are also considered.
6.2 In the light of the previous section the following projects under Gateway Strategy themes area are considered below. These projects are in addition to those already underway, such as Central Park.
1. Enhancing the Quality of Life offer
A. Parkgate – Town Centre Eastward Expansion
2. Maintaining and developing the employment land portfolio
Parkgate – Town Centre Eastward Expansion (as above)
B. Phasing Strategy for Employment Land Portfolio
C. Developing the Employment Land Portfolio
3. Enhancing accessibility to and within Darlington
D. Accessibility projects
4. Supporting the Growth of High Value Sectors
E. Advance to a More Co-ordinated Approach to Employer Engagement in High Value Sectors
F. Establish Mechanism to Review Skills, Education and Training Provision
G. Encourage Stronger Industry Connections into the Tees Valley and the North East
H. Assess Potential to Develop Flexible Training Packages for the Engineering Sector
I. Provide Supply of Start-up and Grow-on Premises for High Value Businesses
5. Spreading the Benefits of Growth to All
J. Promote work based learning and apprenticeships
K. Extend and expand initiatives that enable residents of deprived communities to access employment opportunities
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L. Strengthen Local Procurement Measures
6. Developing the profile of the Darlington Brand
M. Develop and implement a corporate approach to the management of the Darlington Brand
There actions are considered in more detail in the remainder of this section.
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Theme: Quality of Life Action A. Parkgate – Development of the Eastern Edge of Town Centre Description This project centres on the creation and delivery of a development framework for the Parkgate areas of the Town Centre. The Parkgate project is considered further in an appendix to this report. It primary elements include:
x The development of a planning strategy for the Parkgate area
x Public realm and traffic management improvement to key routes
x The potential to create a Cultural Hub in the Borough Road area
x The assembly of key sites along St Cuthbert’s Way Aims The aims of the project include: x The enhancement of the town centre offer x The creation of a cultural hub and the fostering of creative industries x The creation of opportunities for town centre office and related development x The enhancement of links between the town centre, Bank Top and Central Park Rationale The focus on Parkgate reflects its potential and current assets:
x Areas of under-used, poorly designed, layout out areas adjacent to the town centre
x Existing cultural / leisure uses, including the Civic and the Forum
x A key linking area between the town centre, Bank Top and Central Park
x The potential for significant site assembly Timescale for Delivery The project is a medium to long term initiative and can provide a on-going development resource as site such a Central park are developed out. The existing Arts Centre may be potentially relocated from around 2010-11. In this context the following delivery milestones are proposed: 2007/08 - Feasibility Studies into Parkgate and Cultural Hub (and St Cuthberts Way) 2007/10 - Development of Planning Strategy, including DPD Policy and AAP 2008/10 - Public Realm improvements to Parkgate / Borough Road / Yarm Road to reinforce existing role 2010/15 – Key site assembly and developer procurement 2015/20 – Development of Key sites Potential Lead Partners Darlington Borough Council, Tees Valley Regeneration, One North East. Indicative Resources Required The level of resources required will be determined largely by the approach to procurement. Site assembly in particular may be undertaken by the private sector within the context of a robust planning framework. However indicative public sector capital costs are estimated at: Feasibility - £250,000 Public Realm/Highways - £2,500,000 Cultural Hub - £ 4,000,000 Site assembly - £2,000,000
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Theme: Employment Land Portfolio Action B. Phasing Strategy for Employment Land Portfolio
Description This action takes forward the findings of the Employment Land Study (2006). It seeks to refine and articulate Darlington Borough Council’s approach as planning authority, economic development authority and is some cases landowner to the use and/or phasing to be applied to the key strategic sites. Aims To make the most effective use of the land portfolio, maximising the economic development opportunities whilst promoting sustainable growth. Rationale The extant Local Plan offers only limited guidance as to the use and timing (of public intervention) in key sites. Whilst development will continue to be encouraged across all sites there is benefit in providing clarity over the preferred use of sites to inform the markets; maximise the effective use of the sites and reflect the sequential test for offices and other high trip generators in PPS6. The proposed strategic approach to phasing is: Offices
Priority 1 Morton Palms; Central Park
Priority 2 Parkgate
Priority 3 Borough Road and Valley Street North
Industrial / Distribution
Priority 1 Airport North (for airport related activity, including some B1); Faverdale Industrial Estate
Priority 2 Strategic Faverdale Reserve Site; Remaining land at Yarm Road Industrial Estate
Priority 3 Yarm Road North; Airport South; Yarm Road South
Timescale for Delivery 2007-2010 – Preparation of Darlington Core Strategy, Gateway AAP and other related LDF documents. Potential Lead Partners Darlington Borough Council Indicative Resources Required Staff resources and feasibility study costs.
