Middlesbrough Council TOWN CENTRE...

Middlesbrough Council TOWN CENTRE STRATEGY

CONSULTATION REPORT – OPTIMISING OPPORTUNITY May 2009

This document is formatted for double-sided printing.

ROGER TYM & PARTNERS 19 Woodside Crescent Glasgow G3 7UL t 0141 332 6464 f 0141 332 3304 e [email protected] w www.tymconsult.com

CONTENTS

1 INTRODUCTION .......................................................................................................... 1

2 OPPORTUNITIES AND THE CASE FOR CHANGE ..................................................... 3 The Case for Change - Progress .................................................................................... 3 The Case for Change - Economic ................................................................................... 7 Implementation of Key Strategic Projects ..................................................................... 11 The Case for Change - Physical ................................................................................... 13 Areas of Opportunity ..................................................................................................... 15 Key Development Opportunities ................................................................................... 21 Movement and Transportation ...................................................................................... 22

3 OPTIMISING OPPORTUNITY .................................................................................... 27 Strengths ...................................................................................................................... 27 Weaknesses ................................................................................................................. 28 Opportunities ................................................................................................................ 29 Threats ......................................................................................................................... 29 Conclusions .................................................................................................................. 29 Recommendations – the “Tool Kit” for a Vibrant City Centre ......................................... 31

4 PHYSICAL INTERVENTIONS .................................................................................... 47 Key Issues Summary .................................................................................................... 47 Town Centre Core ........................................................................................................ 49

5 PRIORITISED ACTION PLAN .................................................................................... 61

Appendix A – Supporting Information: Middlesbrough’s challenges

Middlesbrough Town Centre Strategy Consultation Report

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Roger Tym & Partners May 2009

1 INTRODUCTION

Town Centre Strategy

1.1 Middlesbrough needs a coordinated strategy for the Town Centre which provides the rationale for further economic and physical change and reflects key policy and strategies, including the Local Development Framework (LDF), Regional Spatial Strategy (RSS), Regional Economic Strategy (RES) and the Tees Valley City Region.

1.2 Middlesbrough Town Centre is important as a key economic driver for the City Region and has a significant influence on perception of the wider area. The social, economic and physical performance of the Centre provides an indication of the economic health of the area.

1.3 Middlesbrough is the main service centre in the Tees Valley. It therefore has a vital role at the head of the sub-regional hierarchy for commerce, employment, retail, education, culture and social activities. The town centre is the focus of most of this activity and its ongoing regeneration can be used as a platform to build a critical mass of economic activity.

1.4 The Town Centre Strategy covers an extended area (representing the boundary shown within the Regeneration Development Plan document (RDPD) and on the diagram below) from Cannon Park in the west to Middlesbrough Leisure Park in the east, and from the southern end of Linthorpe Road and the University to Middlehaven in the north.

Figure 1-1 Strategy boundary

1.5 The Town Centre Strategy is an umbrella under which a range of Policies and Physical Interventions are coordinated to bring maximum benefit to residents and all Town Centre users. The Town Centre’s strategic role at the heart of the Tees Valley City Region brings with it the aspiration to function and perform as a city. To achieve the critical mass this implies, the Town needs to identify, assess and address the key issues currently influencing the dynamic of its centre.

1.6 Middlesbrough has seen significant improvement in recent years. Key investment in the retail core, in education (University of Teesside, Middlesbrough College), creating a centre of excellence in Digital Media (Boho), Arts and Culture (mima) and proposals for ambitious strategic planning (Middlehaven, Cannon Park, Linthorpe Central) have


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started to establish the future direction of the Town. Over the next twenty years, the challenge is to build upon recent successes and current strengths and further develop economic, social and cultural activity that delivers the look and feel of a city.

1.7 The policies and interventions within the Strategy aim to build and diversify the range of economic activities and promote a physical infrastructure that joins the extended centre together in a manner which encourages cohesion, ease of movement and activity.

1.8 A place-making function is at the heart of any Town Centre Strategy. Middlesbrough has already initiated a series of interventions that already give a strong indication of its ambition. A sense of “place” – distinctiveness, attractiveness, quality of life for residents and quality of offer for visitors is critical to establishing identity and shaping perceptions.

1.9 The Strategy outlines a range of policies and interventions to facilitate the step-change from active Town Centre to achieving the critical mass of economic, social, educational and cultural activity synonymous with the functions of a successful city in the 21st Century.

1.10 The Town Centre Strategy:

Outlines the overall Case for Change, considering the key areas of opportunity;

Provides a SWOT analysis for the Town Centre;

Outlines the Key Objectives for the Town Centre Strategy;

Outlines the Core Policies by which the Objectives are to be achieved: the “Tool Kit for a vibrant centre”;

Displays graphic representation and description of the proposed Physical Interventions; and

Presents the Key Policies and related Actions within a prioritised Action Plan.


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2 OPPORTUNITIES AND THE CASE FOR CHANGE

2.1 The case for change in Middlesbrough Town Centre is examined, considering;

Progress – recognising the strategy development and investment of the Council and its partners to date;

The Economic case – examining the economic performance across key sectors for its future development; and

The Physical case – assessing how the centre’s physical structure constrains performance.

The Case for Change - Progress 2.2 Recent interventions by the public sector in Middlesbrough have created an

environment of change and have begun to alter external perceptions. Some of these interventions have been brave in their nature – Middlesbrough carries an industrial legacy, but there have been bold moves to establish the town as a hub for cultural activity, education and digital media.

2.3 Recent investment in the delivery of key infrastructure and targeted development which has already been successful in attracting investment has begun to alter perceptions of Middlesbrough. Such activity has indicated the Public Sector’s intent and has already established some of the key economic development policies and sectors that Middlesbrough will continue to target.

2.4 Middlesbrough’s commitment to evolving the Town Centre as a hub for education, culture and the arts changes perceptions of the place and its administration. These policies signal a move towards distinctiveness, but they must continue to be built upon.

2.5 Key successes include:

mima – the delivery of mima marks the culmination of ambitious plans to provide Middlesbrough with a landmark art gallery in a key central location. mima provides a broad catchment of visitors and increases the ability to attract category A and B visitors from greater distances.

Centre Square – delivered in tandem with mima, the high quality public realm in Centre Square also indicates ambition. It provides a central space of social and cultural significance and adds profile to the Civic Quarter. Although the Square would undoubtedly benefit from increased animation, particularly out-with office hours, this will be encouraged by the development of Centre Square East and the former police station site at Dunning Street. As a space, the Square already benefits from the presence of the Victorian Town Hall and Carnegie Library. Proposals released for Centre Square East include modern office facilities, car parking and a hotel, thus creating jobs and activity in Centre Square.

