The Scottish Government

« Previous | Contents | Next »

Listen

Research Study on the Effectiveness of NPPG 8 Town Centres and Retailing

6. Retail Deprivation

6.1 One of the subsidiary issues highlighted in the original client Brief was access to shopping and how successfully existing guidance relates to the wider social inclusion agenda of Scottish Ministers. It was suggested that current patterns of retail development mean there is some rural and urban communities where access to good shopping (including food shops) might be inadequate. Should there be greater guidance/emphasis on the social impact on the location of new retail development and what is the role of retailing and supporting urban regeneration? Should the guidance say more on the particular concerns over rural shopping?

6.2 All these issues have been probed at different levels of the research in this study. However, at the outset it is important to note that the Study Team did not have scope in this study to mount a detailed appraisal. The team believes this issue will require further work in geo-demographic terms to assess the direct relationship between retail location and social inclusion. The study has made reference to national data agencies who could appraise this in more detail if further research was undertaken.

6.3 From the different exercises in the desk and survey research, the study team has some findings in relation to access to shopping - or retail deprivation.

Findings Of Desk And Survey Research

General Trends

6.4 The material on general trends presented in Section 2 is relevant in this context. IRS identify trends in Scottish retailing which include overall growth in retail sales and floorspace throughout Scotland, but also suggests that the total number of shops is falling. This might present a relationship whereby some less viable local centres are falling into disuse and decline. However, there continues to be evidence of an increase in the number of large food and non-food superstores and this appears to present evidence of increasing new modern floorspace provision throughout Scotland. From the drivers for change identified by IRS, the implications for retail planning identify the need to accommodate new retail sales growth as retailers take forward changes in their supply chain management and innovations in their merchandise techniques. All these factors lead to increased sophistication on ideal location and this will have implications on accessibility to the public at large. If there are fewer numbers of stores, IRS raises the question of whether consumers might be deprived in certain areas. There could be increased use of electronic developments for purchasing.

6.5 On the one hand, there might be an increased focus on larger store units in less frequent locations. However, on the other hand format developments might show an increased level of "in fill" opportunity retailers, particularly at the discount food level.

6.6 From the research into other professional commentary, the introduction of NPPG8 has seen success in major town centres but there may be some cases where smaller local and district shopping centres have suffered. Some suspect that this might be the case in deprived areas where there is difficulty in attracting and maintaining retail investment. The Scottish Planning and Environment Law Conference in 1997 identified an issue of looking afresh at urban areas in Scotland to sift out which shopping centres would be able to sustain themselves in the long term.

6.7 A recent IRS study that examined the price and availability of food in Greater Glasgow summarised that it was the shop type rather than the location or deprivation level of the postcode sector that is the best prediction for the price and availability of a range of food. The study concluded that there could be such issues as "food deserts" and "food poverty" in disadvantaged neighbourhoods, but to support this assertion, more studies need to be undertaken in specific areas, with a particular look at different retail formats.

Retail Profiles

6.8 From the various retail pipeline and other data in the retail profiles research, retail deprivation was directly addressed reflecting on the various charts reported to the client group on shopping floorspace pipeline, etc., the following broad statistics on the overall amount of floorspace completed are a helpful source. Overall, the following points suggest that there is scant evidence of Scotland in general being deprived of new retail floorspace:

• Nearly 2.2m sq. ft. of town centre non food floor space has been built since 1998
• Nearly 4m sq. ft. of out of centre non food floor space has been completed since 1998
• Nearly 2m sq. ft. of convenience goods food store floor space has been built since 1998

6.9 From these data, it is clear that across Scotland, increasing levels of modern store floorspace are being provided for the benefit of the population. There are no data available however to examine whether for the floorspace newly built, there has been a commensurate reduction of existing floorspace, and the locations most affected by such dynamics. Of course the significant question is whether the development of new floorspace has been focused in particular types of locations where the geo-demographic profile is stronger. Such developments could suggest a neglect of other more deprived areas, a process enhanced by changing shopping patterns of the more well-off or mobile consumers in all areas. However, from our analysis of the raw data, showing the locations of new schemes proposed and completed, it appears that in fact, much of the floorspace in urban locations has been developed in areas perceived as being deprived, particularly in the last three years.