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Theme: Employment Land Portfolio Action C. Developing the Employment Land Portfolio Description To undertake further feasibility and action planning work at a number of key strategic sites to facilitate development and the focussing of public intervention. Aims To refine the existing employment land resources of key sites and to create additional office and related opportunities for the medium to long term in the Parkgate /East of Town Centre area. Rationale To prepare feasibility/action plans for the following sites to be incorporated into the Local Development Framework as required: x Valley Street North;
x Borough Road
x East of Town Centre / Parkgate
x McMullen Road West, Blacketts site
x Faverdale Timescale for Delivery 2008 -2010 (for feasibility / action plans) Potential Lead Partners Darlington Borough Council Indicative Resources Required Staff resources and feasibility study costs.
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Theme: Accessibility Action D. Accessibility Projects Description To be enhance Darlington’s market position and promote sustainable transport patterns through the delivery of a series of projects: x Darlington Eastern Transport Corridor x A66(T) Tees Valley Gateway x Environmental improvements to St Cuthbert’s Way x Walk and cycle routes to town centre from Victoria Road, Valley Street North and Haughton Road. x Tees Valley Metro x Tees Valley Connect
x Tackling Congestion
Aims To maintain and enhance accessibility To maintain a strong, flexible supply of labour To reinforce Darlington’s strategic accessibility for industry To enhance links, including public transport with the wider region To promote more sustainable forms of travel To enhance accessibility to key employment locations
To enhances accessibility to jobs and training for deprived communities Rationale To ensure the development of an effective transport network serving Darlington. To address problems of congestion and over reliance on the private car whilst developing the accessibility of Darlington for business and employees. Timescale for Delivery On-going through the LTP Potential Lead Partners Darlington Borough Council, Tees Valley Unlimited, OneNorthEast Indicative Resources Required Resources identified through the LTP for some projects. Resources for the A66 identified through the A66 Tees Valley Gateway Study. Further resources required to progress design and business case to seek funding. Tees Valley Metro Study identifying resources and a bid is being prepared for Tees Valley Connect.
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Theme: Supporting the Growth of High Value Sectors Task E Advance to a More Co-ordinated Approach to Employer Engagement in High Value Sectors
Description This action would see Darlington Borough Council and its partners move to establish a strategic approach to engagement with employers in priority high value sectors. In line with the Gateway Strategy, the engineering sector should certainly be a prime focus for action but there is a clear case for extending it to the broader range of growth sectors and other high value activities (eg. financial services). The key to delivering this action will be more systematic communication between the key organisations/agencies and employers in the Borough. This should include periodic meetings to identify issues, solutions and follow up any actions that have been agreed. It could also involve a designated coordinator with overall responsibility for keeping open lines of communication, organizing meetings and following up initiatives. There are alternative mechanisms for delivering a more coordinated approach to employer engagement x Create a new standing arrangement x Develop a specialist group out of Darlington Partnership Economy and Environment Group. x Ad hoc meetings but with a coordinator to maintain communication. Aims To develop a targeted approach to engagement with businesses operating in high value sectors which is responsive to their short term requirements and (skills, property etc) and puts in place mechanism to develop medium/long-term support strategy. Rationale x Contribute to improving conditions to sustain and grow high value businesses in Darlington, and to attract new businesses to locate in the area. x Builds on the strong platform of employer engagement established by the Borough Council, Darlington Partnership and other organisations. x Consistent with one of the aims of the Local Area Agreement Enterprise and Economic Development block. x Recognition among consultees that employer engagement needs to be reinforced and that long term strategic approach is important. Timescale for Delivery There are clearly short term recruitment issues, skills requirements and specific training needs for companies and these require partners to work with employers to find solutions for 2007-08. However, this should also be viewed as a long term action to run over the lifetime of the Gateway strategy. Potential Lead Partners Darlington Borough Council (as coordinator), Darlington College, Learning and Skills Council, Darlington Partnership, Tees Valley Engineering Partnership, Tees Valley JSU, One North East. Indicative Resources Required This action would require resources in the form of staff time and potentially a small administrative cost.
