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Research Study on the Effectiveness of NPPG 8 Town Centres and Retailing
1. Introduction
1.1 In October 1998 a revised form of central government guidance on Town Centres and Retailing (NPPG8) was issued by the Scottish Office Development Department. This national planning policy guideline has now been operative for five years.
1.2 Following the formation of the Scottish Executive the Development Department has taken a continued interest in the application of national planning policy including that for retailing & town centres. In Autumn 2002 the Scottish Executive hosted a retail seminar to assess the need for updated research on the effectiveness of the policy. In December 2002 the Scottish Executive Development Department issued a brief to consultants.
NPPG8 Review - The Brief
1.3 The Executive's Brief for a review of NPPG8 included the following key points:-
1.4 The current NPPG8 sets out a sound and consistent policy framework which provides stability that is necessary for investment in existing centres, but also opportunities for new forms of retail that extends choice. In helping regeneration and improving the competitiveness of various centres, it has a wide significance in terms of promoting opportunities, services and facilities to all sections of the population and therefore plays an important part in delivering the Executive's social justice and sustainable development objectives.
1.5 Rather than a starting presumption that NPPG8 needs to be revised, the brief made it clear that the research aims and objectives were to examine the ongoing performance of Scottish retail planning policy in NPPG8.
1.6 The Brief specified key points for further investigation;
- To assess the operation of the sequential approach and evaluate the effectiveness of NPPG8 in guiding new investment to existing centres.
- The degree of flexibility and realism being employed by developers and planning authorities in applying the sequential approach.
- The appropriateness of guidance on non-retail uses.
- Assessing different definitions used for "edge-of-centre".
- The adequacy of support for town centres - the need to address further measures and actions to improve town centres.
- Access to shopping facilities - are current patterns of shopping inadequate in some rural and urban communities?
- The status of existing out-of-centre developments and whether they should be regarded in the same way as town centres.
- The future role of smaller town centres.
- The role of retail capacity and retail impact assessments.
- The adequacy of data employed in retail planning decisions.
- Overall, the scope for amendment or clarification of particular areas of policy and scope for a shorter and more concise policy statement at national level, if the NPPG8 is revised, to form a new SPP (Scottish Planning Policy) note.
The 2003 Study Team And Their Response To The Brief
1.7 The research team for this study has been led by CB Richard Ellis (CBRE) (formerly CB Hillier Parker). CBRE decided to tackle the Brief in collaboration with other specialists. The study team also included the Institute of Retail Studies (IRS) at the University of Stirling. This provided a comprehensive background in terms of general retail trends in Scotland, the UK and elsewhere and a thorough understanding of the application of land use policy and its implications upon the dynamics of the retail sector. In addition, a further specialist input was invited from Colin Buchanan and Partners (CBP), based in Edinburgh. CBP is an acknowledged national specialist on transportation consultancy. CBP had led the 2001 study for the Scottish Executive on a policy methodology for "Key Sites" (central locations based on strong transport links). This Key Sites study also involved inputs from planning and property specialists at CBRE.
1.8 From the principal points set out in the Brief, CBRE/IRS/CBP consulted in detail on the relative issues and the kind of research tasks which could thoroughly address the key issues. The result was an overall tasks scoping set out in the study team's January 2003 proposals. This is detailed in the chart in Appendix 1 to this document. However, during the course of the study, there was an opportunity to put a finer definition on some of the issues and also some amendment to the overall methodology. The headings below deal with the original methodology and the completed methodology.
Original Methodology
1.9 The study team's original proposals involved a definition of the key issues from the Brief as follows:-
- General retail trends and changes;
- Defining town centres, use mix, the role of larger new centres;
- Sequential approach - flexibility and realism;
- Defining edge of centre;
- Support for new development;
- Retail deprivation in rural or urban areas;
- Retail impact methodology;
- Data sources.
1.10 In order to address the eight issues detailed from analysing the client brief, the study team originally set out seven key tasks:
- Review of research, bibliography and summary reports on retail change.