Public Realm – the Town Centre Company drove the delivery of high quality public realm treatment along Corporation Road and around the Retail Core of Linthorpe Road. The public space and art at Centre Square is also of the highest quality. It is important for cohesion and image that Middlesbrough seek to replicate this quality of Public Realm across the Centre.

University of Teesside Expansion – the rapid expansion of the University has surpassed expectations. The Estates Strategy reflects this and the University’s commitment to growth. The University is now an important economic driver for Middlesbrough.


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Boho – the current delivery of Boho is indicative of ambitious joined-up working between educational and public sectors, including Middlesbrough Council, ONE NorthEast and Tees Valley Regeneration. Boho is an economic development project of benefit to the entire North East, but brings distinctiveness to the Town Centre. The project has been successful in securing investment from a range of public bodies. Digital media is a modern and global industry. A hub of activity in this sector broadens Middlesbrough’s wider appeal and encourages both the attraction and retention of skilled people. The location of Boho, adjacent to Greater Middlehaven, Exchange Square and the Station is of enormous significance to the Town Centre.

Middlesbrough College – the new and consolidated Middlesbrough College site opened in September 2008 and represents the first stage of delivery on Middlehaven. It has been reported that the facility (with capacity for 14,000 students) has impacted instantly on the dynamic of the Town Centre, massively increasing flows from the Retail Core (particularly from the bus station) to Middlehaven. The physical and pedestrian connection between these locations therefore offers potential and must be subject to improvement.

Linthorpe Central – this area has started to develop high quality fashion space and supporting independent retail and leisure outlets. Further development of the independent retail and café culture quarter around Linthorpe Road South is anticipated.

2.6 Supported by core funding from ONE NorthEast, Middlesbrough Town Centre Company had responsibility for town centre management and regeneration until 2006. The Company – the Board of which was made up of key stakeholders – delivered significant achievements. It was responsible for the Middlesbrough Town Centre Strategic Options Study in 1998 and subsequent delivery of the high quality public realm along Corporation Road and development of the Town Centre Quarters.

2.7 Middlesbrough Town Centre has the benefit of being guided by a positive planning framework. Each of the following key policies support growth in Middlesbrough and the Town Centre:

Regional Spatial Strategy;

Regional Economic Strategy;

Tees Valley Economic Strategy;

Local Development Framework; and

City Region Strategy.

2.8 As it increasingly attracts city level functions, the development of the centre of Middlesbrough is also consistent with the objectives of the Stockton-Middlesbrough Initiative (SMI). The emergence of the SMI has the potential to transform the urban core of the Tees Valley. SMI is based on three clear themes which reflect the short, medium and long term interventions which will be required to deliver the SMI vision. These are:

The two town centres, Middlesbrough and Stockton, and the need for each centre to maximise its contribution to the SMI vision in ways which are collaborative and respect the distinctive role each centre has to play;

The two key regeneration projects, North Shore in Stockton and Middlehaven in Middlesbrough, and the enormous impact the two sites will have on the urban core area; and

The delivery of the Green-Blue Heart along the river corridor between the two towns, and its long term potential as the longest underdeveloped urban river corridor in the country for future housing and leisure development.


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Proposed Development

2.9 A number of significant development proposals are planned in the Town Centre, demonstrating intent and a level of activity that is critical to altering perceptions and attracting investment. It is acknowledged that the current recession will slow delivery timescales for much of the regeneration activity which has been planned to date. Nonetheless, it is vital that momentum behind the ongoing development of the town centre is maintained.

2.10 A schedule of current and proposed development in the Town Centre is shown below.

Table 2-1 Middlesbrough Town Centre: Proposed & Ongoing Development

Proposal Parties Status/ completion

1 Middlehaven (Phase 1)

HCA (formerly English Partnerships), Tees Valley Regeneration, ONE NorthEast, Middlesbrough Council via Bio Regional Quintain and Terrace Hill

Ongoing. Bio Regional Quintain’s residential and hotel development appears to have been put on hold. Discussions ongoing with Terrace Hill re next phase of offices.

2 Greater Middlehaven (Phase 2)

Middlesbrough Council, Tees Valley Regeneration, ONE NorthEast, HCA

Still acquiring property interests via CPO. Expected to be started when Middlehaven completed.

3 Greater Middlehaven (Phase 3)

Middlesbrough Council, Tees Valley Regeneration, ONE NorthEast, HCA

Former St Hilda’s residential area north of Queens Square now largely cleared and awaiting development. Adjoins new Police Station, Boho Zone and Digital Media Business Centre.

4 Centre Square East

Terrace Hill and Middlesbrough Council

Dependent upon property market although hotel may proceed.

5 Cannon Park St James Securities, Barker & Stonehouse, Tesco and Middlesbrough Council.

Preparation of detailed Masterplan under discussion. Completion anticipated by 2013.

6 University of Teesside

University of Teesside. The Estates Strategy (2006-16) anticipates £30 million investment in major projects, subject to funding availability. Projects in hand include construction of IDI and CCT Buildings (£20m) and refurbishment of Middlesbrough Tower (£3m)

7 Dunning Street Recently changed hands from local developer.

Hotel, offices and multi-storey car park. Dependent upon availability of finance.

8 Corporation Road

Mandale Property Company Two sites (ex Odeon and Cleveland Scientific) with consent but not started and available for sale.


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Proposal Parties Status/ completion

9 Crown House, corner of Marsh Road and Linthorpe Road

Acquired from Crown Prosecution Service who moved to Hudson Quay.

Dependent upon planning consent for mixed use, market conditions and finance.

10 Upper Floors, The Mall

Mall Corporation Proposals incl 1st floor food court and leisure use on upper floors. Upper floor leisure use to take account of proposed casino (depending on location). .

11 Middlesbrough Town Hall Entertainment and Offices

Middlesbrough Council. Dependent upon market and funding.

12 Hillstreet/ Newport Rd Entrance

Resolution Asset Management.

Dependent upon property market.

13 Middlesbrough Leisure Park Extension

Middlesbrough Council & Highpoint Estates.

Dependent upon market and casino.

14 Kitchen Store, Cargo Fleet Road

Trinity Chambers, Newcastle

Proposed 30,000 sq ft offices dependent upon market conditions.

15 Gurney House/Church House/ Albert Road/Queens Square/ Exchange Square

Jomast Property Company Unknown. Significant amount of potential and unoccupied space and will have impact on viability of other schemes.