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Theme: Supporting the Growth of High Value Sectors Action F: Establish Mechanism to Review Skills, Education and Training Provision Description On the basis of a stepped up dialogue between Darlington Borough, Council, key agencies and employers, carry out a review of skills and training supply and demand in the Borough. The focus of this action should be high value businesses, particularly those operating in the engineering (and related) sector, financial services etc. But there is a good case for regarding this as an opportunity to review the skills and training supply and demand for a wider range of sectors including those identified as growth sectors by the Gateway strategy (health, logistics, business services, retail). Action would be based on two related activities: x An audit of current skills and training demand and supply. x A review of the role of the Darlington as education authority in encouraging the development of key skills and an entrepreneurial culture. x A mechanism for collating and sharing quantitative data and other information. For example, this might include information about vacancies, training courses (perhaps building on IT based prospectus). The key to this action will be to move from establishing supply and demand issues to putting in place action to address them and this could be a primary task for the group/arrangements described above. For example, it could involve dialogue with employers and training providers to look at curriculum options. Aims To establish a resource for strategic agencies, training providers and employers that will result in training provision that is better tailored to the needs of companies in the area, more responsive to shorter term issues and provides for a greater degree of strategic planning for key sectors in the Borough. To develop key themes as part of the school curriculum. Rationale x Integrates key skill development into mainstream education and promotes and entrepreneurial culture x Contributes to a response to skills shortages and training requirements identified by major companies in Darlington x Helps to create conditions to assist high value businesses already present in the Borough, and will help to attract new investors x Capitalises on groundwork laid by the Borough Council, the LSP, key agencies and major employers x A skills audit was previously carried out in 2002 and there is a good case for this exercise to be updated. Timescale for Delivery There are clearly short term recruitment issues, skills requirements and specific training needs for companies. Partners are already looking at how these might be tackled. However, this should also be viewed as a long term action for the lifetime of the Gateway strategy. Potential Lead Partners Darlington Borough Council, LSC, key employers, training providers. Indicative Resources Required The resources for this action would take the form of staff time, administrative resources to facilitate the exchange of information and, potentially, funding for the research/audit element.
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Theme: Supporting the Growth of High Value Sectors Action G: Encourage Stronger Industry Connections into the Tees Valley and the North East Description This action would involve the Borough working with key employers and agencies to examine strategic connections with the wider Tees Valley and, where appropriate, develop new approaches to industrial engagement in the area. This action should certainly include measures to encourage a wider range of companies to participate in the Tees Valley Engineering Partnership. It should also consider the way that businesses in Darlington are plugged into emerging and established sector development programmes in the North East. Companies would be signposted towards the appropriate sector development programme. Here, the particular focus might be the energy and process industries where Darlington already has an established reputation and is located in close proximity to the core of the cluster. Aims Ensure that companies in Darlington secure the benefits of networking and collaboration across the sub- region and region, including support through regional sector development programmes. Rationale x Capitalises on strong degree of alignment between Darlington’s sectoral strengths and priorities for sub-region and region. x Addresses perceived segmentation of Tees Valley and need for improved networking between major employers in the area. x Benefit from the increased collective weight offered by sub-regional or regional industrial networks. Timescale for Delivery Action could begin immediately. Potential Lead Partners This action could be taken up through the arrangements for enhanced employer engagement. Indicative Resources Required This action should require only a small amount of resource in the form of staff time.