CACI Demographic Data and Further Research

6.10 In order to try and add some detail to the question of locational aspects of new floorspace, CACI have discussed with Scottish Executive Development Department the possibility of some geo-demographic analysis to consider further the possible evidence of Retail Deprivation.

6.11 From this evidence, we conclude that if retail deprivation continues to be a question raised with the Scottish Executive, from a spatial perspective the question should be researched in more detail along the following lines:

• Further evidence to look at the spatial location of new food and non-food retail developments throughout Scotland to ascertain whether it has been provided on a relatively fair spread across all urban areas.
• Within the urban areas, to look at particular neighbourhoods which might show more signs of deprivation and interrogate further data on whether the levels of car and public transport accessibility are seriously compromised. This might start to suggest that, although large new shopping malls and superstores are within relatively close proximity, the means of getting to them on a regular basis are constrained by reason of the socio-economic deprivation in the locality. It is interesting to note that if this proves to be an issue, retail planning policy might have to recommend a more permissive policy environment which allows more retail developments more closely located to higher density urban neighbourhoods.
• For the rural areas, to confront the key question of "retail gravity" and the fact that the higher order non-food floorspace (in particular department stores and higher fashion outlets) will only locate in key city and town centres where there is the gravity of sufficient surrounding catchment to justify the investment. For instance, whilst it is encouraging to see that retail change in recent years has introduced new Debenhams department store formats into Stirling, Perth, Dundee and Inverness, it is unrealistic for smaller town communities within these areas (such as the likes of Crieff, Blairgowrie, Forfar, Elgin and Thurso) to expect the continued subsidiarity of provision down to the local level. Indeed, the evidence from past retail surveys suggests that the more remote rural areas and smaller town neighbourhoods become quite used to the fact that they have to relate to a nearby larger regional or sub-regional centre for their main non-food shopping provision.

Policies/Decisions

6.12 From the review of sample policies and decision notices, there is no clear evidence within the Structure Plans recently prepared for major urban areas in Scotland of policies seeking to address issues of retail deprivation. This would reflect the response in relation to the level of deprivation in urban areas arising from our consultation exercises, which would suggest that urban retail deprivation has, for the large part, been eradicated in its basic form (primarily through the provision of additional discounted food retailing, although this possibly fails to reflect the need to address qualitative issues). In relation to rural deprivation, there is evidence of both Structure and Local Plans including policies seeking to retain and improve the provision of local shops in rural areas (Borders Structure Plan; Moray Development Plan; Orkney Local Plan). There is not however, major reference to a rural deprivation issue in development plans as they relate to rural locations.

6.13 In terms of the transportation inputs CBP have reviewed the research and summarised that current guidance highlights accessibility as a key issue in assessing transport implications. Accessibility in the context of retailing has a number of key implications:-

• Poor access to healthy and affordable food affects people facing social exclusion, particularly elderly and mobility-impaired people and those who live in rural areas or isolated estates.
• Access to retailing may in addition to actual shopping provide valuable access to employment opportunities.
• If a mix of public and private uses is provided at one location, this can contribute to overall access to a number of vital services such as healthcare, learning and work.
• The ability of food stores to sell non-food items could possibly improve the accessibility of shopping opportunities to those suffering from social exclusion.

Surveys

6.14 From the report of survey information, the available studies of household shopping patterns reflecting the general shopping public show that the vast majority of respondents undertake a weekly main food shopping trip. The various Edinburgh, Glasgow, East/West Lothian and Perth and Kinross areas also show frequent top- up food shopping trips of between two and six times per week. In terms of retail deprivation, the important point is the car as main method of travel to main food shopping and this is generally above 50%. In the more rural areas it is above 70%. The same sort of pattern applies to the method of travel for comparison shopping purposes. Therefore, it is clear that most people in these parts of Scotland have access to a private car for shopping purposes. A further point highlighted earlier is a highly significant result that the most liked aspect of people's favourite shopping centre is "closeness to home". This provides a clear lead to future Scottish Executive policy, to try and encourage increased levels of shopping centre provision within easy access of the more highly populated urban areas.

6.15 Only one part of the questionnaire questioned public sector respondents on retail deprivation. Various comments from this question have been helpful on the topic.

