TOWN CENTRES AND RETAILING BACKGROUND PAPER 7 Paper 7 - Reta… · particular this background paper...

TOWN CENTRES AND RETAILING

BACKGROUND PAPER 7

FEBRUARY 2018

BACKGROUND PAPER 7 – RETAILING AND TOWN CENTRES

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Page

1. Introduction 3

2. National Planning Policy Context 3

National Planning Policy Framework (2012)

National Planning Practice Guidance (2014)

3. Local Planning Policy Context 5

Lancaster District Local Plan (Saved Policies September 2008)

Lancaster District Core Strategy (2008)

Morecambe Area Action Plan DPD (2014)

The Development Management DPD (2014)

Other Development Plan Documents

4. Town Centre Initiatives 7

Business Improvement Districts (BIDs)

Lancaster Business Improvement District

Morecambe Business Improvement District

Lancaster Square Routes Project

Lancaster ‘Beyond the Castle’ Project

Mill Race Heritage Priority Area

5. Local Evidence Base 10

6. Lancaster District – Existing Provision 11

Lancaster City Centre

Morecambe Town Centre

Carnforth Town Centre

Local Centres in Lancaster District

7. Comparison (Non-Food) Retailing Trends 20

Comparison Retailing – Current and Emerging Retail Trends at a National Level

Comparison Retailing – Current and Emerging Local Trends within Lancaster District

8. Convenience (Food) Retailing Trends 22

Convenience Retailing – Current and Emerging Local Trends within Lancaster District

9. Future Retail Needs and Retail Capacity – Comparison Retailing 24

Future Capacity for Comparison Retailing – District Wide Requirements

10. Future Retail Needs and Retail Capacity – Convenience Retailing 26

Future Capacity for Convenience Retailing – District Wide Requirements

11. Implications on the Local Plan for Lancaster District 2011 - 2031 27

Setting a Retail Hierarchy for Lancaster District

The Creation of New Centres to Accommodate Future Growth

Growth in Convenience Retailing within the District

Growth in Comparison Retailing within the District

Growth in Other Forms of Retailing in the District

Regeneration and Environmental Quality

Improvement in the Cultural Offer and Tourism


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1. INTRODUCTION

1.1 This background paper has been published to accompany the Publication / Submission of the Local

Plan to clarify the decisions which have been taken in the preparation of the Strategic Policies &

Land Allocations DPD and the Review of the Development Management DPD (i.e. the Local Plan). In

particular this background paper addresses the matters of retailing and town centre development

within the district through the course of the plan period – 2011 to 2031.

1.2 The document forms a suite of background papers which set out the evidence that has been used to

inform the Council’s approach to the preparation of the new Local Plan and in particular the

direction and decisions which have been taken to assess the overall approach to meeting future

retail needs and strong / competitive town centres within the district. It is important to note that for

a comprehensive understanding of the Local Plan process that this background paper is read in the

context of the other papers which include:

Assessing Reasonable Alternatives: Informing the Spatial Distribution of Development

Housing: Addressing Housing Needs in the District

Infrastructure: Providing the Infrastructure Necessary for Growth

Economic: Achieving Economic Growth in Lancaster District

Flood Risk: Addressing Flood Risk in Lancaster District

Environment: Addressing the Environmental Impacts of Development in the District

1.3 The background papers and supporting evidence are available for download on the Council website

at http://www.lancaster.gov.uk/planning/planning-policy.

2. NATIONAL PLANNING POLICY CONTEXT

NATIONAL PLANING POLICY FRAMEWORK

2.1 The National Planning Policy Framework (the Framework) was published by the Government in

March 2012, the NPPF replaced former guidance contained within Planning Policy Statements (PPS)

and Planning Policy Guidance (PPG) and provided a more concise planning framework which sets out

a presumption in favour of sustainable development and ensures the vitality and viability of town

centres.

2.2 The NPPF states that planning policies should be positive, promote competitive town centre

environments and set out policies for the management and growth of centres over the plan period.

Paragraph 23 of the Framework sets out a number of key considerations in relation to town centres

which should be addressed when drawing up local plans, these considerations include:

Recognise Town Centre as the heart of communities and pursue policies to support their

viability and vitality;

Define a network and hierarchy of centres that is resilient to anticipated future economic

changes;

Define the extent of town centres and primary shopping areas, based on a clear definition of

primary and secondary frontages in designated centres, and set policies that make clear which

uses will be permitted in such locations;

http://www.lancaster.gov.uk/planning/planning-policy


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Retain and enhance existing markets and, where appropriate, re-introduce or create new ones,

ensuring that markets remain attractive and competitive;

Allocate a range of suitable sites to meet the scale and type of retail, leisure, commercial, office,

tourism, cultural, community and residential development needed in town centres. It is

important that needs for retail leisure, office and other main town centre uses are met in full

and are not compromised by limited site availability. Local planning authorities should therefore

undertake an assessment of the need to expand town centres to ensure a sufficient supply of

suitable sites;

Allocate appropriate edge of centre sites for main town centre uses that are well connected to

the town centre where suitable and viable town centre sites are not available. If sufficient edge

of centre sites cannot be identified, set policies for meeting the identified needs in other

accessible locations that are well connected to the town centre;

Set policies for the consideration of proposals for main town centre uses which cannot be

accommodated in or adjacent to town centres;

Recognise that residential development can play an important role in ensuring the vitality of

centres and set out policies which encourage residential development on appropriate sites; and

Where town centres are in decline, local planning authorities should plan positively for their

future to encourage economic activity.

2.3 The NPPF is clear that local planning authorities need to recognise the important roles town centres

play in their local area, both in economic terms but also the role they play with the local community

in delivering key services to ensure sustainable patterns of development. In preparing the Local Plan

it will be expected that the local authority should be planning to maintain and where possible

improve the town centres within their area to ensure long-term viability or, in circumstances where

a town centre is failing, set out an approach and direction to improve its role. The preparation of the

local plan must be consistent with the requirements of the NPPF.

NATIONAL PLANNING PRACTICE GUIDANCE (2014)

2.4 The National Planning Practice Guidance (NPPG) was published by the Government in 2014 and has

been updated and supplemented since that time, the NPPG provides further layers of guidance on a

range of planning matters, including ensuring the vitality of town centres, stating that:

‘Local Planning Authorities should plan positively, to support town centres to generate local

employment, promote beneficial competition within and between town centres and create attractive,

diverse places where people want to live, visit and work.’

2.5 The NPPG stresses the importance of having a strategic vision for town centres which should be

expressed through the local plan and enable sustainable economic growth and provide a wide range

of social and environmental benefits. The visions should form part of the town centre strategy.

2.6 Any town centre strategy should be based on evidence of the current state of the town centre (via

retail assessment) and opportunities to meet development needs and support their viability and

vitality. Strategies should answer the following questions:

What is the appropriate and realistic role, function and hierarchy of town centre in the area

over the plan period? This will involve auditing existing centres to assess their role, vitality,

viability and potential to accommodate new development and different types of development.


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This assessment should cover a three 5-year period, but should also take the lifetime of the plan

into account and should be regularly reviewed.

What is the vision for the future of each town centre? This should consider what the most

appropriate mix of uses would be to enhance overall vitality and viability.

Can the town centre accommodate the scale of assessed need for main town centre uses? This

should include considering the expansion of town centres, or investigate development

opportunities to enable new development or re-develop existing under-utilised space. This

should involve evaluating different policy options (for example expanding the market share of a

particular centre) or the implications of wider policy such as infrastructure delivery and

demographic or economic change.

In what timeframe should new retail floorspace be provided?

What complimentary strategies are necessary and appropriate to enhance the town centre and

help delivery the vision for its future, and how can these be planned and delivered?

How can parking provision be enhanced and both parking charges / enforcement be made

proportionate in order to encourage town centre vitality?

2.7 The NPPG also suggest that strategies should identify changes in the hierarchy of town centres,

including where a town centre is in decline. In these cases, strategies should seek to manage decline

positively to encourage activity and achieve an appropriate mix of uses commensurate with a

realistic future for that town centre.

2.8 As this topic paper will demonstrate, the questions raised within the NPPG have been addressed via

the relevant town centre / retailing evidence and implemented via a suite of development

management policies and land allocations to ensure consistency with national planning guidance.

3. LOCAL PLANNING POLICY CONTEXT

LANCASTER DISTRICT LOCAL PLAN (SAVED VERSION 2008)

3.1 Following the adoption of the Lancaster District Core Strategy the Council review the existing

development plan policies which contained within the Lancaster District Local Plan (originally

adopted in 2004) ‘saving’ policies which supported the strategic aims of the Core Strategy and

remained in accordance with both national and regional policy of that time. This included a number

of generic and site specific policies relating to town centres, leisure and wider commercial uses

(including retail).

3.2 The Lancaster District Local Plan set out a number of allocations in relation to town centres which

have been retained until such a time where they are replaced by a new local plan document (i.e. the

Strategic Policies and Land Allocations DPD). The generic policies on town centre development have

already been replace by the Development Management DPD, in particular Policies DM1, DM2 and

DM3.

LANCASTER DISTRICT CORE STRATEGY (2008)

3.3 The Council published the Lancaster District Core Strategy in July 2008 which set out a strategic

planning framework for the district. The Strategy set out a number of high-level strategic policies

which would contribute to the delivery of sustainable development and identified the spatial

distribution of future development.


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3.4 In relation to town centres and retailing, the Core Strategy set out the future requirements for town

centre development via Policy ER4 (Town Centres and Shopping) and Policy ER5 (New Retail

Development).

3.5 Policy ER4 set out the town centre hierarchy for Lancaster District and seeks to promote

regeneration by defining and establishing spatial roles for the district’s centres. Table 1 sets out the

retail hierarchy as defined in Policy ER4.

Lancaster City Centre Will be a sub-regional city centre, the main comparison shopping destination for Lancaster District attracting significant numbers of shopping trips from adjoining parts of Cumbria, North Yorkshire and Central Lancashire as well as developing a role as a tourist destination.

Morecambe Town Centre Will continue to develop as a town centre providing local comparison and convenience shopping goods for the district, north of the River Lune, and retaining an important role as a visitor destination.

Carnforth Town Centre Will develop a district centre role as a key service centre, market town and visitor destination.

Local Centres Bare (Princess Crescent), Caton, Heysham Road, Heysham, Lancaster University, Silverdale, Torrisholme, West End and Westgate will develop as a local service centre providing key services to local communities.

Table 3.1: Lancaster District Retail Hierarchy (as described in the Lancaster District Core Strategy 2008).

3.6 Policy ER5 sets out the Council’s position in relation to new retail development. Between 2005 and

2021 the Council expected new comparison retailing to be focused on a planned expansion of

Lancaster’s primary shopping area and to meet the regeneration needs of Central Morecambe.