Building Design Partnership with King Sturge, Regeneris and CIP December 2006
70 Darlington Gateway Strategy – Strand D
Theme: Supporting the Growth of High Value Sectors Action H: Assess Potential to Develop Flexible Training Packages for the Engineering Sector Description This action would see the key agencies and learning providers - work with AMEC (and potentially other engineering companies) to examine the potential to develop flexible training packages. This should draw on both the existing provision of training through the College and universities in the area but also on in-house training expertise of the companies themselves. The focus would be on flexible, short term packages (over several weeks) of training designed for rapid responses to skills shortages in the engineering sector. The geographical scope of action should probably not be limited to Darlington, and there is a case for pursuing such an initiative across the Tees Valley. Aims Ensure that key employers have facilities to address immediate, short term training needs. Rationale x Fluctuating order books and changing nature of project activities creates short term need for specific training. x Promotes flexibility in workforce and contributes to redeployment. x Supports companies operating in high value sectors. Timescale for Delivery This action is intended to respond to current needs. Partners would have to collaborate to assess possible form of provision and funding issues. Potential Lead Partners AMEC, LSC, training providers. Indicative Resources Required Assessment could be carried out on basis of dialogue between the key partners.
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71 Darlington Gateway Strategy – Strand D
Theme: Supporting the Growth of High Value Sectors Action I: Provide Supply of Start-up and Grow-on Premises for High Value Businesses Description Work with partners to provide a quantity and quality of property required by support high value businesses. Specifically, this should include strategic planning for the medium and long term supply of high spec industrial and office workspace for start ups. This should include sectoral assessments of demand for specialist premises (eg. ICT facilities). It should also take in the demand for and supply of incubator facilities in the Borough. Aims Attract high value businesses to the Borough and ensure that property portfolio matches needs of start-ups and growing businesses. Rationale x Contributes to delivering higher rate of start ups where Darlington lags behind other areas. x Capitalise on attractiveness of Darlington as a location for businesses (quality of life, communications links). x Consultees pointed to need for small office space and to potential for specialist premises (eg. ICT facilities). Timescale for Delivery This should be regarded as a long term action for the lifetime of the Gateway strategy. Potential Lead Partners Darlington Borough Council, property developers. Indicative Resources Required Resources required both for site infrastructure, conversion of existing premises. Assess scope for Borough Council to offer units.
Building Design Partnership with King Sturge, Regeneris and CIP December 2006
72 Darlington Gateway Strategy – Strand D
Theme: Spreading the Benefits of Growth to All Action J: Promote Work Based Learning and Apprenticeships Description This action has two dimensions: to raise the profile of work based learning and to explore the potential to offer more apprenticeships and advanced apprenticeships across a wider range of sectors. The further development of Darlington’s work based learning forum could be used as a platform to step up the promotion of work based learning opportunities both to young people in education in the Borough and to employers. Employers who already offer WBL opportunities could be drawn into this action to help demonstrate the benefits of WBL routes. While recognising the constraints imposed by financial resources, this action could entail key organisations (eg. Darlington Borough Council) and companies looking at how they might take on greater numbers of apprentices in order to set an example for others to follow. There should also be support for extending the Skills for Success initiative, funded by the Single Programme, which has seen around 830 people receive training and 92 businesses receive grants to part fund training. The key to this action is also enhanced coordination of the range of activities that partners in Darlington are already undertaking in this area. Where possible, action should be directed towards those sectors identified as priorities in the Gateway strategy. Aims To deliver more high quality apprenticeships for Darlington and generate a significant increase in the demand for work based learning and support for training from employers in the Borough. Rationale x Responds to perception that demand from employers is comparatively low in the Borough. x Need to capitalise on vocational routes that have been developed in Darlington. x Contributes to delivery of Local Area Agreement objective. x Addresses issue of creating new opportunities for young people in the Borough. x Contributes to delivery of commitments made in the Community Strategy. x Potential to address twin productivity challenges for North East of upskilling those in work and encouraging more people to enter employment. Timescale for Delivery This action should be seen as part of a long term strategic approach to the upskilling of Darlington’s workforce. However, the LSC operates on a 3 year budgetary cycle and annual allocations – and this points to a shorter term timescale Potential Lead Partners Darlington Learning Partnership and LSP, Darlington Borough Council, key employers Indicative Resources Required This action would require resources in the form of staff time and a budgetary allocation for additional promotional activities. Skills for Success received around £550,000 over the 2003-06 period.