16 Linthorpe Road Campus Lifestyle Student accommodation to be completed 2009.

2.11 Key successes in tackling social challenges in Middlesbrough Town Centre include:

St Hilda’s and Cleveland Police Headquarters

2.12 St Hilda’s housing estate was synonymous with many of the social problems experienced in Middlesbrough and crime in the Town Centre. Middlesbrough has signalled its intent with the ongoing demolition of St. Hilda’s.

2.13 The Regeneration Development Plan Document 2highlights the need for feasibility study and masterplanning work. The site is also identified as Open Space within the Greater Middlehaven Masterplan, but this merits reconsideration; the area to the north of Boho provides significant opportunity for commercially-led development with good access to the Centre and railway station.

2.14 In addition, the new Cleveland Police Headquarters opened adjacent to the former St Hilda’s housing site in 2007. The strategic location of the Headquarters also signals intent in terms of Middlesbrough’s approach to tackling social issues, particularly crime.

2 Middlesbrough Council, January 2008


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Middlesbrough Housing Market Renewal

2.15 Redevelopment and refurbishment is proposed for the Gresham area as the council seeks to provide a greater choice of housing type. Clearance of up to 1,500 dwellings is scheduled during the period 2006-2016. The plan to replace these dwellings includes 134 new dwellings in St Paul’s/Newport during 2004-2011 and 750 dwellings in Gresham / Jewel Street area between 2011 and 2021. Retained housing will be enhanced by external facelifts. The plans should incorporate a minimum of 15% affordable housing, high quality public realm, the creation of safe communities and new employment opportunities.

The Case for Change - Economic Introduction

2.16 Middlesbrough faces a range of economic and social challenges. While various interventions are targeting these, it is important that the Town Centre Strategy acknowledge those aspects of Middlesbrough’s performance that must be addressed from 2009 onwards.

2.17 The economic downturn provides a backdrop to the Case for Change; it cannot be ignored and will have a short to medium term impact, particularly upon the delivery of development. The Town Centre Strategy will ensure that Middlesbrough is best placed to capitalise once market conditions improve.

2.18 The economic case for change is based on the expectation of improved economic performance in both the Middlesbrough economy and the wider North East over the long-term. It relates closely to the step change strategy proposed in the Northern Way and RES.

2.19 Further supporting information and analysis relevant to the Town Centre’s socio-economic challenges is shown at Appendix A.

Strategic and Policy Drivers of Growth

2.20 It is important to note that the assumptions informing strategic policy were developed before the onset of the present economic recession. As a result, in the short term at least, policy aspirations for growth of the scale envisaged are unlikely to be achieved. However, the medium and long term objectives remain valid. Milestones and implementation timeframes are likely to be extended.

2.21 The North East is planning for significant future growth in its economy. “Sustainable Communities in the North East” (ODPM 2004) highlighted the region’s low skill / low demand economy. However, employment forecasts anticipate significant growth in demand for a more highly skilled and qualified workforce over the next eight years. Jobs requiring no qualifications are predicted to fall by 34% in the region (27% in the UK) and those requiring high level skills to grow by 44% (64% in UK).

2.22 In preparing the Regional Economic Strategy (RES), research undertaken on behalf of ONE NorthEast considered the effects of a range of economic growth scenarios. The research indicated that the region could reverse historic trends of low economic growth (assessed in increased GVA per annum). Average per capita GVA3 in the North East stands at 80% of UK levels. The RES aims to increase this to 90% by 2016. This requires an annual growth in regional GVA of 3.4%, compared with best estimates of growth of up to 2% per annum. Based on past trends and the economic climate prevailing at the time, it was concluded that the North East could achieve economic growth rates of 2.8%.

3 GVA is a measure of GDP at basic prices which excludes taxes less subsidies on products such as VAT and tax from excise duties


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2.23 It is anticipated that Middlesbrough, along with other urban areas in the region, will benefit from this regional economic renaissance as set out in the Regional Economic Strategy and ODPM’s Sustainable Communities Plan (2004). A key component of the RES strategy is “Strong Urban Cores at the Heart of North East’s City Regions” setting a strong context for the ongoing regeneration of Middlesbrough Town Centre.

2.24 In Chapter 5, the Town Centre Strategy considers criteria for intervention and economic growth . However, one particular aspect of this is Placemaking – in Middlesbrough’s case, the aspiration towards becoming the Place befitting the economic heart of the City Region. This can be achieved by encouraging an environment that will stimulate growth in business, leisure, retail, culture and education – an overall package that is attractive to investors, residents and visitors alike.

Supply and Demand for Housing

2.25 The RSS growth targets for the North East and Tees Valley establish Middlesbrough’s future housing supply over the next 17 years. Demand is anticipated to grow due to economic growth and increasing demand in Middlesbrough.

The modified RSS identifies:

• An average of 440 units net per annum 2004 –11;

• An average of 410 units net per annum 2001 – 2021; and

• A total of 7,005 units to be delivered 2004 – 21.

2.26 Middlesbrough has the highest proportion of empty homes in the Tees Valley, with many dwellings being vacant long term. As people have moved away from the Town Centre, areas have become less diverse, leaving an over-representation of lower-income groups. The Middlesbrough Housing Strategy highlights the need to provide a better choice and quality of housing to encourage the attraction of upper and middle-income families and reverse current out-migration. Encouraging the development of house types appropriate to these markets should be an important outcome of the Town Centre Strategy.

2.27 There will therefore be significant potential to bring forward a substantial level of new build housing in the Town Centre over the period of the Strategy.

Retail Demand

2.28 In the medium to long term, Middlesbrough Town Centre has the capacity to increase the level of existing retail floorspace and enhance its role as the primary retail centre in the Tees Valley. Retail Capacity Studies and the LDF Core Strategy identified:

• A requirement to grow Middlesbrough Town Centre’s market share of convenience goods expenditure in its catchment from its existing level of 42% to 50%;

• Capacity for an additional 2,800 sq.m convenience retail floorspace, allowing provision of one large convenience store by 2016; this would produce 140 gross jobs;

• Capacity for an additional 26,000 sq.m net comparison retail floorspace to 2016 (to be accommodated mainly in the Town Centre);

• A 40% increase in bulky goods floorspace in the central area to 42,000 sq.m, based on increased retention of catchment expenditure on bulky goods;

• Growth in comparison retail floorspace could produce an additional 2,095 gross jobs; and

• The potential to further develop the emerging independent retail sector as demonstrated by the success of operators in Linthorpe Central.