3.7 The spatial policies contained within the Core Strategy, for example Policies ER4 and ER5 have

provided the strategic basis for planning policy until such a time where they are replaced by policies

within the new local plan, in particular the Strategic Policies and Land Allocations DPD.

MORECAMBE AREA ACTION PLAN DPD (2014)

3.8 The Morecambe Area Action Plan Development Plan Document (DPD) was adopted by the Council in

2014 and sets out a series of strategic interventions which will assist in addressing regeneration in

Central Morecambe.

3.9 Where necessary and appropriate the Area Action Plan DPD will identify the locations and contain

policies that are specific to this area. Any proposals within the defined boundaries of the Area Action

Plan will still be expected to have due consideration to all relevant policies within the wider local

plan unless directed otherwise.

3.10 The Morecambe Area Action Plan DPD sets out a framework for regeneration of Morecambe Town

Centre which is discussed in more detail within Section 6 of this topic paper.

DEVELOPMENT MANAGEMENT DPD (2014)

3.11 The Development Management Development Plan Document (DPD) was adopted by the Council in

December 2014 and, along with the Morecambe Area Action Plan DPD, became the first elements of

the new Local Plan for Lancaster District 2011 – 2031.


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3.12 The Development Management DPD provides generic planning policies on a wide range of issues

which are used by the Development Management Team and Planning Committee to determine

planning applications. The Development Management DPD applies to all types of development

across the district, unless other documents and policies direct otherwise.

3.13 There are a number of planning policies within the adopted Development Management DPD which

relate to town centres and retailing, these include:

Policy DM1: Town Centre Development;

Policy DM2: Retail Frontages;

Policy DM3: Public Realm and Civic Spaces;

Policy DM5: The Evening and Night-Time Economy;

Policy DM12: Leisure Facilities and Attractions; and

Policy DM13: Visitor Accommodation.

3.14 The Development Management DPD is also accompanied by an Interim Town Centre Designation

Plan for Lancaster City Centre which provided an interim position on a number of important town

centre designations including the identification of a Primary Shopping Area, Town Centre Boundary

and Primary / Secondary Frontages. This interim plan has now been formally incorporated into the

Local Plan Policies Map which accompanies the Strategic Policies and Land Allocations DPD.

3.15 The Council have sought to review the Development Management DPD to take account of any

procedural issues which have arisen since its adoption and to take account of any changes to

national policy since 2014. Much of the DPD remains unchanged, however some changes have been

made to the town centre policies, particular the inclusion of local thresholds for retail impact

assessment.

OTHER DEVELOPMENT PLAN DOCUMENTS 3.16 There are other development plan documents (DPDs) which will form part of the Local Plan for

Lancaster District. In particular, the Arnside and Silverdale AONB DPD which is being prepared jointly

by Lancaster City Council and South Lakeland District Council which focuses on specific policies and

allocations which apply to this Area of Outstanding Natural Beauty. This DPD does not however

contain any bespoke policies or allocations in relation to town centres or retailing.

4. TOWN CENTRE INITIATIVES

4.1 There are a number of initiatives which seek to improve the role and function of the districts town

and local centres. The Local Plan will be seeking to support the aspirations of these initiative through

supportive and positive planning policies for town and local centres.

BUSINESS IMPROVEMENT DISTRICTS (BIDs)

4.2 A Business Improvement District (BID) is a funding opportunity to improve and manage a clearly

defined commercial area. It is based on the principle of charging an additional levy on all business

rate payers in a defined areas (following a majority vote by those ratepayers). The levy charged is

typically 1% / 2% of the rateable value. BIDs are generally regarded as time limited and locally

controlled method for improving the environment and economic performance of a defined area of

the town / city. Local partnerships are initially developed to:

Decide the BID area and what improvements they want to make;


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How the partnership will manage it and what it will cost; and

How long it will last (up to 5 years with the renewal vote the following year).

4.3 At present there are well over 100 BIDs in the UK which bring in an estimated additional £120 million

into local trading environments. Under voting at least 75% of businesses polled have been found to

be in favour. Examples of services / projects which can be funded from BID initiatives include:

Street / Business Security;

Street, alley and pavement cleaning and graffiti removal;

Promotions, public events and expanding tourism;

Marketing;

Retail retention and recruitment; and

Development of parking facilities, pedestrian shelters, public amenities, fountains, parks, kiosks,

lighting, benches and litter.

4.4 A BID proposal (a detailed business plan) is created and it is the approval of this document that is

voted upon by those businesses who would have to pay the levy. The BID proposal can be led by

local businesses, local authority or any other partnership between key stakeholders.

4.5 Following a successful vote the BID levy fund and projects defined in the BID proposal have to be

managed and implemented by a defined delivery organisations known as the ‘BID body’. It is not

essential to create a new legal entity to become a BID body. A secured BID levy fund could be

technically administered through the council. However, in order to be an independent, business-led

partnership it is more common for the BID body responsibilities to be controlled via existing

independent arrangement (such as the Chamber of Trade) or to set up a bespoke delivery body.

LANCASTER BUSINESS IMPROVEMENT DISTRICT (BID)

4.6 The Lancaster Business Improvement District (BID) has been set up by city centre businesses to

promote and improve the trading environment in Lancaster. The Lancaster BID is working towards

three main goals:

I. Promoting Lancaster

II. Improving Lancaster

III. Supporting Special Projects in Lancaster

4.7 Working with these three goals, Lancaster BID are developing their own initiatives as well as

supporting projects proposed by other organisations where there is a prospect of them becoming

self-funding in future years.

4.8 The Lancaster BID was set up in 2011 when a steering group of city centre business owners and

managers was formed to consult the business community with a view to developing a submission for

a BID for Lancaster City Centre. The group canvassed fellow businesses to identify their needs and

aspirations and agree on a defined area for the BID. The group felt that there was sufficient interest

to take the process further and produced a Delivery Plan which was sent to all ratepayers in the

proposed BID area and an independently run postal ballot took place which allowed businesses a

chance to vote on a BID for Lancaster. On the 30th November 2012 Lancaster BID received a yes vote.


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4.9 Since 2012 the Lancaster BID has developed and produced a programme of activities and project to

meet the BID objectives described. Most recently in 2015 a new Delivery Plan has been published by

the BID Team for the period 2016 – 2021 which sets out a range new objectives for town centre

improvements through that period, this includes:

Targeted improvements to individual streets;

Developing a parking strategy for Lancaster so shoppers can stay longer;

Bank Holiday events;

Regular street entertainment on the Market Square Plinth;

Subsidised marketing opportunities for BID Members;

Crime reduction initiatives;

Meaningful events from a range of different retail sectors;

Training for business skills; and

Lobbying on behalf of the businesses within the BID area.

4.10 On the 26th November 2015 there was a successful yes vote to implement the objectives of the

Delivery Plan. Further information on the Lancaster BID can be found at the following link

http://www.lancasterbid.org/About-Us.

MORECAMBE BUSINESS IMPROVEMENT DISTRICT (BID)

4.11 The Morecambe Business Improvement District was established in May 2016 and, similarly to

Lancaster, seeking to promote and improve the trading environment within Morecambe. Further

information on the Morecambe BID can be found at https://morecambebid.com/.

LANCASTER SQUARE ROUTES PROJECT

4.12 Lancaster’s public spaces are intrinsic elements of the city’s historic fabric. Unfortunately, few of the

public spaces are of such a quality that people want to linger and use them for places of rest,

recreation and social interaction. Over time the centre has deteriorated to a situation where the

condition of the streets is poor and cluttered and does not do enough to showcase its important

historical heritage.

4.13 The Lancaster Square Routes project has been established to rejuvenate Lancaster City Centre and

strengthen its position as a major destination for both visitors and residents of the district.

Investment via the Square Routes project is expected to generate significant economic benefits; it

enhances visitor accommodation, stimulates growth in the visitor economy and increases the

income for local business.

4.14 The first phases of the Square Routes project took place in 2011 and 2012 in Market Square, Gage

Street and St Ffrances Passage. Key elements of this work involved the removal of the fountain in

Market Square, extensive resurfacing and improved lighting. The second phase of the Square Routes

project took place in 2013 and 2014 and included a new centrepiece for Market Square, improved

signage and improved street furniture.

4.15 Whilst many of the core areas of Lancaster City Centre have been address through the first two

phases of this project, there are still further works anticipated for the city centre area to improve

linkages to key areas such as Lancaster Castle, the quayside and Williamson Park.

http://www.lancasterbid.org/About-Us

https://morecambebid.com/


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4.16 Further information and news on the Square Routes Project can be found via the Council’s website

at www.lancaster.gov.uk/planning/regeneration/.

LANCASTER ‘BEYOND THE CASTLE’ PROJECT

4.17 The ‘Beyond the Castle’ project aims to improve the urban greenspaces around Lancaster Castle and

down towards the River Lune at St Georges Quay, providing a strong pedestrian corridor between

Lancaster City Centre and the River (via the Castle).

4.18 Funding has been secured for improvements and design development for green spaces surrounding

St Georges Quay and Lancaster Priory Churchyard. Given the significant heritage assets which

surround the Castle, particular important Roman ruins, there has been significant and ongoing

activity to excavations to gain a new understanding to the history and origins of Lancaster as a town

and a place.

4.19 Further information and news on the ‘Beyond the Castle’ Project can be found via the Council’s

website at www.lancaster.gov.uk/planning/regeneration/.

MILL RACE HERITAGE PRIORITY AREA

4.20 In 2016, Historic England launched a new programme entitled ‘Heritage Action Zones’ where

organisations could bid for such status to help manage change within historic areas and unlock

economic potential.

4.21 After considering the criteria and guidance from Historic England, the Council decided to focus the

proposed action zone on an area to the north-east of the city centre that contains a number of

heritage assets that will face a number of opportunities and challenges over the coming years.

4.22 Whilst the submission to Historic England was unsuccessful in terms of securing funding and

resources, the Council and its partners will seek to secure funding opportunities in this area of

Central Lancaster, as identified in Policy EN3 of the Strategic Policies & Land Allocations DPD, and

will look at local interventions and stakeholder to improve the historic environment in this area as a

key part of the city centre offer.