Building Design Partnership with King Sturge, Regeneris and CIP December 2006
73 Darlington Gateway Strategy – Strand D
Theme: Spreading the Benefits of Growth to All Action K: Extend and expand initiatives that enable residents of deprived communities to access employment opportunities Description This action will centre on the marshalling of resources to extend or expand initiatives which aim at: x Enabling residents of deprive communities in Darlington to access employment opportunities x Assist residents to access education/training as a precursor to entering or re-entering the labour market. Several initiatives that have operated for some years using SRB and other sources of funding are now drawing to a close. These include the ‘Into Work’ initiatives which are viewed as an effective support mechanism. The Borough should adopt a strategic approach to identifying successor initiatives and funding streams over the long term (ie beyond a 2-3 year budgetary period). Partners have already taken steps through the Local Area Agreement which provides resource for the ‘Into Work’ initiatives. This may include finding the means to broaden the geographical scope of existing initiatives beyond the small number of wards that are their current focus. Given the sub-regional basis of funding streams, this action might also involve the Borough making a case for this type of initiative to be mainstreamed across the Tees Valley. Aims x Darlington’s deprived communities continue to benefit from tailored programmes of support. x Reduce economic inactivity rates in the Borough. Rationale x Capitalises on tried and tested initiatives that have generated positive results. Central Into Work has assisted 70 people into work and 32 into training. x Reflects priorities identified in Local Area Agreement. x In view of tight labour market in Darlington, economically inactive residents represent a pool of labour for the Borough. x Delivers commitments from Community Strategy, Neighbourhood Renewal Strategy and Economic Regeneration Strategy. Timescale for Delivery There are short term imperatives to find resources for the continuation of existing initiatives. However, this action should be seen as a long term priority for the Gateway strategy. Potential Lead Partners Darlington Learning Partnership Indicative Resources Required The extension of the ‘Into Work’ initiatives requires £120,000 over the period to 2008 to enable them to continue to operate.
Building Design Partnership with King Sturge, Regeneris and CIP December 2006
74 Darlington Gateway Strategy – Strand D
Theme: Spreading the Benefits of Growth to All Action L: Strengthen Local Procurement Measures Description This action will see Darlington put in place procedures to make local procurement a routine element of projects. The key will be to ensure wherever possible that local procurement clauses are written into tender documents. The focus of this action should be on the employment (and training) of residents of the Borough by contractors and will build on commitments by the Borough Council to deploy the NAPP toolkit in relation to major projects in the area. This could apply both to employment in physical construction projects and in the end uses (eg. major retailers). It could involve rolling out the type of scheme that has been piloted for the construction sector in Tyne and Wear which is based on assessment of the jobs that could be created by a particular scheme followed by work with training providers, Job Centre Plus to identify potential recruits and put in place the training provision for them. The Tyne and Wear scheme has reportedly demonstrated the utility of this approach and their scheme is now being extended to a broader range of projects (eg. waste disposal). A second dimension of this action might be further work to embed the local procurement of goods and services into contracting arrangements. Aims To ensure that a higher percentage of local residents are offered employment opportunities through projects delivered in the Borough. In effect, the Borough would develop a job guarantee scheme for construction, retail and other industries. Rationale x Consultees have highlighted need to bolster local procurement measures in the Borough. x Reflects commitments already made by the Borough Council. x Reduces economic inactivity in the Borough. x Number of major schemes in the pipeline in Darlington (Central Park, Commercial Street) should generate substantial number of new employment opportunities for local residents. x Consistent with position adopted in North East’s input to CSR 2007. Timescale for Delivery In effect, elements of this action are already underway in the Borough and activity arising from the Gateway strategy should centre on sustaining the momentum. Potential Lead Partners Darlington Borough Council, training providers, contractors Indicative Resources Required The Borough Council has allocated resources to support locally recruited employees to service new contracts. Expanding this practice could involve an approach for additional resources from the Single Programme to underwrite the job guarantee component of the action.
Building Design Partnership with King Sturge, Regeneris and CIP December 2006
75 Darlington Gateway Strategy – Strand D
Theme: Developing the Profile of the Darlington Brand Task M: Developing a Corporate Approach to the Management of the Darlington Brand
Description To draw together all current marketing initiatives and develop a strategic, corporate approach Aims To confirm the core Darlington brand and raise it profile in key target markets Rationale To underpin other elements of the Gateway Strategy. Timescale for Delivery On-going Potential Lead Partners Darlington Borough Council, Darlington Advantage, Darlington Partnership, One North East. Indicative Resources Required Re-focusing of existing marketing budgets. Circa £50,000 per annum to support the Darlington Advantage Initiative.