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Recent Retail Floorspace Demand

2.29 MIddlesbrough Council’s 2007 assessment of the potential for town centre expansion includes an assessment of demand4 for retail floorspace which showed continued interest in retailer representation in the Town Centre:

• A total of 53 convenience, comparison, service and other retailers expressed interest in locating in Middlesbrough, according to the Focus Database;

• There is potential combined demand from operators for between 38,222 sq.m – 57,096 sq.m of retail floorspace; and

• Retailers expressing interest in locating in Middlesbrough include: Comet (1,394 sq.m), Homebase (3,252 sq.m) and Zara (1,500 sq.m). It is worth noting that these are all requirements for representation in out-of-town locations rather than the town centre.

Leisure and Culture Sector

2.30 The cultural and leisure economy works at a number of levels in successful town and city centres. These include:

Pub, pub food, club and music venue “dwell and move”;

Destination leisure areas;

Cultural and event facilities; and

Fine dining and restaurants.

2.31 The Middlesbrough evening economy lacks the full diversity characteristic of successful Centres. The evening economy is overly focused on the pub and club culture. Although this fulfils an important function, cities will develop a diverse mix of pub, restaurant and fine dining, culture and leisure activities.

2.32 The pub, pub food, club and music venue “dwell and move economy” is based around the spine of Albert Road and Linthorpe Central near to the University. This caters for the budget, student and local night–club market – reflected in the type of bar and club venues (chain pubs, e.g. Walkabout and drink offer venues) and the food offer based on budget and mid-quality bar food and take –away food.

2.33 The primary destination leisure facilities are centered on Middlesbrough Leisure Park to the eastern end of the centre. This includes a multiplex cinema, gym and food outlets including McDonalds and Nandos alongside extensive car parking. The nature of visit tends to be single stop (often driving) without moving to other locations – the venue is based on achieving long dwell times in a single location

2.34 The presence of Middlesbrough FC offers a broad catchment and the potential to attract other family members into Middlesbrough. The centre must offer the quality of retail, leisure and cultural facility required to attract link trips and increased dwell times.

2.35 Cultural and event facilities are clustered around Centre Square / Corporation Road centred on mima (with its café), and the Town Hall aligned to proposals for a four star hotel and office developments at Centre Square East. The cultural quarter is emerging, but currently lacks a critical mass of activity.

2.36 There is a strong commitment to cultural development set out in the town’s Cultural Strategy. This includes the development of cultural facilities and activities, many of which are town centre based, and critical to the centre developing this more diverse offer.

2.37 The fine dining / food and drink / restaurant sector is one in which Middlesbrough fails as a diverse night –time economy. There is the opportunity to link the growth and

4 Middlesbrough BC Report : Potential Expansion of Middlesbrough Town Centre (June 2007)


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enhancement of cultural and event facilities around Centre Square / Corporation Road and improvements to Linthorpe Central to new restaurants, enhancing the overall environment, setting and levels of activity.

Qualitative Assessment of Retail and Leisure Provision

2.38 The qualitative survey findings in the “Potential Expansion of Middlesbrough Town Centre” highlighted a number of qualitative development and use requirements that could boost the attractiveness of the Centre to visitors. These were:

• 65% of visitors were from outside Middlesbrough;

• For 45%, the main reason for visiting Middlesbrough was non-food shopping; and

• Food grocery accounts for just 16% of visits.

Diversification of the Leisure and Night Time Economy

2.39 The need to diversify the Town Centre leisure offer is highlighted by the survey results which showed that 62% of respondents do not visit Middlesbrough in the evening - with a strong identifiable generational fluctuation with a much lower figure (41%) for 18 -34 year olds and higher figure 84% in the 55+ age group not visiting in the evening.

2.40 A number of initiatives and projects are being undertaken to achieve greater diversification in the night-time economy. These include:

• A £300,000 capital investment programme is allocated for cultural projects, including improvements to the Concert Hall facilities within the Town Hall;

• The development of mima as the hub of new Arts and Cultural quarter around Centre Square, which will also include the Town Hall, Empire Theatre and civic space. In its first seven months of operation, mima attracted 81,000 visitors;

• The Dorman Museum on Linthorpe Road has recently been refurbished through a £3m investment; and

• In addition to major capital programmes, there has been significant investment in town centre events and activities, including major events and activity programmes which reinforce key retailing periods such as Christmas.

Growth of New Business Sectors

Creative Media – The Boho Quarter

2.41 The development of a strong digital media and creative sector is anticipated focussed on the DigitalCity concept and the development of Boho. This will be based around Queens Square and Exchange Square where there are currently high vacancy levels in older commercial properties. It is estimated that this quarter has the potential to create some 1,800 jobs (gross) when completed. Key milestones thus far include:

• A 35,000 sq.ft £10 million Digital Enterprise Centre, Boho One, due to open in 2009 (supported by ONE NorthEast funding of £5.8 million);

• Erimus investment in the provision of 30 live/work units (Boho 2);

• Artists' studios in the refurbished Victorian warehouse at Middlesbrough's railway station were completed 2008; and

• Python Properties opened a new art gallery and café close to the future Boho One at Royal Middlehaven House.

2.42 These facilities will deliver a creative core, but also a key link between the main Retail Core and Middlehaven.


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Growth in Student Population Numbers

2.43 There are continuing plans for the expansion of higher education institutions in Middlesbrough. Both University of Teesside and Middlesbrough College envisage a significant expansion in facilities and in student numbers. University of Teesside, for example, is investing some £13 million in a 4,200 sq.m Sport & Health Sciences building with work starting in Spring 2009.

2.44 The expansion of student numbers will have a substantial impact of the level of expenditure in the Town Centre. At Middlesbrough College, student numbers are expected to increase by 7,000 from their existing level of 13,000. The potential impacts of this growth include:

o Increased demand for accommodation; o Increased expenditure in the Town Centre and demand for a greater variety of

shops; and o An increase in potential long-term residents if quality opportunities for

employment or business start-ups / incubation are pursued.

2.45 As shown in Table 2-2 , it is estimated that an increased student population could generate increased expenditure (including housing costs, living costs etc) of some c. £88.6million.

Table 2-2: Impact of increased student numbers Full Time Part Time TotalCurrent student numbers

Middlesbrough College 5,654 7,346 13,000University of Teesside 9,130 11,504 20,634

Future student numbers Middlesbrough College 8,698 11,302 20,000University of Teesside 9,130 11,504 20,634

Average expenditure/student5 £10,306 £14,459 Current expenditure (£m) £152.36 £272.55 £424.91Potential future expenditure (£m) £183.73 £329.75 £513.49Estimated additional expenditure (£m) £31.37 £57.20 £88.57

2.46 In physical development terms, footfall to and from the new Middlesbrough College at Middlehaven is already having a significant influence in the north of the town centre.