- Survey of operators.
- Survey of practitioners.
- Town centre managers review.
- Shopping public - summary review of retail trends.
- Review of planning decisions and policy.
- Assessment of site development issues.
1.11 In the initial proposals, it was considered appropriate to cover this wide range of tasks, in order to target each of the issues in sufficient depth. Appendix 1 summarises the coverage of issues, according to each task.
Final Methodology
1.12 From the consultation feedback and key issues emerging from questionnaires, discussions and other correspondence, the format for final reporting condensed the original eight issues down to six headings:
Issue 1: General retail trends and changes in Scotland
Issue 2: Defining centres, their use mix and status
Issue 3: Sequential approach, flexibility/realism and defining edge of centre
Issue 4: Support for new development
Issue 5: Retail deprivation
Issue 6: Retail assessment methodology and data sources
1.13 These six condensed issues are presented in Appendix 2, which is an amended final format for the methodology employed in the study. Appendix 2 also shows that the research tasks were redefined. These were split between desk research and survey research, summarised below:-
Desk Research
- Review of Research bibliography and professional planning comment.
- Retail profiles (a summary of some available data sources to look at overall changes in Scotland).
- A review of assessment techniques employed by retail planning specialists
- A review of sample policies and decisions in Scotland over the last five years.
- A review of general transport issues.
Survey Research
- General shopping public - some pre-existing sample surveys to show recent household shopping habits in Scotland
- Main questionnaires - public and private sector responses and combined results.
- Town centre managers - discussion group
- General discussion forums
- Interviews
- Site development issues research
1.14 Detail of the final approach is given in Appendix 2. This lists the various tasks and sets these out graphically, to show the general level of focus from each task on each of the six key study areas.
Reporting To The Client Group
1.15 The initial commission for the study was issued in January 2003 and this final report compiled in September 2003. Most of the research ran from February to August. Over this seven month period, the study team engaged with a wide variety of consultees and participants through various different channels. An important element of the study was a regular pattern of briefing reviews with the client group. The client group within the Scottish Executive formed a broader study advisory group, drawing a number of specialists from Scotland's local planning authorities, retail sector and town centre managers. Appendix 3 presents a list of the consultees and participants in this study. The study team is most appreciative of the thorough and co-operative input from all these parties.
1.16 The format used for this report traces the six key issues set out above and makes reference to the eleven key study tasks listed earlier. However, the study team has produced a great deal of background material and this has been reported separately to the client and the advisory group.
1.17 This is the Full Report of Findings. It combines all the relevant issues and technical findings from the research tasks.
1.18 A short report of Research Findings is available through the Central Research Unit at the Scottish Executive.
Format of this Report
1.19 The following chapters are set out according to the six key issues which have been identified. Within each chapter, we review the appropriate findings from the eleven different tasks carried out in the research. From this, we draw out the implications for the current NPPG8 policy. Through Sections 2 to 7, our concluding remarks on implications for policy use coded headings; for example, the implications drawn out from the review of general changes in retailing are noted as GC1, GC2, etc.
1.20 In Section 8 we summarise the overall implications for policy. In Section 9 we make our recommendations on potential actions to review NPPG8 policy.
1.21 In parallel with the finalisation of this report in October 2003, the Scottish Executive held the second annual Retail Forum. The purpose of the forum was to engage a wide range of interested parties in the findings of the study and indicate some of the key issues emerging for possible further review of national policy. The Scottish Executive Development Department will make decisions in 2004 on the review of NPPG8.
1.22 It should be noted that this report presents a significant body of findings of fact, but also a number of areas where the study team is reporting a spread of opinions, sometimes representing divergent views. From these findings, the Study Team has drawn out its own opinions on the interpretation of policy implications and suggested recommendations. These interpretations and recommendations are the result of the Study Team working as one group and they do not necessarily represent the views of the client group. The client group will be reviewing the findings of this report before making any decisions on the future of the NPPG8 policy.
1.23 Appendices 1 and 2 set out the original and the final methodology employed.
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