5. LOCAL EVIDENCE BASE

5.1 The Council have undertaken a number of different assessments and studies relating to retail

matters, given the volatility and changeable nature of retail patterns over recent years, to ensure

that a robust and up-to-date picture on retailing and town centre matters is secured. These

assessments include:

Lancaster District Retail Study (White Young Green 2013)

Lancaster District Town Centre Health Check (White Young Green 2014)

Lancaster District Retail Study Refresh (White Young Green 2015)

Lancaster District Commercial Leisure Study (White Young Green 2016)

Lancaster District Local Centres Study (White Young Green 2017)

5.2 The most recent and update retailing assessments can be found on the Council website and have

informed the preparation of this background paper.

http://www.lancaster.gov.uk/planning/regeneration/

http://www.lancaster.gov.uk/planning/regeneration/


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6. LANCASTER DISTRICT – EXISTING PROVISION

LANCASTER CITY CENTRE

6.1 Lancaster is classed as a regional centre and is ranked the 135th of all centres surveyed (via

Venuescore) which places it within the top 5% of UK shopping venues, it is 17th most important

centre in the North West behind places such as Manchester, Preston and Blackpool. Its retail ranking

has declined by 20 places since 2010.

6.2 Lancaster functions as the principal civic and economic centre in the administration for the district

and performs a key role as the main shopping centre for the district. It also includes a number of

education facilities associated with Lancaster University and the University of Cumbria.

6.3 The main focus of town centre uses is focused on the pedestrianized areas of Cheapside, Market

Street and Penny Street with a less focus on King Street, Brock Street and Church Street. The indoor

St Nicholas Arcade and Marketgate shopping centres as a key anchor destinations within the town

and include a number of national retailers. Whilst a number of national retailers are present within

the town centre there is also a diverse range of independent retailers which provides Lancaster City

Centre with a degree of individuality.

6.4 A number of large retail warehouses are also located beyond the city centre, including a B&Q at

Aldcliffe Road, a B&M / Currys / Halfords / Laura Ashley at Bulk Road and Kingsway Retail Parks and

Sunnycliffe Retail Park, which is located approximately 5km away from the City Centre at White Lund

Employment Area, accommodates a number of bulky goods operators.

Previous Number of Units Existing Number of Units

2005 2014

No. of Units Lancaster UK No. of Units Lancaster UK

Convenience 24 4.5% 9.1% 38 7.3% 8.2%

Comparison 213 40.2% 37.1% 169 32.3% 32.8%

Retail Service 67 12.6% 12.6% 62 11.9% 13.9%

Leisure Service 118 22.3% 20.4% 127 24.4% 22.2%

Financial Service 59 11.1% 11.6% 64 12.3% 11%

Vacant 49 9.3% 9.1% 61 11.7% 11.6%

Total 530 100% 100% 520 100% 100%

Table 6.1: The Diversity of Uses within Lancaster City Centre – A Comparison 2005 and 2014

(Source: WYG Retail Study 2006, LCC Site Survey Work and GOAD 2014)

Previous Floorspace Existing Floorspace

2005 2014

Sqm Lancaster UK Sqm Lancaster UK

Convenience 8,705sqm 10% 14.7% 9,880sqm 10.1% 14.8%

Comparison 39,725sqm 45.4% 39.9% 36,420sqm 37.2% 36.4%

Retail Service 6,169sqm 7.1% 7% 6,300sqm 6.4% 7.4%

Leisure Service 20,620sqm 23.6% 22.1% 27,620sqm 28.2% 23.1%

Financial Service 6,691sqm 7.7% 9.2% 8,960sqm 9.1% 8.3%

Vacant 5,570sqm 6.4% 7.1% 8,840sqm 9% 9.4%

Total 87,480sqm 100% 100% 98,020sqm 100% 100%

Table 6.2: Floorspace Levels within Lancaster City Centre – A Comparison 2005 and 2014



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6.5 The previous retail study work, undertaken by White Young Green (WYG) in 2006 identified that the

convenience retail sector in Lancaster City Centre was particularly weak, with the main provision

found within the Sainsbury’s and Kwik Save stores. Since then there has been a number of new

facilities developed in the City Centre which has boosted the convenience sector presence, this

includes a number of in-centre national foodstores via Tesco Metro, Sainsbury’s Local and

Morrison’s. The presence of these retailer has not affect the strong provision of independent

retailers (such as butchers and bakers).

6.6 In 2005 the proportion of comparison retail outlets (and the floorspace associated within it) in

Lancaster were clearly above the national average figures. Since 2005 there has been a significant

decline in the proportion of comparison retailers within the town centre – although it should be

acknowledged that this decline has brought it into line with national levels.

6.7 Vacancy rates have increased since the 2006 WYG study, as of March 2014 there were 61 vacant

units within Lancaster City Centre which comprised a total floorspace of 8,840sqm. This increase in

vacant levels is not specific just to Lancaster with vacancy rises seen in most of the UK town centres

since the economic downturn of 2008.

6.8 WYG, as part of the 2014 Retail Development Strategy undertook a range of household and in-street

surveys (which were conducted in June 2013) in order to obtain views of residents and visitors to the

local area.

6.9 The household survey identified that the majority of respondents would visit Lancaster City Centre

at least once a week with the Sainsbury’s and Asda being the most popular local for convenience

shopping. The choice and range of shopping was considered to the biggest reason for visiting the

City Centre. The in-street surveys identified that majority of respondents were either visiting

financial services or shopping for clothes and footwear. The highest proportion of visitors indicated

that they intended to spend between an hour to an hour and a half and that it was their first choice

destination for comparison shopping.

6.10 The retailer representation is a strong indicator in terms of the vitality and viability of a town centre

as it demonstrates the existing and future potential of operators in the locality. The survey work

undertaken in Lancaster identifies that many of the main national multiples are present in the City

Centre (such as Boots, Marks & Spencers and BHS) which act as anchor tenants and add to its

appeal, this will be further boosted by the opening of Primark in 2015.

6.11 The presence of such anchor tenants increase the attractiveness of the City Centre as a place to visit

and shop thus having strong economic benefits for the town. However, it should be noted that

whilst a number of the key anchor retailers are present, there are also a number of national

multiples, who may be expected to be in a centre the size of Lancaster, that are not present. This is

particularly in relation to representation in the clothing and footwear sector.

6.12 The 2014 WYG assessment into the health of the District’s major centres concludes that Lancaster

City Centre remains a healthy and thriving centre which continues to play a vital role as a key

commercial destination in the District. The strengths of Lancaster City Centre include:

Improvements in the Convenience presence in the city centre provides a greater diversity of

uses;


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The strong proportion of national retailers and anchor tenants which enables it to retain a

strong catchment profile – though its retail ranking has declined in recent years;

The historic character of the City Centre which makes Lancaster distinctive; and

The well maintained environmental quality within the City Centre which enables it to provide a

positive shopping experience for users.

6.13 In terms of weaknesses, it is clear that vacancy levels have increased over recent years, the in-street

surveys suggest that the shortfall of comparison retailing, particularly the clothing sector. However,

future growth in the city centre via the re-use of the Market Hall by Primark and any emerging

proposals for the Canal Corridor North site may arrest any decline.

MORECAMBE TOWN CENTRE

6.14 Morecambe is identified as a district centre and it has also experienced a decline in its retail ranking

by 78 places between 2010 and 2013 (from a ranking of 636th to 714th) which places it within the top

27% of UK shopping venues.

6.15 Morecambe is a traditional seaside resort and retains an important retail and leisure role within the

sub-region. The town flourished from the late 19th Century as a popular tourist destination, though

by the 1970’s its role had declined significantly as it struggled to compete with other resorts.

6.16 The Lancaster District Core Strategy (Policy ER2) identified Central Morecambe as a Regional Priority

Area, noting that through tourism, housing renewal and heritage-led regeneration that Central

Morecambe will be re-invented as a visitor destination drawing on its natural and built heritage and

as an office and service centre with restored historic townscape and revived housing market.

6.17 The mechanism of delivering Policy ER2 in Central Morecambe was the preparation of the

Morecambe Area Action Plan DPD, which was adopted by the Council in December 2014. Further

information on the Action Plan can be found in Section 3 of this topic paper.

6.18 The main focus of town centre uses are along pedestrian areas Euston Road, the New Market Square

and the indoor Arndale Centre. There are a number of town centre uses dispersed over the

promenade area but there is no direct focus of these uses.


2005 2014

No. of Units Morecambe UK No. of Units Morecambe UK

Convenience 29 8.4% 9.1% 18 5.4% 8.2%

Comparison 101 29.4% 37.1% 88 26.4% 32.8%

Retail Service 35 10.2% 12.6% 45 13.5% 13.9%

Leisure Service 88 25.6% 20.4% 84 25.2% 22.2%


Vacant 53 15.4% 9.1 63 18.9% 11.6%

Total 344 100% 100% 333 100% 100%

Table 6.3: The Diversity of Uses within Morecambe Town Centre – A Comparison 2005 and 2014



14


2005 2014

Sqm Morecambe UK Sqm Morecambe UK

Convenience 14,410sqm 22% 14.7% 13,610sqm 18.2% 14.8%


Retail Service 3,133sqm 4.8% 7% 5,060sqm 6.8% 7.4%


Financial Service 5,914sqm 9% 9.2% 4,980sqm 6.7% 8.3%

Vacant 6,840sqm 10.4% 7.1% 9,470sqm 12.7% 9.4%

Total 65,611sqm 100% 100% 74,770sqm 100% 100%

Table 6.4: Floorspace Levels within Morecambe Town Centre – A Comparison 2005 and 2014


6.19 There is a clear under representation of comparison retailers in the town centre which has been

highlighted via consecutive retail studies. Since 2005 the number of comparison retailers has

continued to decline although the amount of comparison floorspace has in fact increased, although

this can be accounted for by the Homebase and Next stores which have opened in the intervening

period.

6.20 Whilst a number of national retailers remain in the town centre, there has been a steady decline in

their presence which has continued via the closure of Tesco’s and Argos within the Arndale Centre.

There has been an increase in the levels of discount goods stores and charity shops which illustrate

wider economic issues within the town.

6.21 There is a high level of vacancy within the town centre (18.9%) when compared to the national

average (11.6%) with a total of 42 units vacant (comprising 7,330sqm of floorspace). Site survey

work was undertook in March and therefore this picture may improve on a seasonal basis with

businesses operating on a temporary basis. However, there continues to be a high number of long

term vacancies within the town centre which detract from the environment quality of a number key

areas.

6.22 The 2014 WYG assessment concludes that although Morecambe continues to perform an important

role as the second largest centre in the district it remains in a vulnerable position. However, it is

recognised that there a number of independent traders and leisure uses which help attract residents

and visitors. However, there is a significant shortfall in comparison retailing in the town particularly

from national retailers with a high level of vacancy and an overall poor environment which creates a

poor impression of the town. It is recognised that the Morecambe Area Action provides the

opportunity to address some of the weaknesses of the town centre.

CARNFORTH TOWN CENTRE

6.23 Carnforth is not classed in the Venuescore rankings due to its small scale and low provision of

national operators. It is a small market town which performs an important role in the North

Lancashire and South Cumbria region. It continues to attract visitors due to its location close to the

coast and its heritage value.