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Building Design Partnership with King Sturge, Regeneris and CIP December 2006
76 Darlington Gateway Strategy – Strand D
APPENDIX 1
PARKGATE (DEVELOPMENT OF EDGE OF TOWN CENTRE) FEASIBILITY ASSESSMENT
Building Design Partnership with King Sturge, Regeneris and CIP December 2006
A-1 Darlington Gateway Strategy – Strand D
PARKGATE (DEVELOPMENT OF EDGE OF TOWN CENTRE) FEASIBILITY ASSESSMENT
Introduction
A1.1 This appendix to the Gateway Strategy Strategy considers the feasibility, masterplanning and delivery approaches to the Parkgate project – the eastern expansion of Darlington Town Centre.
A1.2 This assessment is intended to be indicative only but is presented to highlight the potential of the area as part of the Gateway Strategy.
A1.3 Further feasibility, masterplanning and delivery appraisal will be required to confirm the potential and approach to delivery.
Gateway Context
A1.4 The Parkgate project responds to a number of themes and imperatives of the Gateway Strategy, namely:
x The Quality of Life agenda – and in particular the enhancement of the town centre offer, not least in terms of creative and cultural industries.
x Employment Land Portfolio – the Parkgate project has the potential to deliver additional town centre office products which are currently in limited supply. This will complement the existing employment portfolio.
x Accessibility – enhancing the town centre offer, improving the environment and enhancing connectivity between the town centre, Central Park, Bank Top and communities in the east of the town, will all contribute towards more sustainable travel patterns.
x Spreading the Benefits to all – increasing employment in the town centre, in locations accessible to a number of Darlington’s deprived communities provides a particular opportunity.
x The Darlington Brand – enhancing the offer of the town centre is key to developing the brand.
A1.5 At project level the Parkgate area has the potential to complement, develop and deliver on a number of projects outlined in the Gateway Strategy, namely:
x Central Park and links to it
x Links to Bank Top Station
x The creation of a cultural hub
x The delivery of town centre office accommodation
x The enhancement of the town centre
National and Regional Context
A1.6 Strong links into the Gateway Strategy link the Parkgate project firmly into the national and regional sustainable development agenda. In particular the emphasis on town centre
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regeneration and development, the use of brownfield land and the promotion of development in accessible, central locations are all in support of projects such as Parkgate.
Structure of the Assessment
A1.7 The remainder of this assessment is structured as follows:
x An overview of the Parkgate area
x A consideration of the key medium term development opportunities
x An overview of market and delivery considerations
x Indicative Masterplan proposals and outputs.
A1.8 A series of plans are included in this appendix to illustrate the potential of the area.
The Area
A1.9 The boundaries of the Parkgate area are, necessarily, loosely defined at this stage. However core areas for consideration include:
x Land along Borough Road, to the rear of Darlington Civic Theatre and fronting on to St Cuthbert’s Way (Opportunity Area 1)
x Land between St Cuthbert’s Way and Park Place, bounded to the south by Victoria Road (a key route to Bank Top Station) and Parkgate (the other town centre route to the station in the north) (Opportunity Area 2)
x Sites either side of Valley Street North, to the east of the Northgate Conservation Area (Opportunity Area 3)
A1.10 The area is of mixed use but generally lacks the vitality and property values of the town centre. The construction of St Cuthbert’s Way has in itself created somewhat of a barrier between the Parkgate area and the heart of the town centre. However the profile and access afforded by the ring road has led to the development of a number of larger format retail and other uses which have further fractured the built environment in this area.
Land Use and Built Form
A1.11 As noted earlier, land use and the urban environment is mixed, however the three opportunity areas referred to earlier do share some common characteristics.
A1.12 Opportunity Area 1 – Borough Road – this area comprises the Civic Theatre, the Forum, a public house, a day care centre and a number of workspaces along with a car showroom fronting onto St Cuthbert’s Way. There are also a number of commercial/retail premises fronting onto Parkgate. Of the three areas, this has retained more ‘town centre’ character and a substantial part of its traditional form.