Implementation of Key Strategic Projects 2.47 A number of projects have been put in place that will contribute to creating a step

change in the regeneration of Middlesbrough.

Development of Centre Square East

2.48 Centre Square East will build upon the recent development of mima and Centre Square. The development area is to the south-east of Centre Square and a £50 million project is proposed which will include:

• A new public square fronting onto the Crown Court;

• A four star, 110 bedroom hotel incorporating restaurant, café, bar and conference facilities;

5 Institute of Employment Studies: Student Income & Expenditure Survey 2004/5 adjusted to reflect regional differentials and growth to 2008/2009.


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• Office development consisting of six independent units located to the east of Elder and Hazel Courts; and

• A 340 space car park.

2.49 The Terrace Hill development proposals are anticipated to generate c1, 500 jobs.

Potential Economic Impact of Middlehaven Implementation

2.50 As part of the expanded Town Centre, the Middlehaven development will introduce a range of new office floorspace, niche retailing and new homes. It has already established a new focus for education and training with the opening of Middlesbrough College in 2008.

2.51 The delivery of this project will produce a substantial amount of new floor space. Table 2-3 profiles the potential impact of the floorspace delivery as c1,958 new jobs.

Table 2-3 Impact of Middlehaven Development (gross)

Use

Maximum area

(sq.m) Jobs

Proposed area

(sq.m) Jobs

(gross) Commercial 22,607 1,190 18,000 947 Retail 2,500 125 2,500 125 Food/Drink & Leisure 14,650 1,127 10,000 769 Hotel 14,000 117 14,000 117 Totals 53,757 2,558 44,500 1,958

2.52 Middlehaven will, over time, introduce a new residential community to Middlesbrough Town Centre which will help to support retail, commercial and leisure activity. Implementation of the Greater Middlehaven Strategic Framework Plan (the Middlehaven Masterplan) will bring an additional residential population of c.6, 625 to the area.

Table 2-4 Middlehaven - Residential Units and Anticipated Population

2004-2011

2011-2016

2016-2021 2021+

Total

Residential Completions 500 1,015 1,015 350 2,880 Affordable Units (@10%) 50 102 102 35 289 Resident Numbers 1,150 2,335 2,335 805 6,625

Potential Impact of Cannon Park

2.53 Cannon Park, located at the western end of the recently expanded Town Centre, provides a 22.8ha. development site identified for mixed use employment and large footplate non-food retail. It therefore offers the primary location to accommodate the identified bulky goods requirement in the Retail Strategic Options study. The quality of development will be critical because Cannon Park lies at two of the main gateways into Middlesbrough.

2.54 The current Masterplan proposes the development of new retail floorspace, led by convenience floorspace and warehouse based comparison. A limited range of leisure floorspace is proposed and (in the short to medium term) existing industrial and commercial space would be retained.


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Table 2-5: Cannon Park - Proposals & Estimated Impact

Activity Floorspace

(sq.m) Employment

(gross)Commercial 12,000 632Retail 24,000 1200Leisure 5,500 423Existing Car Show Room 8,830 0Retained gas holder 21,699 0Total 41,500 2,255

2.55 It is estimated that implementation will generate employment outputs of 2,255 jobs (gross).

The Case for Change - Physical

Figure 2-1 Overall Strategic Context

2.56 Middlesbrough is one of the country’s most significant Victorian urban developments. It is distinguished from other major expansions of its period by its clear grid plan - first in St. Hilda’s to the north of the railway and then, on a different grid axis, in the Retail Core to the south of the railway.

2.57 The Town Centre grids survive almost unaltered. They have shaped past development and can continue to shape proposals in the future. Other than in the Station Conservation Area, there has been extensive redevelopment within the town’s grid framework. Despite this, the grids make for a town which is clear and convenient in navigation and which offers clear views throughout, as well as of key landmarks.

2.58 Within the grids, through development and change, Middlesbrough has established a series of quarters with defining characteristics generally associated with different types of use:


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o West – retail; o Central – retail, office, cultural and leisure; o East – residential and business; and o Satellites to the South – the University; – and the North – Middlehaven / Boho.

2.59 Key features of the Town Centre are as follows:

o The containment of the northern and eastern side of the Town Centre by the A66 on its viaduct and the railway line – partially on the embankment;

o The relative detachment of Middlehaven; and o The containment of the Town Centre to the west, south and south east by

densely developed inner area housing, mainly Victorian Terrace.

2.60 Physical changes in the last few years have improved the Town Centre and, to some extent, blurred and diversified the mix within specific quarters.

2.61 Key features of physical change include:

o The growth in scale, quality and profile of the University; o The emergence of Boho which encompasses new development and a creative

quarter to the north of the railway; o Centre Square and mima have brought an enhanced cultural focus to the Town

Centre and the Civic Core around the Town Hall; o The Captain Cook retail centre has extended and consolidated the retail

quarter north and south of Corporation Road and west of Albert Road; o The leisure base has developed at the eastern end of Corporation Road –

Middlesbrough Leisure Park; o Key streets have benefited from high quality public realm improvements; and o Implementation of the Middlehaven masterplan has begun with the delivery of

a consolidated Middlesbrough College.

Current Physical Strengths

2.62 The centre is remarkably compact, with most key uses close to each other. Within this overall pattern, key strengths include:

o The density and tightness in relationship of the Retail Core; o The high quality public realm which supports this on Corporation Road; o The compactness of the civic and cultural core and its clustering around Centre

Square; o The extent (if not variety) of the leisure offer; o The proximity of the bus station and, to a lesser extent the railway station, to

the Retail Core; o The growing strength of the University to the south of the Town Centre; o The opening of Middlesbrough College and the impending opening of Boho to

the north of the centre; o The quality public realm, including Exchange Square, that can potentially link

Boho to Middlesbrough College / Middlehaven; o The independent retail base at Linthorpe Road Central; and o The potential of the development of Middlehaven and Cannon Park to extend,

diversify and strengthen the Town Centre offer and its sub-regional standing.