15


2005 2014

No. of Units Carnforth UK No. of Units Carnforth UK

Convenience 8 10.3% 9.1% 4 5.8% 8.2%

Comparison 22 28.2% 37.1% 24 34.8% 32.8%

Retail Service 16 20.5% 12.6% 16 23.2% 13.9%

Leisure Service 10 12.8% 20.4% 14 20.3% 22.2%


Vacant 7 9% 9.1% 1 1.4% 11.6%

Total 78 100% 100% 69 100% 100%

Table 6.5: The Diversity of Uses within Carnforth Town Centre – A Comparison 2005 and 2014



2005 2014

Sqm Carnforth UK Sqm Carnforth UK

Convenience 2,913sqm 28.9% 14.7% 4,242sqm 37.5% 14.8%


Retail Service 1,310sqm 13% 7% 1,194sqm 10.6% 7.4%


Financial Service 960sqm 9.5% 9.2% 897sqm 7.9% 8.3%

Vacant 588sqm 5.8% 7.1% 140sqm 1.2% 9.4%

Total 10,087sqm 100% 100% 11,309sqm 100% 100%

Table 6.6: Floorspace Levels within Carnforth Town Centre – A Comparison 2005 and 2014 (Source: WYG Retail

Study 2006, LCC Site Survey Work and GOAD 2014)

6.24 There are 24 comparison stores in Carnforth town centre which are primarily local independent

retailers with only a few national multiples present. With the opening of a new Aldi the level of

convenience outlets is reasonable and there is also a good mix of services found within the town.

6.25 The 2014 WYG assessment considers that Carnforth is a particularly healthy centre with a number of

key strengths due the variety of independent retailers and low levels of vacancy. Whilst the level of

national retailers within the town centre is low this is not considered surprising given the scale and

role of Carnforth.

LOCAL CENTRES IN LANCASTER DISTRICT

6.26 There are currently 13 identified local centres in the district which are set out in the adopted Local

Development Plan and Policy ER4 of the Lancaster District Core Strategy. These local centres are

situated in both urban and rural locations and provide local service and retail needs for the

surrounding residents.

6.27 The Strategic Policies and Land Allocations DPD sets out a new retail hierarchy for the district,

including the identification of a range of local centres which will be identified to meet basic service

provision. To inform the understanding of the role and function of local centres, the Council

commissioned WYG to undertake assessments of each local centre.

6.28 The Lancaster District Local Centres Study was completed in July 2017 and involved an assessment of

each previously designated local centre and any proposed new centre in areas of growth to ensure

that they remained fit for purpose through the course of the next plan period. The assessment

involved site visits and the consideration of a number of issues including:


16

The Diversity of Uses;

The Proportion of Vacant Street Level Property;

Commercial Yields on Non-Domestic Property;

Customer’s Views and Behaviour;

Retailer Representation and Intentions to Change Representation;

Commercial Rents;

Pedestrian Flows;

Accessibility;

Perception of Safety and Occurrence of Crime; and

State of Environmental Quality.

6.29 When considering diversity, it is clear that Bare, Torrisholme, Morecambe West End and Heysham

Road are the key retail and service locations in the area, with high numbers of units and floorspace

than the other locations. West End is the largest local centre by some margin with over double the

number of units of Bare, the next largest local centre.

LOCAL CENTRE TOTAL NO. OF OUTLETS TOTAL AMOUNT OF FLOORSPACE

Bare 29 2,108sqm

Torrisholme 20 2,031sqm

Westgate 11 3,187sqm

Morecambe West End 126 12,439sqm

Bowerham 15 1,770sqm

Lancaster University 13 3,327sqm

Heysham Road 19 2,425sqm

Heysham Village 5 326sqm

Caton 5 905sqm

Hornby 4 981sqm

Galgate 1 186sqm

Bolton-le-Sands 10 769sqm

Silverdale 8 861sqm

Halton 6 386sqm

TOTAL 272 31,701sqm

Table 6.7: Summary of Local Centre Provision (WYG 2017)

6.30 Morecambe West End contains the highest number of retail units (14) although all of these are of a

small scale, the largest convenience operator within a local centre is the Lidl store at Westgate.

Given the low proportions of units present in many of the centres, the number of convenience goods

outlets is greater than the national average for all centres (excluding Heysham Village which does

not have a convenience goods offer).

6.31 The provision of comparison goods units is consistently low across the local centres, excluding Bare

where the provision exceeds the national average figures in terms of both the number of

comparison goods units and proportion of floorspace. Whilst the other centres are under-

represented, for local centres a strong comparison goods offer is not required to achieve their

function of meeting the basic day-to-day needs of their residents.

6.32 It is worth noting that in rural local centres, all accommodate less than ten units. The facilities in

these locations serve significantly smaller catchments (in population terms) than centres in the


17

urban area but they nevertheless play a key role in serving the day-to-day needs of residents in

these rural communities.

Centre No. of Units

Local Centre Provision (No of Units)

Convenience Comparison Service Leisure Financial Vacant

Bare 29 5 12 5 5 2 0

Torrisholme 20 2 6 4 7 1 0

Westgate 11 4 1 2 4 0 0

West End 126 14 32 12 20 2 46

Bowerham 15 3 2 5 3 1 1

University 13 2 2 4 3 2 0

Heysham Road 19 4 1 4 7 1 2

Heysham Village 5 0 1 1 3 0 0

Caton 5 1 1 2 1 0 0

Hornby 4 1 0 1 2 0 0

Galgate 1 1 0 0 0 0 0

Bolton-le-Sands 8 2 2 2 2 0 0

Silverdale 8 2 1 2 2 1 0

Halton 6 2 1 1 1 1 0

Table 6.8: Diversity of Use by Units (Number of Units) (WYG 2017)

6.33 The proportion of vacant property in local centres was considered to be low, with many centres

having no signs of vacancy. However, Morecambe West End which comprises a significantly greater

number of retail and service units than other local centres in the district does have a substantial

level of vacancy. Within the Morecambe West End, 46 of the 126 units surveyed by WYG were found

to be vacant. The area has been subject to long term vacancy issues and has been identified as a

regeneration priority area for the Council for some time.

BARE LOCAL CENTRE

6.34 Bare is an attractive and well performing local centre. It has a good mix of commercial units and

provides a range of both retail and service provision for the surrounding local community. As of April

2017 there were no vacancies and signs of operators taking refurbished units, including a micro-

brewery bar. The centre is well maintained and the environmental quality of the centre is a high

standard. It is accessible with regular bus services and has readily available parking and has a good

level of pedestrian footfall.

BOLTON-LE-SANDS LOCAL CENTRE

6.35 Bolton-le-Sands local centre is a small centre with limited provision for commercial operators. The

Spar convenience store does perform an important role in serving the local catchment but there are

limited other uses for local residents to use.

BOWERHAM LOCAL CENTRE

6.36 Bowerham local centre has a good range of uses and a limited proportion of vacant units. The centre

serves an important role for the local resident population, which also consists of a number of

students. The range of uses and overall environmental quality demonstrates the centre’s overall

strength and positive health.

CATON LOCAL CENTRE

6.37 Caton local centre provides a range of retailers and service operators in a relatively rural part of the

district. It serves a very important role in meeting their everyday retail and service needs. The centre

has a good level of free parking and the overall environmental quality of the centre is good. The Co-


18

op convenience store provides residents with a good top-up shopping facility, alongside the Boots

pharmacy and Post Office, both also providing important services and facilities in an otherwise rural

location. Providing local facilities assist in reducing the need for residents to travel to meet their day-

to-day shopping and service needs.

GALGATE LOCAL CENTRE

6.38 Galgate local centre no longer performs as a local centre, in light of it consisting of few commercial

units, the largest of which is the Spar convenience outlet. There has been the loss of a new of

operators in the centre over recent years, in particular the local post office. Whilst the convenience

operator is important for the local population, the existing centre does not perform as a local centre

due to its limited overall provision and offer. Further, the centre has limited parking due to the busy

nature of the road (the A6) running through Galgate.

HALTON LOCAL CENTRE

6.39 Halton is a small village located to the north east of Lancaster, bounded to the South by the River

Lune. There is a small parade of retail and service units which serve the local population, this also

includes a small convenience store. This parade provides day-to-day service needs for residents that

we consider to be generally consistent with the level of service provision in other rural local centres.

As a result Halton will be included as a rural local centre in the retail hierarchy.

HEYSHAM ROAD LOCAL CENTRE

6.40 Heysham Road local centre performs well, and consists of a range and mix of commercial operators

plus key national multiples. It is well served by public transport and has a good level of on-street free

car parking. The centre performs an important role in meeting residents needs and is one of the few

local centres with more than one national convenience operator, demonstrating its strength and

popularity.

HEYSHAM VILLAGE LOCAL CENTRE

6.41 Heysham Village local centre does not offer a range of retail and service uses typically found in local

centres. The centre does not perform an important role for local residents and, in particular, does

not have a convenience store to meet day-to-day needs. Overall, it is not considered that the

Heysham Village centre perform a local centre function and is not contributing to the wider centre

hierarchy of the district.

HORNBY LOCAL CENTRE

6.42 Hornby local centre does not offer a wide range of commercial uses and does not achieve high levels

of footfall. There is a limited convenience and comparison retail provision. The single convenience

operator is also of a small size and therefore has a limited overall offer for the surrounding residents.

However, free car parking is available on the side of the streets and the overall environmental

quality is good. Hornby Institute plays an important role in the centre, with a range of weekly events.

LANCASTER UNIVERSITY LOCAL CENTRE

6.43 Lancaster University has a well performing local centre serving the university campus, which has a

significant residential population on site. The centre contains a range of national multiples such as

Spar, Greggs, WH Smiths, Costa Coffee and Subway. The centre performs an important role in

meeting the needs of the local student population.


19

SCOTFORTH LOCAL CENTRE

6.44 Scotforth lies to the south of the city centre, and the existing population is served by the Booth

supermarket on Scotforth Road. There are two Spar outlets and a range of other services provided

on Scotforth Road, therefore basic convenience services can be met locally for residents of Scotforth

and, given the size of the current population, and its proximity to Lancaster City Centre, there is no

current need for further retail and service provision in the area. However, the strategic growth

planned at Bailrigg Garden Village will change the current needs and demands and these are

discussed in more detail within Section 11 of this paper.

SILVERDALE LOCAL CENTRE

6.45 Silverdale local centre performs an important role in the northern periphery of the district. The

centre has a good range of commercial operators and the overall environmental quality is of a high

standard. The local community hall plays an important role in the centre, with a range of weekly

events.