A1.13 There are a number of buildings, not least the Civic Theatre that need to be retained but wholesale redevelopment is both inappropriate and unnecessary in this location. Existing buildings, particularly to the east of the area do retain a fine grain which could make for an interesting environment. The car show room and other industrial/commercial property do however provide the key, catalytic redevelopment opportunities.
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A-3 Darlington Gateway Strategy – Strand D
A1.14 The sites relationship with Tubwell Row creates the opportunity for interesting vistas to be created into the area from the town centre.
A1.15 Opportunity Area 2 – St Cuthbert’s Way/Park Place. This is a more straight forward area fronting onto St Cuthbert’s Way. The area accommodates the Magistrates Court, Police Station, Fire Station and Royal Mail sorting office. All are large footprint buildings on large plots with, save for the Magistrates Court, little or no real relationship with the surrounding built form.
A1.16 Reference to historic maps suggest this area was once housing.
A1.17 The existing built form has little to commend it, being quasi-industrial in character. The area does however have a high profile onto St Cuthbert’s Way.
A1.18 Subject to site assembly and the suitable relocation of existing uses the area does offer the opportunity for a comprehensive redevelopment.
A1.19 Opportunity Area 3 –Valley Street North – this is perhaps the most complex area of the three and is facing immediate development pressure.
A1.20 At its southern end the site is again divided from the town centre by St Cuthbert’s Way. However there is also a significant level change between St Cuthbert’s Way and areas around Russell Street.
A1.21 The River Skerne runs through the heart of the site (as is identified as potentially liable to flood by the Environment Agency) The western part of the area backs onto the Northgate Conservation Area. There is still some evidence of the built form found elsewhere in Northgate in the opportunity area, however there has been significant loss and intrusion over time.
A1.22 The area comprises a number of land uses, including large format retail, industrial office, workspace and some ‘riverside’ housing.
A1.23 Parts of the area retain an interesting character worthy of retention, notably along the River Skerne and Valley Street North, south of Chestnut Street. However there are opportunities for intervention notably around Weir Street and Oxford Street although land ownerships will be complex.
Market and Delivery Issues
A1.24 The Parkgate development area has the potential to respond to opportunities in the following sectors:
x Creative industries
x Town centre office and workspace
x Residential and live/work
x Restaurants, cafes and so on
A1.25 These would be consistent with the Gateway Strategy.
A1.26 However the area is in multiple ownership and currently, existing uses, land values and the strength of the key market sectors do not facilitate comprehensive redevelopment.
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A-4 Darlington Gateway Strategy – Strand D
A1.27 Similarly, particularly in the key office sector there is a risk that additional opportunities in Parkgate will compete with other locations, such as Central Park.
A1.28 In this context it is considered that Parkgate as a whole should be seen as a medium to long- term opportunity with public sector effort in the short term addressing the principal barriers to investment and facilitating catalytic development. Notwithstanding that, planning policy for the area should be refined in the short term with a view to managing current pressures, notably in the Valley Street North area, and to safeguard the longer term opportunity.
A1.29 The principal barriers to investment and redevelopment in the area are:
x Existing uses and multiple ownerships
x The planning context
x The environment (in certain places)
x The lack of developer confidence
x Relatively low values
x The lack of connectivity with the town centre (limiting values)
x Potential restrictions over the scope for residential (potentially a key driver of development in the area).
A1.30 The nature of and potential of the three areas suggests a distinct approach to delivery in each area.
A1.31 Opportunity Area 1 – Borough Road- this area has the potential to develop as the heart of Darlington’s cultural hub.
A1.32 The Gateway Strategy has previously identified the merit in co-locating the Arts Centre with the Civic and Forum around Borough Road. This area has the potential to accommodate a re located Arts Centre but this would require the incorporation of the Garage site which is currently on the market. The potential for this should be examined.
A1.33 In the short term, public realm improvements reinforcing investments made already, improvements to the Civic Theatre access arrangement, a reduction in the dominance of traffic on Parkgate and an enhanced environment and signage up to Bank Top Station would underpin the areas existing role.
A1.34 As with all areas the planning frameworks should be developed for the area through an Area Action Plan.