Gaps in Connectivity

2.63 Across the extended Town Centre areas and within the established Retail Core, there are gaps in connectivity between places and uses. These include:

o In retail - the relative detachment of the specialist Linthorpe Central area from the retail core;

o In leisure - the fragmentation of the offer between Albert Road / Zetland Road in the northern part of the centre, the leisure base at Marton Road in the east


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and the independent offer at Linthorpe Central in the south. Also, the separation of these from the bus station; and

o In transport - the separation of the bus and railway stations.

2.64 Although the identification of dominant use areas (Quarters) provides strong place – identity, it can also reduce the extent to which the uses support each other and help address or temper gaps in connectivity. An example is the retail domination of the area between the bus station and Centre Square, onto the Leisure Park. This area is largely closed in the evening and the Corporation Road section between the two main leisure areas is dominated by civic activity and also inactive in the evening.

Figure 2-2 Connectivity

2.65 Particular connectivity issues relative to the expanded Town Centre include:

The crossing of Marton Road which compounds the peripheral location of the leisure base;

The crossing of the complex traffic movements around the bus station to reach Cannon Park from the Centre;

The penetration across the railway into Middlehaven and Boho; and

The crossing of Borough Road between the Retail Core and Linthorpe Central.

Areas of Opportunity The North-South Axis

2.66 There are two parallel and interrelated but different north / south axes - Albert Road and Linthorpe Road. Both contain a number of points which are not strongly connected and therefore do not contribute as effectively as they could to the Town Centre’s operation.


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2.67 The development of Boho and the potential for extended and improved education facilities close to the northern ends of both axes will encourage more intensive movement, increasing the area’s attractiveness to users and investors.

Figure 2-3 Areas of opportunity

2.68 Key features of the Albert Road Axis are:

o The attractive entrance to the University; o The dead-side of the Law Courts; o The dead-side of The Mall; the generosity of pedestrian areas, the intensity of

services and proximity to Centre Square; o Centre Square, together with the library and museum, collectively form a

powerful area of cultural and public open space; o Middlesbrough Town Hall is visually and symbolically important to the Town

Centre; o Albert Road North has a mixed pattern and quality of buildings, a fragmented

leisure offer and a number of derelict/ semi derelict vacant and under-used buildings;

o The A66 viaduct which separates the Retail Core from the north of the Town Centre;

o Exchange Square and the Station are a collection of fine buildings and extensive but under-utilised space. Exchange Square is active only along its western edge and the dominance of the viaduct limits the attractiveness and use of the eastern side; and

o Boho will form the basis of a new digital media and creative quarter.

2.69 The key features of the Linthorpe Road Axis are:

o The Dorman Museum and the foreground to Albert Park; o Ayresome Gardens; o The largely University related liveliness around Southfield Road; o The specialist independent retail and restaurant cluster in Linthorpe Central;

Centre Square


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o The very mixed quality retail, commercial and leisure offer elsewhere along the road;

o The busy crossing of Borough Road; o The gap in activity before accessing intensification of activity towards the core

north of Borough Road; o The poor quality/under use of the Bedford St/Baker St/Church House area; o The reasonably active and robust primarily retail pedestrianised core section; o The slightly worn quality of the public realm in this area; o The high quality crossing with Corporation Road / Newport Road - including

major stores; o The busy crossing of Wilson Street; o The generous but varied quality public space under and north of the A66 to

Station Street and Zetland Road; o The slightly exposed poor quality rear to the Zetland Road properties; o The poor quality of Crown House and the unanimated route to the Zetland car

park; o The attractive station entrance and station buildings; o The uninviting pedestrian route north under the railway; o The difficult connections north of the railway up to Bridge Street West; o The new police headquarters and Boho as destinations north of Bridge Street

West; and o The potential to accommodate expanded and/or new higher education facilities

and commercial activities to the north of the railway station.

Potential Extension of the North-South Axis

Figure 2-4 Potential Extension to the North:

2.70 North of the railway line, the strong Town Centre grid meets the similar but tilted grid of the former St Hilda’s area, with Queen’s Square as the junction point. The Transporter Bridge and river now have a more important future as a destination and place rather than a route. Middlesbrough Dock, Riverside Stadium, the Middlehaven Masterplan and its first fruits in Middlesbrough College, the railway station and Albert Road all become increasingly important parts of the dynamic of the Town Centre.


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2.71 The Crown House and Station Street area offer the potential to extend and consolidate the northern end of the secondary Linthorpe Road Axis and the western end of the Station Conservation Area. However, the relative levels of Station Street, the railway and Bridge Street West constrain the potential to link to the north on this Axis.

Figure 2-5 Potential Extension to the South

2.72 To the southern end of the Axis, there is the opportunity to strengthen Linthorpe Central and provide an improved connection between this area and the existing Retail Core, as well as between Linthorpe Road and the University Quarter. In order to maximise the strength of the existing Town Centre offer, it is hugely important to encourage increased footfall along the whole of Linthorpe Road, from the railway station in the north to the Linthorpe Central area in the south.

The East-West Axis

2.73 The eastern end of the Axis is contained by the A66 viaduct and the leisure park forms a stop. Its uses, design, external relationships and context mean that the eastern end is large and self contained. With extensive supporting car parking, it can almost be seen to function as an out-of-town development, in spite of the fact it is on the edge of the Town Centre.


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Figure 2-6 The East-West Axis

2.74 Once Marton Road is crossed, the pedestrian linkage along the axis into the Retail Core is strong. However, the fragmentation of uses along Corporation Road makes the route less attractive and lightly used, particularly in the evening when civic, government and legal activity ceases to animate the route and Leisure Park users park and remain within this location. The Oak Street area provides some animation with a small selection of leisure uses. The sites in private ownership on either side of the route (the former CSI and Odeon site) have the potential to provide extended activity through residential use, but pattern and value will vary dependent on occupancy being student or general.

2.75 The Combined Law Courts turn their back on the axis, offering no animation to the route. However, security requirements would make it difficult to enact any change here. There are linking routes to the parallel Civic Boulevard on either side of the Courts and Canal Street and the Registrars Offices. Each of these has the potential to link routes or animate the axis, particularly through a diversification of usage in Centre Square.

2.76 Although an impressive building, the theatre exudes a character of limited use. Likewise, the Town Hall and Civic Centre contribute visually but offer a dead frontage to the axis.

2.77 The contemporary public realm treatment along this Axis is very strong, particularly within the Retail Core. At this point it helps to unify a range of diverse buildings in a busy area by wrapping around the four major retail developments. During the day this is a vibrant and attractive area. However, the limited non-retail use means it is much quieter (and therefore perceived as less safe) in the evening.