SKERTON

6.46 The Skerton area, whilst not currently accommodating a local centre, benefits from a number of

stand-alone convenience stores supporting the surrounding residential population. This includes a

Co-op Store, Londis and two Spar outlets. Basic convenience services can therefore be met in the

locality for residents of Skerton and, given the size of its current population, and proximity of the

suburb to Lancaster City Centre, there is no specific needs for further service and retail provision.

However, the strategic growth planned in the North of Lancaster will change the current needs and

demands and these are discussed in more detail within Section 11 of this paper.

SLYNE-WITH-HEST

6.47 Hest Bank has a limited retail, service and other uses located along Marine Drive and Coastal Road.

There is no convenience goods store at Hest Bank. Given the levels of service provision present, it is

not considered appropriate to designate a local centre in the Slyne / Hest Bank area.

TORRISHOLME LOCAL CENTRE

6.48 Torrisholme local centre has a good diversity of uses, with convenience operators providing day-to-

day need needs for top—up shopping and a range of services to meet the local population’s needs.

The centre performs an important role in providing retail and service uses for the local population

and to meet every day needs. There is also a good range of leisure service uses, including public

house.

WEST END LOCAL CENTRE

6.49 Morecambe West End appears to be struggling and has a substantial level of vacant units which

significantly adds to its poor overall health. There are few convenience operators and a high

proportion of charity shops and takeaways, which do not improve the vitality and viability of the

centre. However, due to its location, there are considered to be opportunities to enhance the centre

whether through the wholesale regeneration or the consolidation of existing uses to condense the

centre and encourage residential uses elsewhere. This will need to be designed to be of a scale and

function to successfully operate against any potential retail scheme located on the former

Frontierland site, due to its proximity.


20

WESTGATE LOCAL CENTRE

6.50 Westgate local centre has a good overall mix of uses, with a high number of national multiples. The

format of the centre in a more traditional out-of-centre style retail park or shopping centre format,

also adds to the overall modern environmental quality. The centre enjoys good levels of pedestrian

footfall. There is a good overall provision of operators serving local needs, and both main and top-up

requirements for residents.

7. COMPARISION (NON FOOD) RETAILING TRENDS

COMPARISON RETAILING – CURRENT AND EMERGING RETAIL TRENDS AT A NATIONAL LEVEL

7.1 The retail market and the need for new development is continually evolving as a result of numerous

factors including demographics, consumer demands, car ownership, planning policy and

technological advances (particularly via the internet). The share of retail spending nationally has

undergone a significant shift in the last decade, with surveys identifying that overall town centre

spending has declined from 47.7% in 2002 to 39.9% by 2012. In contrast, levels of spending in out-

of-centre locations has increased over the same period by 2.1%. These changes have had significant

impacts on the format and location of retail and leisure floorspace – which led to the Government

re-affirming their commitment to a town centre first policy approach via the National Planning Policy

Framework.

7.2 The economic conditions since the recession of 2008 have resulted in significant structural changes

to the high street whereby financial constraints on retailers have led to an increased caution in

investment decisions. On the ground this had led to shop closures, abandoning their representation

in weaker centres and concentrating on acquiring sites in city centres and major regional shopping

destinations. The Grimsey Review (2013) noted that the national town centre vacancy rates equate

to over 22,000 empty shops in the top 650 town centres.

7.3 Experian, which monitors and forecasts retail consumer expenditure in the UK, has reviewed its

forecast growth rates for both convenience and comparison good expenditure. Experian’s forecast

(as of October 2013) for comparison (non-food) retailing is growth of +3.2% forecast at 2013, +2.3%

at 2014, +2.8% at 2015 and +2.9% thereafter. Whilst these increased forecasts have been

encouraging and have shown signs that confidence in spending is returning, it is evident that these

forecast growth rates are still well below the annual growth (of between 4% and 6%) which was

recorded prior to the economic downturn of 2008.

COMPARISON RETAILING – CURRENT AND EMERGING LOCAL TRENDS WITH LANCASTER DISTRICT 7.4 Whilst it is not anticipated that growth in retail spending over the next ten years will mirror that

achieved after the turn of the millennium, there is expected to be some growth in comparison goods expenditure in coming years. Consequently, there is an increasing focus from retailers on achieving more efficient use of their floorspace and the provision to expand.

7.5 Retailers are more reluctant to commit to new development than in previous decades, instead they

are becoming more selective and only securing accommodation which is appropriate both in terms

of location, size and type of premises provided.

7.6 At 2013, it is estimated that the district’s population generates £1,019 million of comparison goods

expenditure annually, which is forecast to increase to £1,710 million by 2031. This represents an


21

increase of £600 million (67%) between 2013 and 2031. Whilst this increase is significant, it is more

modest than that which was forecast prior to economic downturn.

Figure 7.1: Total Available Expenditure Study Area – Comparison Retailing Only (Source: WYG 2014)

7.7 In relation to district’s market share (i.e. the proportion of money which is spent in the district’s

shops) table 8 below indicates that since 2006 there has been a decline in the Lancaster City Centre’s

market share, from 19.3% in 2006 to 15.4% in 2015, this represents a 3.9% decline. Despite this

Lancaster City Centre maintains a greater market share than any other centre or out-of-centre

facility in the District at 15.4%.

Centre Market Share

2006 2013 2015 Difference

Lancaster City Centre 19.3% 16% 15.4% -3.9 %

Morecambe Town Centre 4.5% 4.6% 4% -0.5%

Carnforth Town Centre 0.2% 0.4% 0.3% +0.1%

Local Centres 0.2% 0.2% 0.3% +0.1%

Lancaster City Retail Park 1.7% 3.1% 3% +1.3%

Bulk Road Retail Park 0.7% 1% 3% +2.3%

Central Drive, Morecambe 0.1% 0.5% 0.4% +0.3%

Other Out of Centre 0.8% 1.3% 1.2% +0.4%

Total 27.6% 31.4% 29.6% +2%

Table 7.1: Comparison Goods Market Share by Centre (Source: WYG 2006, 2014 & 2015)

7.8 The comparison goods market share of Morecambe Town Centre is lower at 4% with Carnforth

having a market share of just 0.3%. Since 2006, Lancaster City Retail Park (which is located at White

Lund) comparison goods market share has increased to 3%, Bulk Road Retail Park to 2.3% and the

market share of other out-of-centre facilities (for example Lancaster Leisure Park) has increased to

1.2%.

0

200

400

600

800

1,000

1,200

1,400

1,600

1,800

2013 2018 2023 2028 2031

Total Available Expenditure

Comparison Goods Expenditure (Millions) Convenience Goods Expenditure (Millions)


22

7.9 It is clear that whilst overall there has been an increased in the district’s market share (of 2%) these

increases have come via out-of-centre destinations and not through improvements to the offer to

main town centres, particularly Lancaster and Morecambe which have seen decline, with regard to

Lancaster City Centre persistent decline. The results demonstrating that there has been a shift in

retention away from the city centre to out-of-centre retail parks.

7.10 For the purposes of this topic paper, comparison goods have been divided into eight sub-categories

which include:

Bulky Retail Goods Non-Bulky Retail Goods

DIY Clothing and Footwear

Electrical CDs, DVDs and Books

Furniture Small Household Goods

Health and Beauty / Chemist Goods Toys, Games, Bicycles and Recreational Goods

Table 7.2: Different types of Comparison Retailing (Source: WYG 2014)

7.11 For more information on these specific types of comparison retailing then please refer to the

Lancaster District Retail Development Strategy which is available from the Council’s Planning Policy

webpages at www.lancaster.gov.uk/planningpolicy.

8 CONVENIENCE (FOOD) RETAILING TRENDS

Convenience Retailing – Current and Emerging Local Trends within Lancaster District 8.1 It is estimated that, at 2013, the resident population of the district generates approximately £734.8

million of convenience goods expenditure. This is forecast to increase to £866.3 million by 2031 which represents an increase of £131.5 million (or 17.9%) between 2013 and 2031. Up to 2018, the convenience goods expenditure is estimated to increase to £753.7 million, which represents an increase of just £19m (+2.6%). Estimated growth is set out in more detail in Table 10 below.

Figure 8.1: Total Available Expenditure Study Area – Comparison Retailing Only (Source: WYG 2014)

0

200

400

600

800

1,000

1,200

1,400

1,600

1,800

2013 2018 2023 2028 2031

Total Available Expenditure

Comparison Goods Expenditure (Millions) Convenience Goods Expenditure (Millions)

http://www.lancaster.gov.uk/planningpolicy


23

8.2 Table XX below shows the main food market share within each of the centres within Lancaster

District. At 2013, Lancaster City Centre, as the main centre in the District has a substantially greater main food market share than that is achieved by Morecambe or Carnforth. Although Morecambe has a very low food market share this has increased significantly (by just under 50%) since 2006, whilst the market share of Lancaster and Carnforth have decreased by 0.4% and 0.5% respectively.

Centre Market Share (%)

2006 2013 Difference

Lancaster City Centre 8% 7.6% -0.4%

Morecambe Town Centre 0.6% 1% +0.4%

Carnforth Town Centre 1.6% 1.1% -0.5%

Local Centres 1% 0.3% -0.7%

Other (Undefined Centres) 27.3% 29.6% +2.3%

Total 38.5% 39.6% +1.1%

Table 8.1: Main Food Shopping Market Share by Centre (Source: WYG 2014)

8.3 Local Centres in Lancaster District attract a main food market share of 0.3%. This low market share is

to be expected given the nature of local centres in catering for day-to-day localised shopping needs.

The market share achieved in these local centres is substantially lower than the market share

achieved in 2006.

8.4 Overall, the largest main food shopping market share (29.6%) is achieved by convenience retail

stores which are located in ‘out-of-centre’ locations within the district. The market share of such

facilities has increased by 2.3% since 2006 and can be attributed to the expansion of existing stores

and creation of new stores. This includes Aldi (Morecambe Road), Asda (Ovangle Road) and

Sainsburys (Lancaster Road). The improvements to the main food market share of out-of-centre

facilities is reflected by the decreases to the market share within town and local centres.

8.5 Table 12 below shows the top-up food market shares achieved in Lancaster District. Facilities in

Lancaster City Centre retain the greatest top-up shopping market share (8.8%), followed by

Morecambe (2.2%) and Carnforth (1.9%). Since 2006, the top-up market share for both Lancaster

and Carnforth has increased, whilst there has been a decline in Morecambe.

Centre Market Share (%)

2006 2013 Difference

Lancaster City Centre 6.7% 8.8% +2.1%

Morecambe Town Centre 2.8% 2.2% -0.6%

Carnforth Town Centre 1.5% 1.9% +0.4%

Local Centres 7.4% 5.3% -2.1%

Other (Undefined Centres) 18.5% 19.1% +0.6%

Total 37.5% 37.3% -0.2%

Table 8.2: Top-up Shopping Market Shares by Centre (Source: WYG 2014)

8.6 Lancaster’s market share has increased in part due to the introduction of small format convenience

stores in the City Centre (Sainsbury’s, Tesco’s and Morrison’s all have a presence). Local centres in

the district retain a market share of 5.3% which is a decrease of over 2% since 2006. During the same

period the top-up market share for out-of-centre facilities has increased – from 18.5% in 2006 to

19.1% at 2013.