A1.35 Opportunity Area 2 – St Cuthbert’s Way / Park Place. This area will be key to the longer term objective of extending the town centre given the scale of potential development. The area is in use, however ownerships are clear and ‘public sector’ in character. Discussions should be opened up with landowners at an early point to consider their longer term accommodation requirements.
A1.36 The area can potentially be delivered in a phased way reflecting the division of landownerships. The Magistrates Courts / Police Station provides a particular opportunity to reinforce the Parkgate route and development around Borough Road. Indeed the site could
Building Design Partnership with King Sturge, Regeneris and CIP December 2006
A-5 Darlington Gateway Strategy – Strand D
offer an alternative option for the relocation of the Arts Centre, should the Borough Road site provide unfeasible.
A1.37 The remainder of the site is suitable for mixed use development, including office and workspace development and residential.
A1.38 Opportunity Area 3 – Valley Street North. This area is currently facing pressure from developers. In order to safeguard the potential in this area and to ensure it complementary character to the rest of ‘Parkgate’ and the town centre it will be important to clarity the planning context in this area through the LDF. Public intervention in the area, by way of land assembly is not required in the short to medium term. Indeed an effectively directed market may deliver the development with minimal public intervention. As such delivery mechanisms should, until area 1 and 2 have progressed, be limited to planning policies supportive of mixed use development over industrial.
Masterplan and Indicative Outputs
A.1.39 As series of indicative plans are included in this section. The indicative outputs for Areas 1 and 2 are as follows:
Area Site Area Total Floorspace Uses
1. Borough Road 0.94 ha 15,000 sq m Arts Centre 3,000 sqm (or residential)
Creative Workspace 1800 sq m (20-30 units)
Bar/Restaurant 300sq m
Residential 6900 sq m (85 units)
Ground Floor Mixed Use 1,000 sq m (20 units)
Office (2,000 sq m)
2. Parkgate 2.9 hectares 32,100 sq m New Magistrates Court 3,000 sq m
Arts Centre 3,000 sq m (or residential)
Office (large format) 6,000 sq m (2 units)
Office (owner-occupier/townhouse 10,000 sq m, 40 units
Ground floor Mixed Use (2,000 sq m, 30 units)
Residential (8,100 sqm) 120 units
* assumes in general 3 storey development and use of undercroft and town centre car parking
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A-6 Darlington Gateway Strategy – Strand D
Indicative Costs
A.1.40 The indicative costs for Areas 1 and 2 are as follows:
Area Items Costs*
Feasibility £250,000
1. Borough Road Parkgate – public realm / traffic management £1,000,000
Arts Centre (or residential) £4,000,000
Creative Workspace 1,800 sq m (20-30 units) £900,000
Site/property acquisitions £1,500,000
Bar/Restaurant 300 sq m £250,000
Residential 6900 sq m (85 units) £6,200,000
Ground Floor Mixed Use 1,000 sq m (20 units) £600,000
Office (2,000 sq m) £1,600,000
Refurbishment / conversion of existing £500,000 accommodation (circa 2,000 sq m)
2. Parkgate Site Acquisition (Magistrates Court) £1,250,000
New Magistrates Court 3,000 sq m £3,000,000
St Cuthbert’s Way – environmental £1,000,000 improvements
Public Realm Works – Victoria Street £500,000
Arts Centre (or residential) (as costed above)
Office (large format) 6,000 sq m (2 units) £3,600,000
Office (owner-occupier/townhouse 10,000 sq m, £8,000,000 40 units
Groundfloor Mixed Use (2,000 sq m, 30 units) £1,200,000
Residential (8,100 sqm) 120 units £7,500,000
Total £42,400,000
Indicative Public £13,900,000 Sector Investment
* Core public sector costs in bold, other costs assume to be borne largely by the private sector * BDP estimates of construction cost
Building Design Partnership with King Sturge, Regeneris and CIP December 2006
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Darlington Gateway Strategy – Strand D
APPENDIX 2
EMPLOYMENT LAND PORTFOLIO
Building Design Partnership with King Sturge, Regeneris and CIP December 2006
A-8
Peter Tooher Town Planning Director [email protected]
Building Design Partnership Sunlight House, PO Box 85 Quay Street, Manchester M60 3JA Tel +44 (0)161 834 8441 Fax +44 (0)161 832 4280 www.bdp.co.uk