2.78 The western end of the axis is dominated by the bus station. Flows to and from it bring a great deal of life and activity to the area. The axis virtually terminates with the point at which the grid changes and the road turns into Cannon Park. This point is marked by the exposed entry to the service yard of Sainsbury’s.


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Potential Extension of the East-West Axis

Figure 2-7 Potential Extension to the East

2.79 To the eastern end of the axis, Middlehaven Gateway is likely to remain detached from the Town Centre due to the weakness of physical and pedestrian linkages. Particular constraints are:

o The A66; o Railway links to Saltburn and Whitby; and o The chemical works.


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Figure 2-8 Potential Extension to the West

2.80 If the extension of the axis at the eastern end is extremely difficult, the consolidation of its western end becomes more significant. Indeed the extension of the Retail Core westwards is more deliverable and promoted by the Cannon Park Masterplan.

2.81 An important aspect of this area is the junction between Cannon Park and the established Retail Core. This is focused on the bus station, Sainsbury’s and the BBC building. The current orientation of the Sainsbury’s building presents challenges to effecting strong and animated links.

2.82 The supermarket and hotel complex recently completed on the southwest side of the Newport Road / Hartington Road junction appears to positively support the Town Centre extension and linkage into this area. However, the development is modest in scale for its gateway location.

Key Development Opportunities 2.83 The strength and solidity of Middlesbrough Town Centre is such that there are

relatively few undeveloped or unused sites readily available for development. In the existing Town Centre core, there are few opportunities. The most immediately engaged are those which relate to (and potentially support) the cultural and civic quarter:

Centre Square East;

Dunning Street (former police station); and

Former Odeon and Cleveland Scientific Institute Sites.

2.84 The former Odeon and CSI sites offer the potential to intensify and diversify the east-west axis, whilst strengthening links between the Leisure Park and the Retail Core. It is understood that there is a high level of commitment to the development of these sites.

2.85 While there are development opportunities at the Mall, Dundas and Hillstreet Shopping Centres, there are no major development sites within the Retail Core. Given the


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existing built structure of the centre, any expansion of the retail core would need to be at its western edge towards the bus station and the Harris Street / Yew Street triangle.

2.86 Major food related development is identified within the Regeneration Plan Document (RDPD)at the eastern end of Cannon Park. Therefore, consideration of alternative uses for the Sainsbury’s and Denmark Street car park complex may be merited to promote intensification of development. This site has the potential to provide a use with greater connection to the comparison shopping of the Retail Core.

2.87 These sites, with intensification and integration with leisure and other uses, could consolidate the eastern end of the axis, while expanding and improving linkages to the Retail Core.

2.88 At the other end of the axis, France Street car park also offers considerable potential for more intensive use and new development, possibly with associated multi-storey parking.

2.89 The Gurney Triangle offers the potential to further extend and diversify the office, cultural and leisure quarter in depth. Its relationship, under the A66, to Exchange Square offers considerable potential to form linkages onwards to Middlehaven.

2.90 The Bedford Street / Baker Street area offers the potential for intensification of use and the strengthening of connection between Linthorpe Central and the Retail Core. The redevelopment of Church House would bring significant uplift to this area.

2.91 There is a significant degree of vacancy and under-use of property along Albert Road. This offers the potential for intensification of activity both at street level and above. The potential to form linkages through to Albert Mews and on into Wilson Street and the Gurney Triangle is currently limited by the well established William Sutton Trust housing complex.

2.92 There are limited opportunities to transect the A66, connecting the current Town Centre core to new development at Middlehaven and Boho. The major positive in this area is the quality and character of the Station Conservation Area, including the Station, Zetland Road and Exchange Square. Crown House and Station Street do offer some potential to consolidate the western end of the conservation area and the Northern end of Linthorpe Road, linking the Station to the Retail Core. This is an important Gateway site for entrance into Middlesbrough and therefore merits improvement. In addition, there are poor pedestrian linkages from this Gateway location to the north of the Railway Station.

2.93 The School Croft / Wood Street area to the eastern end of Exchange Square offers the potential to animate the dead-end of this valuable asset, provide pedestrian linkages to Middlehaven and unlock development opportunity. This point could provide a high quality linkage between the existing Retail Core, via Albert Road, the railway and Bridge Street, to Middlehaven and Middlesbrough College. An intense increase in footfall along this axis has been reported since the new College opened in September 2008. This effect will be further intensified by the delivery of Boho, the development of Middlehaven and any additional educational facilities.

Movement and Transportation 2.94 Critical factors in the dynamic of a successful Town Centre are high quality

transportation links and ease of access and movement The existing situation in Middlesbrough Town Centre is reflected by the following factors:

Gateways to Middlesbrough Town Centre

2.95 Strategic gateways to the Town Centre for all modes of transport are essential to ensure that movements are undertaken efficiently and by the most appropriate mode of transport. Gateways provide initial perceptions on arrival in Middlesbrough. Quality of


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locale, design and linkages leading from the Gateways must be of the highest standard.

2.96 Existing signage to car parking does not offer information on available spaces or the quadrant for which a car park is intended. Variable message signage, including the number of free spaces and the destinations served, would assist movement around the Town Centre. This would assist in balancing out usage of car parks that are currently under utilised, particularly if undertaken in combination with improvements to pedestrian linkages between car parks and the Retail Core.

Public Transport Accessibility

2.97 Middlesbrough bus station is well patronised. It provides a core function within the Town Centre and links directly to the Retail Core through the Captain Cook Square and Newport Road. However, the existing location of the bus station is isolated for the evening economy and cultural and leisure offers elsewhere in the Town Centre.

2.98 This leads to the following conclusions:

Either the bus station should remain where it is with improvements to the connections between it and evening uses, ensuring that these links are animated through the evening; or

The bus station should relocate, or be provided in a different form, so that it serves both the retail and the evening economy more directly without the need to create additional links between the bus station and other leisure offers in the Town Centre.

Car Parking

2.99 Town Centre parking provision is approaching capacity in certain locations. Peak demands reach or exceed capacity. There is an imbalance between provision and demand for car parking in varying Town Centre locations. The provision of Park and Ride facilities may act to reduce pressure on existing provision while also offering ready access to the Town Centre core for users. It is understood that Middlesbrough Council will be examining the feasibility of a park and ride scheme in the coming year.

2.100 There is a perception that the location of existing car parks, and the attractiveness of pedestrian routes between them and core destinations, leads to under-utilisation of car parking assets.