24

9 FUTURE RETAIL NEEDS AND RETAIL CAPACITY – COMPARISON RETAILING

9.1 The three principal centres of Lancaster, Morecambe and Carnforth contain a wide range of

comparison retailers, including high street multiples and independent retailers, as well as out-of-

centre retail warehousing and comparison goods floorspace located within major supermarkets.

Lancaster City Centre has the greatest level of comparison goods floorspace (equating to over

31,000sqm gross). Morecambe has the second highest level in the district with 14,800sqm (gross),

Sunnycliffe Retail Park on White Lund provides 11,130sqm (gross) and Bulk Road / Kingsway Retail

Park (both Lancaster) provides 5,600sqm (gross).

9.2 The WYG analysis of 2015 indicated that the level of trade which passes through comparison goods

facilities which originate from inside the district is £323.8m. This represents a market share of 29.6%

of the total comparison goods expenditure generated. WYG estimated that a further £51.9m was

drawn into the city from outside the district – this represents an inflow of approximately 16%.

Future Capacity for Comparison Retailing - District Wide Requirements

9.3 In relation to district-wide requirements, the WYG assessment estimated that there would be an

expenditure deficit of £1.8m in the short time period of the plan up to 2018. However, the outlook

suggests that the surplus expenditure will increase significantly through the medium to long term

period of the plan up to 2031.

Year Benchmark Turnover (£m) Derived Available Expenditure (£m) Surplus Expenditure (£m)

2013 £375.7m £375.7m 0.0

2018 £448.5m £446.7m -£1.8m

2023 £495.2m £512.5m £17.3m

2028 £546.7m £601.3m £54.5m

2031 £580.2m £660m £79.7m

Table 9.1: Baseline – Quantitative Need for Comparison Goods Floorspace in Lancaster District – Maintaining

the Existing Market Share (Source: WYG December 2015 Assessment Table 3.13)

9.5 As of 2015 approximately 12,914sqm (net) of comparison goods floorspace is currently proposed

across the district (in the form of extant planning permissions). The most significant extant

permission being the delivery of a retail park at the Former Frontierland site in Morecambe which if

implemented would generate up to 11,109 in new retail floorspace, the majority of which would be

for comparison retailing. As identified in table 9.2, these commitments absorb all of the identified

capacity for major new comparison growth in the short term up to 2018 (based on the existing

market share of 29.6% being maintained).

Year Comparison Goods

£m Floorspace Requirement (Sqm Net)

Surplus Implemented Residual Minimum Maximum

2013 0.0 - - - -

2018 -£1.8m +£4.5m -£6.4m -1,100sqm -1,800sqm

2023 +£17.3m +£5m +£12.3m +1,900sqm +3,100sqm

2028 +£54.5m +£5.5m +£49m +6,700sqm +11,200sqm

2031 +£79.7m +£5.9m +£73.9m +9,600sqm +15,900sqm

Table 9.2: Quantitative Need for Additional Comparison Goods Floorspace in Lancaster District – Maintaining

the Existing Market Share (Source: WYG December 2015 Assessment Table 3.14)


25

9.7 Given the extant permissions, should the Local Plan seek only to maintain the Districts existing

market share of 29.6% then this commitment would absorb the medium term capacity for new

comparison retail growth up to 2028.

9.8 However, the WYG assessment looked at a series of scenarios which not only included maintaining

the current market share for comparison retailing (as set out above) but also a scenario where the

existing market share for the district (29.6 %) was enhanced to 35% which is considered by WYG to

be a realistic and acheivable level of growth through the course of the plan period.

9.9 Results of the WYG assessment show that Lancaster District has (relatively speaking) a high retention

of both convenience and comparison goods retailing, with limited loss of trade to other competing

centres. This is partly due to the geographical location of the district and partly due to the existing

retail strength of existing provision.

9.10 Whilst retail provision remains strong at present, there is a clear decline in market share within

Lancaster City Centre which will continue through the plan period if no intervention takes place. It is

therefore evident that there is a qualitative need to improve the retail offer within Lancaster City

Centre and Morecambe Town Centre to respond to this decline. It is likely that any improvements in

retail offer could claw back trips and expenditure from surrounding retail parks and then also draw

additional people into the centre from the surrounding area.

9.11 The WYG assessment states that through positive intervention Lancaster District could seek to aspire

to a market share of at least 35%. This could be delivered through an enhancement to key retail

sectors (particularly the clothing and footwear sector) through inventions within central and

accessible locations.

9.12 Table 9.3 below shows the expenditure capacity for comparison goods that could be realised

through achieving an enhanced market share of 35% through a qualitative improvement of the retail

offer. This enhanced position shows that the expenditure would increase to £67.9m at 2018 (under

the maintaining the current market share this was a deficit of £1.8m).


2013 £375.8m £375.7m 0.0

2018 £448.5m £516.4m £67.9m

2023 £495.2m £593m £97.8m

2028 £546.7m £696.5m £149.8m

2031 £580.2m £765m £184.8m

Table 9.3: Baseline – Quantitative Need for Comparison Goods Floorspace in Lancaster District –Enhancing the

Existing Market Share (Source: WYG December 2015 Assessment Table 3.21)

9.13 After considering the commitments, as set out in paragraph 9.5, there is an identified capacity for

major new comparison goods development in the short-term up to 2018 (based on the 35%

enhanced market share) of between 10,600sqm (net) to 17,700sqm (net). This figure increases

significantly throughout the plan period up to 2031.

9.14 As previously mentioned, the Council decision to approve a significant comparison retail scheme at

Frontierland, Morecambe impacts on the WYG assessment of 2014. The commitment of 11,109sqm

(gross) of comparison retail floorspace, if delivered, would meet the comparison needs of the district


26

in the short-term up to 2018 with requirements increasing again over the medium to long term of

the plan period up to 2031.

Year Comparison Goods


Surplus Extent Residual Minimum Maximum

2013 0.0 - - - -

2018 +£67.9m +£4.5m +£63.3m +10,600sqm +17,700sqm

2023 +£97.8m +£5m +£92.8m +14,100sqm +23,500sqm

2028 +£149.8m +£5.5m +£144.2m +19,800sqm +33,000sqm

2031 +£184.8m +£5.9m +£178.9m +23,200sqm +38,600sqm

Table 9.4: Quantitative Need for Additional Comparison Goods Floorspace in Lancaster District – Enhancing the

Existing Market Share (Source: WYG 2014 Assessment Table 6.17)

9.15 Notwithstanding this and in the context of paragraph 23 of the Framework which suggest that local

planning authorities should plan positively for centres which are experiencing decline, should the

Council seek to pursue an enhance market share of 35% it would assist in the medium to long term

in addressing the current decline of Lancaster City Centre’s market share and improve the overall

retail offer this will lead to an enhanced market share and will need a stepped change, requiring new

levels of floorspace to be delivered to support that aspiration.

9.16 The merits of discussion such an aspiration are discussed in more detail through Section 11 of this

topic paper.

10 FUTURE RETAIL NEEDS AND RETAIL CAPACITY – CONVENIENCE RETAILING

10.1 The District is relatively well provided for with a variety of foodstore operators, it is assumed that

the future convenience goods expenditure available to Lancaster will be commensurate to its

current market share.

10.2 The WYG analysis of 2014 indicated that the level of trade which passes through convenience goods

facilities (foodstores) which originates from inside the district is £266.9m. A further £37m is

estimated to be attracted to convenience retail facilities from outside the district – taking this total

expenditure to £303.9m.

Future Capacity for Convenience Retailing - District Wide Requirements

10.3 Tables 10.1 and 10.2 below indicate the current trading position compared the anticipated turnover

of existing convenience stores and project this forward through the plan period (assuming the

market remains constant).


2013 £288.9m £303.9m £15m

2018 £280.3m £299.7m £19.4m

2023 £280.3m £299m £18.7m

2028 £280.3m £300.7m £20.4m

2031 £280.3m £300.9m £20.6m

Table 10.1: Baseline – Quantitative Need for Convenience Goods Floorspace in Lancaster District

(Source: WYG December 2015 Assessment Table 3.1)


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Year Convenience Goods


Surplus Implemented Residual Minimum Maximum

2013 +£15m - - - -

2018 +£19.4m +£8.8m +£10.6m +800sqm +2,200sqm

2023 +£18.7m +£8.8m +£10m +800sqm +2,100sqm

2028 +£20.4m +£8.8m +£11.6m +900sqm +2,400sqm

2031 +£20.6m +£8.8m +£11.8m +900sqm +2,400sqm

Table 10.2: Quantitative Need for Additional Convenience Goods Floorspace in Lancaster District

(Source: WYG December 2015 Assessment Table 3.2)

10.4 Table 17 above suggest that the existing convenience floorspace is effectively ‘over trading’ by

£33.5m, this means that there is sufficient spending capacity for further growth in convenience

retailing within the plan period.

10.5 There are a number of commitments should be considered in relation to the above figures in Table

18, in particular the permission for a new Booths store at Scotforth Road, Lancaster and Aldi,

Scotland Road, Carnforth (providing 2,052sqm and 990sqm (net) of new convenience retail space

respectively). Should these permissions be realised this will absorb the majority of short-term

requirements for convenience retailing through the plan period.

10.6 Whilst the overall trading performance across the district is satisfactory this performance is not

consistent through all foodstores, there are instances where certain facilities trade either

particularly well or relatively poorly. For example foodstores in Lancaster tend to be overtrading

whereas facilities in Morecambe and Carnforth tend to be underperforming. This suggests that any

further growth of convenience retailing should be targeted at Lancaster where overtrading is taking

place.

10.7 The distribution of foodstores should also be considered, the majority of stores are located to the

North of the River Lune with only one major foodstore (Sainsburys on Cable Street) being located

south of the River. There are no main foodstores south of the City Centre gyratory system.

10.8 This distribution of foodstores places pressure on South Lancaster residents to drive a significant

distance, through the City Centre one-way system and potentially across the river to access

foodstore provision. This contributes the creation of traffic at key hotpots through food-related trips

by car. Therefore it is important to consider whether exceptional circumstances exist to allow for

further foodstore growth in South Lancaster to address the needs of both existing residents and new

residents.

11 IMPLICATIONS ON THE LOCAL PLAN FOR LANCASTER DISTRICT 2011 – 2031

11.1 In preparing the Strategic Policies & Land Allocations DPD and the Development Management DPD

the Council have sought to prepare planning policy and allocations which are in accordance with the

requirements of paragraph 23 of the Framework.