6.16 Most respondents were very forthcoming on the level of activity perceived in their area. However, it is notable that the planning officials involved in smaller towns and rural areas were concerned about sectors of the population being deprived from more accessible and convenient retailing. This was less the case with the urban local authority respondents.

6.17 Another key area in relation to retail deprivation is the ability to analyse qualitative and quantitative measures in any retailing area. Question 8 probed for views on the assessment of new developments and only 43% believed that the guidance was clear and instructive on the assessment of qualitative and quantitative deficiencies. A similar question (part 2 of question 9) asked about the adequacy of the guidance on assessing the scope for new development capacity and identifying deficiencies. 56% of the public sector respondents felt that NPPG8 was not helpful, in assessing the scope/ capacity for new development and identifying deficiencies. Further points on the assessment of deficiency and retail deprivation have been made in Section 4 of Document 1, The Report of Desk Research.

6.18 From the private sector questionnaire the same approach was taken to retail deprivation and different parts of questions revealed some indications.

6.19 Part of Question 11 specifically asked about views on retail deprivation. A number of private sector respondents believed that an inflexible/ over restrictive policy (particularly the sequential approach) was contributing to retail deprivation. Retailers and developers argued that by restricting new development, Councils are preventing free market competition and can be in danger of reducing consumer choice in the retail market. Others believe that deprivation was not a problem but a possible threat. This might come from the over dominance of large retailers forcing out smaller players. This kind of comment emerges from the views of the independent retailers we have surveyed as well. Others drew attention to the inflexibility of some policies covering environmental and conservation issues which may thwart attempts to develop in town centres, when sites do present opportunities.

6.20 As with public sector questionnaire, there was some reservation amongst the private sector that guidance on the assessment of qualitative and quantitative deficiencies is in need of improvement. Again, this issue was explored through Question 9 in the private sector.

Discussion Forums

6.21 From the various discussion forums, retail deprivation was specifically raised for participants' comments. The Stirling Forum found that food retail deprivation appears to have been alleviated, if not removed, but was certainly not now a major urban concern. The issue of responding to local circumstances was again raised in the context of deprivation and greater variation was needed in relation to scale and mix of stores. The issue of a potential city region/rural split was raised. The Perth Forum provided much debate in relation to the relative merits of enhancing the status of towns such as Perth as the main town in the administrative area, to the potential detriment of more rural centres. In overall terms there was consensus that the larger rural centres (Pitlochry, Crieff) have survived with the benefit of tourist trade and basic local convenience provision. However, concern was raised in relation to similar centres that do not benefit from tourist trade and accordingly might be suffering a reduction in convenience and comparison shops.

6.22 From the rural experience, there was some evidence of national store chains now looking for improved trading floorspace, expansion or new stores in smaller locations, such as Blairgowrie. Amongst independent traders there was serious concern about internal impacts within centres, despite the possibility of new multiple retailers locating within the town centre. In other discussion groups, the issue of food quality was raised. In terms of a national agenda for Scotland to promote health and well being, the perceived deprivation in food retailing in urban areas in Scotland has largely been eradicated through the introduction of discount food stores and smaller mainstream formats. However, there could be concern that the kind of food sold from different operations might provide a different nutritional value at the local level, thereby impacting on the overall health of lower income sections of the community.

Other Sources - Deprivation

6.23 Another source used for this topic was the Scottish Executive National Statistics Publication "Social Focus on Urban Rural Scotland 2003". Some findings include:

• From a 6 fold classification of settlement types, the relative count of locations in Scotland is;
• Large urban Areas - 4
• Other urban Areas - 51
• Accessible Small Towns - 93
• Remote Small towns - 24
• Accessible Rural - 248
• Remote Rural - 72

6.24 This suggests that future work on retail services can work in some confidence that the balance of Scottish settlements is weighed in favour of urban/town areas and indeed, for rural areas, the majority are classed as "accessible".