11.2 The Local Plan seeks to plan positively with regard to town centres, seeking to maintain their existing

roles and, where appropriate to do so and where opportunity exists, enhance their existing roles

through the course of the plan period. The policies contained within the Development Management


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DPD will seek to manage the role of town and local centres within the district and the Strategic

Policies & Land Allocations DPD will seek to identify the role, function and hierarchy of centres.

SETTING THE RETAIL HIERARCHY FOR LANCASTER DISTRICT

11.3 Policy ER4 of the Lancaster District Core Strategy set out the previous retail hierarchy for the district.

Since the Core Strategy was adopted in 2008 there have been no significant changes to the status of

these centres, either in their own right or their relationships between each other.

11.4 Significant growth opportunities existing in both Lancaster and Morecambe, via the Canal Corridor

and Frontierland Schemes respectively, to enhance the role and function of both centres. The

delivery of both schemes through the course of the plan period will assist in further establishing the

roles of these centres as the two centre retail and commercial centres within the district.

Development at the Canal Corridor will re-enforce the sub-regional status of Lancaster City Centre

and development at Frontierland will re-inforce the status of Morecambe as the second largest

centre within the district and its importance to the district’s residents who live to the North of the

River Lune and visitors to the town.

11.5 With regard to Carnforth, the town centre continues to provide an important role not only to the

residents of Carnforth itself but also to the rural hinterland in the north of the district. Whilst there is

not expected to be any significant retail growth within the town, the town continues to serve and a

key role in the district as a market town.

11.6 It is therefore concluded that the new retail hierarchy set out in the Strategic Policies & Land

Allocations DPD does not need to make any fundamental alterations to the key town centres within

the district. In accordance with paragraph 23 of the Framework the DPD will seek to re-affirm a retail

hierarchy for the district which is resilient to future economic change. This is set out in Table XX of

this paper and Policy TC1.

11.7 Whilst the hierarchy for the main town centres remains unchanged, the Council have made use of

the findings of the 2017 Local Centres Study to re-assess the role and function of local centres within

the district.

11.8 To ensure that the DPD only seeks to identify centres which genuinely provide a role and function

for local residents, the hierarchy has removed the both Galgate and Heysham Village Centres due to

limited levels of service provision now found in these areas.

11.9 The retail hierarchy set out below has been formalised within Policy TC1 of the Strategic Policies &

Land Allocations DPD and development which takes place within these centres will be determined in

accordance with the relevant policies contained within the Development Management DPD.

CENTRE NAME ROLE AND FUNCTION COMMENTARY

LANCASTER Regional Centre

Lancaster will maintain and enhance its role as a sub-regional centre for North Lancashire and South Cumbria in terms of retailing, leisure and cultural offer via the regeneration of the Lancaster Canal Corridor and will seek to increase visitor numbers


29

by developing its role as a visitor destination.

MORECAMBE Key Service Centre

Morecambe will continue to develop as a town centre to provide shopping for residents who reside to the North of the River Lune. Regeneration will continue to enhance the town’s retail role and attractiveness as a visitor destination.

CARNFORTH Market Town

Carnforth will maintain its role as a market town and key service centre to the rural hinterland in the North of the District. It will enhance its role as a tourist destination drawing on its proximity to the AONB and its cultural heritage.

BARE TORRISHOLME WESTGATE WEST END

Urban Local Centres (Morecambe)

These local centres will maintain their roles in providing key services to the residents of Morecambe, Lancaster and Heysham respectively.

BOWERHAM BAILRIGG GARDEN VILLAGE +* LANCASTER UNI. EAST LANCASTER + NORTH LANCASTER +

Urban Local Centres (Lancaster)

HEYSHAM ROAD Urban Local Centres (Heysham)

CATON HORNBY HALTON BOLTON-LE-SANDS SILVERDALE

Rural Local Centres

The local centres will maintain their roles in providing key services to the rural communities within the district.

* The scale, size and location of the centres to be provided is still to be determined and will be

considered in greater detail via the preparation of the Bailrigg Garden Village Area Action Plan DPD.

+ Represents the creation of a new local centre as part of the strategic growth plans for South, East

and North Lancaster.

THE CREATION OF NEW CENTRES TO ACCOMMODATE FUTURE GROWTH

11.10 Given the scales of growth proposed in the Strategic Policies & Land Allocations DPD it is important

that new local centre provision is provided in the right places to provide basic local services to both

new and existing residents. Significant growth, particularly in one single location, will place greater

need on basic services and infrastructure which is needed to accommodate the extra demand

generated. The pressure placed on infrastructure and how the Local Plan seeks to address this

matter is discussed in more detail within a separate topic paper, however the further demand on

local services (i.e. retailing and other key services) will be discussed within this topic paper.

BAILRIGG GARDEN VILLAGE

11.11 The largest area of growth is expected to be to the South of Lancaster via the development of

Bailrigg Garden Village, with the proposed development of 3,500 new homes and a range of


30

employment related development, including the delivery of Lancaster University Health Innovation

Campus.

11.12 Given the scale of growth it is clear that new local service provision will be required and Policy TC1 of

the Strategic Policies & Land Allocations DPD recognises such a requirement. The location, scale and

role of local service provision in the Garden Village will be determined and addressed in more detail

via the preparation of the Bailrigg Garden Village Area Action Plan DPD.

11.13 Whilst the detail of the local service provision will be determined via the Action Plan DPD, the Local

Plan anticipates provision in the Garden Village to provide for local services only and should not seek

to compete with other centres in the Lancaster area nor with Lancaster City Centre itself. New local

service provision and new retailing should only be delivered as a complimentary measure to the

wider residential development in South Lancaster. Local service provision should provide key local

services, a basic range of comparison services and convenience retailing to serve the needs of South

Lancaster.

11.14 Recognising the shortfall in convenience retailing opportunities to the South of the River Lune the

Council will support the delivery of a medium-sized foodstore as part of the Garden Village. This will

address recognised deficiencies in foodstore provision in South Lancaster and recent the level of

food-related trips that are made through Lancaster City Centre (thus assisting the alleviation of

traffic through the City Centre).

NORTH & EAST LANCASTER STRATEGIC GROWTH SITES

11.15 The Strategic Policies & Land Allocations DPD has also identified the need for two further local

centres to be provided in relation to strategic growth elsewhere in Lancaster. Both new centres are

considered to be local in nature and provide only basic service provision, this could include a local

convenience store and a parade of other retail commercial units. Whilst no specific area has been

identified for a local centre within the scheme, the Council will expect new local centres to be

positioned in a highly accessible and prominent location within the scheme. In terms of scale, the

2017 Local Centres Study assessed the potential scale of future local centres in these locations which

are set out in Table XX below.

STRATEGIC ALLOCATION

CONVENIENCE FLOORSPACE

REQUIREMENT

COMPARISON FLOORSPACE

REQUIREMENT

OTHER POTENTIAL USES

COMPARABLE EXISTING CENTRES

EAST LANCASTER 380sqm 200sqm GP Surgery Bare, Heysham Rd, Bowerham

NORTH LANCASTER 380sqm 200sqm GP Surgery Bare, Heysham Rd, Bowerham

Table 11.2: Proposed Scale of New Local Centre Provision in area of Strategic Growth (Source: WYG 2017)

11.16 It has been considered that the strategic growth proposed in South Carnforth does not require new

local centre provision, however improved accessibility between new development and Carnforth

Town Centre will be necessary, in particular the creation of a new footbridge over the Lancaster

Canal to improve both pedestrian and cycling connections.


31

GROWTH IN CONVENIENCE RETAILING WITHIN THE DISTRICT

11.17 In accordance with paragraph 23 of the Framework, convenience retailing should be considered in a

positive manner to meet need and demand. There has been significant growth in convenience

retailing over the recent decade, either through the creation of new foodstores or the expansion of

existing stores which is set out in Table 11.3 below.

Application Ref. Description Operator Floorspace

MORECAMBE

06/00717/FUL Demolition of existing garage and erection of a food store with associated parking, access, servicing and landscape arrangements.

Lidl 1,286sqm (Net)

09/00281/FUL Demolition of existing football buildings and erection of a Sainsburys Foodstore together with a new access, service area, car parking and landscaping.

Sainsburys 3,716sqm (Net)

LANCASTER

09/00147/FUL Erection of an extension to existing Foodstore Sainsburys 1,297sqm (Net)

10/00251/OUT Erection of a new Foodstore, construction of a new access, servicing and parking areas, footways, cycle facilities and landscaping.

Booths 2,052sqm (Net)

12/1090/FUL Demolition of part of the existing Foodstore and the erection of an extension to provide additional retail floorspace with alterations to the car parking layout.

Aldi 200sqm (Net)

CARNFORTH

10/00243/FUL Erection of an extension to the rear of existing Booths Foodstore.

Booths 492sqm (Net)

13/00217/FUL Demolition of office and workshop buildings and the erection of a new Foodstore with associated car parking and Access.

Aldi 990sqm (Net)

Table 11.3: Implemented planning permissions for foodstores since 2006 (Source: Lancaster CC)

11.18 The recent development in convenience retailing has also been complimented by a range of town

centre stores which offer basic convenience retailing. This has seen the development of Tesco

‘Metro’ and Sainsbury ‘Local’ Stores in Lancaster City Centres which seek to address the demands of

an increasing student population living in Central Lancaster.

Application Ref. Description Operator Floorspace

LANCASTER CITY CENTRE

08/01129/FUL Construction of a six-storey development with A1 retail use to the ground / first floors with 115 bedroom hotel at second to fifth floors.

Tesco’s 1,999sqm

(Gross)

10/01016/FUL Redevelopment of existing commercial premises to provide 96 student study bedrooms to upper floors, retail space (A1) to the ground floor.

Sainsbury’s 985sqm (Gross)

Table 11.4: The Development of In-Centre Convenience Retailing within Lancaster City Centre

11.19 The 2015 WYG assessment suggests that the requirements for new convenience retailing through

the plan period is minimal, particularly if extant planning permissions are implemented. As a result

the Local Plan does not seek to identify any significant further growth in convenience retailing

beyond the providing basic local service provision.

11.20 However, the Council does recognise the importance of addressing the deficiencies of foodstore

provision in the South of Lancaster, reflected in the distribution of existing stores (which are


32

primarily located to the North of the River Lune) and the overtrading identified in the Lancaster

based foodstores. It is therefore considered important in sustainability terms that new foodstore

provision is delivered as part of the Bailrigg Garden Village, via the delivery of a medium-sized

foodstore, to ensure that food-related trips made by car are minimised and a better range of choice

is provided to both existing and new residents in South Lancaster.

11.21 The Council will also support limited levels of convenience related retailing in Lancaster City Centre,

particularly where it is demonstrated to enhance the offer and viability of the Lancaster Canal

Corridor Scheme. It is considered that the scale of any convenience retailing will be limited and

should only seek to supplement the delivery of the scheme for wider comparison retailing, leisure,

cultural and residential purposes.

11.22 It is important to note that long-term convenience retail needs may require a more flexible approach

given the continually evolving nature of retail patterns, changing levels of expenditure and the

greater role of the internet in convenience shopping patterns. It will therefore be necessary to

monitor and review this position to ensure requirements continue to be based on robust and up-to-

date evidence.

GROWTH IN COMPARISON RETAILING WITHIN THE DISTRICT

11.23 The Strategic Policies & Land Allocations DPD and Development Management DPD must set out a

positive framework to allow for the future growth of centres within the district. As set out in Section

2 of this paper, the Framework sets out in paragraph 23 a clear direction to local planning authorities

that when preparing a local plan this needs to be positive and set out policies for management and

growth of centres over the plan period. Paragraph 23 also states that where town centres are in

decline, local planning authorities should plan positively for their future to encourage economic

activity.

11.24 Accordingly, the Strategic Policies & Land Allocations DPD has ensured that a positive approach

towards the district’s town centres, particularly the main centres of Lancaster and Morecambe and

seek to provide opportunities for their role and function, and where opportunities exist to do so,

arrest trends of decline, particularly in relation to market share.

11.25 Growth opportunities have already been identified for Morecambe, via the planning approval for the

development of a new retail park at the former Frontierland site on Marine Drive (Application

Reference: 14/00388/FUL) which if implemented will deliver approximately 11,100sqm of new

comparison retailing floorspace. The delivery of this scheme will provide significant scope for

expansion of the comparison retail role in Morecambe for local residents and visitors to the town.

11.26 Furthermore, the implementation of the Morecambe Area Action Plan DPD (adopted in 2014) which

sets out a series of interventions seeking to improve the wider offer within Central Morecambe will

have significant benefits including improving the retailing offer and wider function of the town

centre.

11.27 The allocation of land at Lancaster Canal Corridor and the ongoing work with development partners

to deliver the regeneration of this area is expected to deliver an expansion of the City Centre for

comparison retailing, cultural and residential uses which are supplemented by leisure, employment

and educational uses. The delivery of this scheme will provide a greater diversification of uses within

the city centre and enhance the centre’s role within the wider sub-region.


33

11.28 In order to plan positively for both Morecambe Town Centre and Lancaster City Centre the Local

Plan must seek to deliver for an enhanced market share, as highlighted in Tables 9.3 and 9.4 of this

paper. Both main centres with the district have experiences decline in their market shares over the

past decades, in regard to Lancaster City Centre this decline has been persistent. As highlighted in

paragraph 23 of the Framework, in such circumstances it is the responsibility of the local planning

authority to plan positively in order to arrest such declines to plan for economic activity.

11.29 Simply maintaining a market share (which is set out within Tables 9.1 and 9.2) will allow for extant

permissions to allow growth in Morecambe whilst restraining any future opportunities for

comparison retail growth in Lancaster, which is recognised as the main comparison retail centres

within the district. Restraining comparison retailing in Lancaster will not allow opportunities to

increase the retail offer within the city and is likely to continue to ongoing decline in market share,

threatening Lancaster’s role as a sub-regional centre through the plan period.

11.30 Not addressing recognised decline is contrary to national planning policy and does not represent

positive planning. A restrictive approach to future comparison retailing across the district would not

only be contrary to the principles of the Framework but would also have significant effects on the

ongoing vitality and viability of the existing centre, the loss of further retailers from the centre, the

lack of opportunity to attract new retailers and the continued leakage of expenditure to other

centres within the region, in particular Kendal, Preston and Manchester.

11.31 In taking forward the enhanced market share, it places a requirement on the Local Plan to delivery

between 22,800sqm and 38,1000sqm of net new comparison retail floorspace within the plan period

up to 2031. Such requirements must be judged against existing commitments, in particular the

Frontierland scheme in Morecambe. With this scheme in mind the requirement over the plan period

should be lowered to a requirement of between 11,700sqm and 27,000swm of new net floorspace

within the plan period.

11.32 As a consequence, the Local Plan envisages this comparison retail growth to take place in both

Lancaster City Centre (via the Canal Corridor Scheme) and Morecambe (via the Frontierland Scheme)

to address issues of decline and retain / bolster the retail offers in both the large centres within the

district.

GROWTH IN OTHER FORMS OF RETAILING IN THE DISTRICT

11.33 There are forms of retailing which are not practical or appropriate to locate within main town centre

locations, this is particular the case with the creation forms of bulky goods retail which include for

furniture, DIY and white goods. The district have a number of small existing bulky goods retail areas

which include Sunnycliffe Retail Park to the south of White Lund Employment Area and two small

estates on Bulk Road in Central Lancaster.

11.34 The Council are keen to ensure that opportunities be provided for future bulky goods retail in

appropriate and accessible locations. To ensure this is achieve the Council have identified

opportunities for growth at the Sunnycliffe Retail Park which have good access onto the Bay

Gateway. The allocation of this site has also been identified to provide an opportunity for bulky

goods retail to have alternative locations to locate other than on White Lund Employment area

itself, which suffers with an over-proliferation of non-employment uses.


34

REGENERATION AND ENVRONMENT QUALITY

11.35 The Council remain committed to the improvement and regeneration of Central Lancaster and

Central Morecambe. In Lancaster the Local Plan will be seeking to continue support for the

improvements which have already started via the ‘Square Routes’ and ‘Beyond the Castle’ projects,

working with key partners to improve accessibility in and around the City Centre and improve the

environmental quality of the area.

11.36 Lancaster City Centre is not merely a retail destination. As already described the City Centre has a

range of outstanding heritage assets, in particular Lancaster Castle, which could be utilised to

improve the visitor offer of the City Centre. The Strategic Policies & Land Allocations DPD and

Development Management DPD will support the sensitive regeneration of heritage assets, such as

Lancaster Castle, in order to maximise their economic potential and social benefits to local residents

and visitors to Lancaster.

11.37 A significant element of improving the accessibility and environmental quality of the City Centre will

be to address the impacts of the one-way gyratory. The busy and congested gyratory system acts as

a significant barrier to the movement of people, detracts from the visual amenity of the area and is a

significant source of air pollution from stationary vehicles. Lancaster City Centre is identified as an

Air Quality Management Area (AQMA) due to its poor air pollution.

11.38 Lancashire County Council (who are the statutory highways authority for this area) have prepared a

Highways and Transport Masterplan (published in October 2016) for the district which sets out a

series of planned interventions to address congestion and reduce the levels of through traffic

travelling through the City Centre. The Strategic Policies & Land Allocations DPD will seek to support

any opportunities to see a sustainable reduction in the level of through traffic travelling on the

gyratory system.

11.39 Of equal importance will be the accessibility to the town centre by foot and by bike and the

circulation of movements within the town centre. Improving accessibility within the town centre

whilst also improving its environmental quality are key aspirations of key stakeholders in the City

Centre, including the Lancaster BID team, and the Council. The Local Plan will seek to support

continuing improvements to both accessibility and environmental quality in the City Centre

encouraging a greater role for pedestrian and cycling access.

11.40 In order to achieve these aspirations the Council are working with key partners to deliver a

masterplan / action plan for the City Centre which seeks to improve accessibility and environmental

quality, a key element of which will the management of traffic through the one-way gyratory system.

11.41 With regard to Central Morecambe, the Morecambe Area Action Plan DPD will act as the vehicle to

assist in the regeneration of the town centre to improve its role for local residents and also its offer

for the visitor economy. The Strategy Policies & Land Allocations DPD identifies re-affirms the

strategic principles which underpin the Area Action Plan and is full supportive and compatible with

the aims, objectives and policies of the DPD.

11.42 Carnforth also suffers from poor environmental quality and, similarly to Lancaster, is designated as

an AQMA due to air pollution arising primarily from stationary vehicles. The Strategic Policies & Land

Allocations DPD seeks to address challenging uses in the locality which contribute towards air quality

issues, specifically the employment uses which are situated on Warton Road and seek to promote


35

improved accessibility into the town centre by foot and by bike, particularly from the South of the

town.

IMPROVEMENT OF THE CULTURAL OFFER AND TOURISM

11.43 The district has significant cultural assets in its main urban centres which are valued by the local

community and are considered economic assets, bring visitors into the district which is good for the

local economy. It is important that the potential cultural offer is maximised.

11.44 The Council are exploring opportunities to enhance the cultural offer within Lancaster City Centre via

promoting the sympathetic re-use of Lancaster Castle to maximise its potential as both a historic

asset and a tourism asset. The Council will continue to work with the owners of the Castle, the

Duchy of Lancaster, to ensure that the role of the Castle in the City grows throughout the plan

period to increase visitor number attracted not only to the Castle but also the wider city centre

which will assist in creating investment in the local economy and raising the profile of Lancaster not

only in the region but nationally.

11.45 Lancaster City Centre has a range of museums which reflect the historic nature of the city and are

viewed as an under-utilised cultural and economic asset. The Council are currently working on

assessing how these assets could be better utilised to maximise their economic potential which, in

turn, can secure their existence in the long-term. The Local Plan will seek to protect and promote

their effective re-use as cultural assets for the benefit of local residents and people visiting

Lancaster.

11.46 Lancaster also has a strong arts offer, with the location of both the Grand Theatre and Duke Theatre

adjacent to the City Centre. Again, these facilities help to define Lancaster as a key centre of the arts

within the district and have significant cultural importance within the area. The Council, via the

regeneration of the Lancaster Canal Corridor scheme, will be seeking to investigate ways of how the

arts offer currently provided can be enhanced and secured over the longer term, for example

investigating the delivery of a new Arts Hub within the Canal Corridor scheme.

11.47 Morecambe, as a Victorian seaside town is also has a significant cultural and tourism offer. The

location of Morecambe on the shores of Morecambe Bay means that it generates large numbers of

visitors who are attracted by its coastal location. The Local Plan (and particularly the Morecambe

Area Action Plan DPD) seeks to provide more integration between the promenade area and the

town centre in order to maximise the economic potential of visitors coming into Morecambe and

seeking them to stay in the town for longer.

11.48 Morecambe also has a range of historical assets, such as the Morecambe Winter Gardens which

reflect the history of Morecambe as a holiday resort. The Local Plan will seek the support the

sympathetic regeneration of such buildings to secure their long term future and maximise their

economic potential and cultural benefit for local residents and visitors to the town.

TOWN CENTRES AND RETAILING BACKGROUND PAPER 7 Paper 7 - Reta… · particular this background paper...

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