6.25 Another indicator was the Report's findings on peoples "likes/dislikes" of their neighbourhood, included in answers was "Convenient Shop / Other Amenities", with the percentage responses as follows:

• Large urban Areas - 39
• Other urban Areas - 37
• Accessible Small Towns - 27
• Remote Small towns - 40
• Accessible Rural - 13
• Remote Rural - 11

6.26 The telling point here from the Scottish Household Survey is the drop-off rate of affirmative responses for the rural areas, but an interesting 40% of remote small town households particularly liking their access to convenient shop / amenities.

6.27 Another good indication from the Scottish Household Survey is the percentage of people stating that they find the level of access to various services very or fairly convenient. In terms of access to grocery / food shop, the differences in response from those without / with access to a car are similar between accessible and remote areas:

People answering that they had 'Very' or 'fairly' convenient access to grocery / food shop:

• People in "Accessible Areas" without access to a car: 86%
• People in "Remote Areas" without access to a car: 82%
• People in "Accessible Areas" with access to a car: 92%
• People in "Remote Areas" with access to a car: 86%

6.28 Finally another key contextual source for possible future analysis of retail deprivation in Scotland is the Scottish Indices of Deprivation 2003 for the Scottish Executive (Social Disadvantage Research Centre, Oxford). The summary report includes details of the indices' methodology and charts a geographic map of areas of deprivation in Scotland. The pockets of highest levels are distributed sporadically across Ayrshire, Glasgow, Lanarkshire and small pockets in Edinburgh, Dundee and Aberdeen, as well as some small rural areas in the north and west. Amongst a range of indicators, the Deprivation Study Team utilised "Access to services" and this included road distance to a general store or supermarket. These indicators could be employed in the further research identified earlier in this section.

Retail Deprivation - Implications For Policy

6.29 We draw three main conclusions on the implications for policy, from our assessment of retail deprivation.

RD1 Strong, Dynamic and Prolific Sector

6.30 As noted in Section 2, and included in this section, Scotland does have a strong retail sector with a rapidly evolving economy that produces numerous development proposals on an annual basis in both town centre and out-of-centre locations. Therefore, taken as a whole, Scotland does not present evidence of retail deprivation, in terms of a dearth of activity, new formats and developments.

RD2 Accessibility

6.31 Again, as noted in other sections, one of the key implications for policy is the proximity of retail facilities for the populace. From the various surveys employed in this survey, it is clear that households select their favoured centre, based upon convenience and proximity. In addition, there is evidence of a high level of access to the use of a vehicle. Indeed, the evidence from the recent Scottish Household Survey, produced by the Scottish Executive shows that more than 80% of people find they have convenient access to grocery/food shopping whether or not they have access to a car.

6.32 The remaining questions are whether certain areas of Scotland have much greater distances to cover to access shopping, and whether they are deprived of a sound level of alternative public transport options. From information in Section 2, overall transport patterns in Scotland show that average journey trips for shopping purposes are less than 5 kilometres, which is a reasonable distance for retail accessibility, in the opinion of the study team.

6.33 However, there could be further work carried out on detailed accessibility, with particular reference to areas of higher levels of deprivation (see below).

6.34 In terms of accessibility, the implications of policy relates back to common themes earlier, but future policy should continue to promote high levels of accessibility to all sectors of the community to a choice and range of shopping facilities. In urban areas, it is obvious that future policy should seek to promote a choice of transport modes and there is no doubt that the location of future retail centres at key nodes in the transport network will be of major benefit. However, there is continuing evidence of widespread use of the private motor car, particularly for weekly bulk food shopping trips. This is an aspect for future policy reviews to look at in more detail.

RD 3 - Deprivation -Need for More Precise Analysis

6.35 An overall conclusion of this section is to suggest that there can be a more detailed geo-demographic analysis of retail deprivation in certain areas in Scotland. The Scottish Indices of Deprivation study noted above suggests that the pockets of higher deprivation might be a starting point for a future detailed study. We have mentioned CACI and other similar demographic agencies that already provide data to the Scottish Executive and perhaps these would be appropriate sources for a further close analysis of particular geographic areas. This finding links with the implication in Section 2 GC8 which recommended a rolling national survey of shopping habits. The Scottish Household Survey is already established as a regular policy-making tool for social justice issues. The study team recommends further survey work, to understand issues of retail provision and quantitative/qualitative deficiency from the shoppers' points of view.

« Previous | Contents | Next »