2.101 This effect is different for the daytime and evening economies. The influence of the standard and perception of pedestrian routes to and from car parks has a far greater influence during the hours of darkness. Any proposals for new car parking in the centre must consider location sensitively to serve the evening economy. This may require a diverse range of locations to serve the burgeoning evening economy across the Town Centre, not just within existing leisure quarters.( With the possible exception of the France St car park, there is currently little or no parking located conveniently, secure, and with good/well perceived pedestrian access to serve evening uses).

2.102 The southern part of the Town Centre is one area where demand outstrips supply of car parking. This will be increasingly the case as Linthorpe Central develops in combination with expansion plans of the University of Teesside. These factors will result in a severe lack of readily accessible car parking to the south of the Town Centre.

2.103 Concerns about car crime and personal security continue to be major issues for town centre and car park users in Middlesbrough. The security of parking facilities is an important factor in attracting both people and businesses into the town centre. By improving the quality of parking and ensuring security levels are consistent throughout all facilities in Middlesbrough town centre, more car parks are likely to be used, relieving pressure from those locations which are more intensively used.


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2.104 Recent improvements include monitored CCTV in all main car parks, improved lighting and customer help points. Consequently, town centre Council car parks are now virtually crime free and increased usage has been observed. This has had the further effect of reducing congestion by releasing road space on sensitive routes.

2.105 Accessible car parking provision needs to be part of the package to enhance the attractiveness of the town centre and to enable it to compete effectively with out of centre retail and business locations which offer free parking. A flexible approach to operational parking provision is therefore needed. Information on routes to and at car parks needs to be clear and concise to provide users with clear directions and instructions.

2.106 Middlesbrough Council will bring forward its Parking Strategy to respond to these issues, bringing forward policies to encourage:

Provision of short stay parking near primary shopping areas;

New parking facilities to support existing and potential development and initiatives. A study brief has been prepared to examine locations of new off-street car parking to service the town centre;

Development of an appropriate approach to developer contributions;

An assessment of existing and future demand for secure evening and overnight parking in the town centre;

Improvements in pedestrian access between town centre car parks and the town centre’s main attractions; and

Introduction of a parking guidance system for the town centre.

Pedestrian Linkages

2.107 The quality of pedestrian links to car parking facilities and perceptions of safety are very closely aligned to car park usage and overall perception of the Town Centre. Current links to certain car parks serving the Town Centre are perceived as being indirect and intimidating, particularly Zetland.

2.108 A detailed review of the pedestrian links to all car parks serving the Town Centre must be undertaken as an early action.

2.109 Connections within the Town Centre are strong in a north-south direction. Albert Road and Linthorpe Road provide positive visual and physical connections through the heart of the Town Centre. Connections through the Town Centre in an east-west direction are less defined, particularly in the Retail Core. Borough Road, Grange Road, Corporation Road and Wilson Street do provide east-west routes, but the direct link through the heart of the retail core between the bus station and Centre Square is not direct. This is particularly acute during the evening when the Mall provides an impermeable block to direct pedestrian movement across the town centre.

2.110 Other key pedestrian linkages from the Retail Core outwards need to be improved. The road network within the Town Centre can create barriers to pedestrian movements and a strategic review is required in the light of current development proposals

2.111 A key linkage is between the existing Retail Core and Linthorpe Central, crossing Borough Road. This link must be reinforced to encourage pedestrian movement. Consideration must be given to access to Linthorpe Central by all modes of transport. This would help the integration of Linthorpe Central area with the Retail Core and University.

2.112 The delivery of a new multi-storey car park in the Linthorpe Central / University would assist the integration of these areas into the Retail Core. This would be achieved by sensitive location of the car park and consideration of the pedestrian routes from the


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car park to allow it to serve the University, Linthorpe Central and the Cultural Quarter throughout the day and evening.

Future Measures

2.113 It is important to consider future proposals for improvements to the infrastructure associated with moving people to and from the Town Centre, as well as considering movements within the Town Centre itself.

2.114 Proposals within regional and local strategies will impact on movements to and within the Town Centre. The Tees Valley Metro proposals are perhaps the widest reaching of these. This can potentially make Middlesbrough Town Centre more accessible to a wider catchment of visitor. Even without the Tees Valley Metro scheme, there are proposals to open new stations that will provide a broader range of origins for journeys to Middlesbrough Town Centre.

2.115 The Town Centre Strategy must recognise the significance of the increased influence of rail both with and without the Tees Valley Metro proposals, and seek to integrate Middlesbrough Railway Station with the Town Centre and bus services in a seamless manner.


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3 OPTIMISING OPPORTUNITY 3.1 The discussion of the Case for Change, whether from the perspective of progress to

date, the economic performance of the Town Centre or indeed in discussing physical factors which affect the future of the centre, indicates a range of powerful drivers that support ongoing physical and economic development;

Increasing demand for housing and student population;

The need for increased provision and quality of retail, culture and leisure facilities; and

Commitment to new economic sectors and large scale development.

3.2 The findings of the Challenges and Opportunities chapters have been fed into the following SWOT analysis of Middlesbrough Town Centre.

Middlesbrough Town Centre SWOT

Strengths 3.3 Middlesbrough is currently the primary sub-regional town centre location in the Tees

Valley for:

Retail;

Cultural Facilities;

Education; and

Evening Economy uses.

Positive Planning Framework

Projected regional growth in the long term.

The expansion of Middlesbrough is supported in the RSS and LDF.

The emergence of the Stockton-Middlesbrough Initiative and the importance of Middlesbrough and Stockton town centres to its delivery.

A range of additional factors (outlined within this document) support ongoing change.

Middlesbrough as a key economic driver within the Tees Valley City Region.

Commitment of the Public Sector to the Centre and New Sectors

Administrative functions, including the Civic Centre, JSU and the law courts.

Digital Media and the Delivery of Boho.

Office – development of a sustainable town centre office core (with strong linkages between Middlehaven and the other parts of the centre).

Hotel – enabling representation in the town centre of both high end and budget operators through marketing, site assembly and other measures.

Retail – encouraging future requirements for mainstream comparison retailing to be accommodated in the town centre.

Education – developing clear physical and operational links between the town centre and educational establishment to capture the benefits of related spending and activity.

Culture – building on the success of mima and other initiatives to further develop Middlesbrough town centre’s appeal as a centre of cultural activity.


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Impact of recent developments and progress

mima, Centre Square and related public realm.

Ongoing expansion of the educational sector.

A strong, focused Retail Core and emergence of the independent retail sector around Linthorpe Central.

Physical Character

Centre Square and Public Realm.

Strong Victorian grid structure.

Developments in progress and opportunity sites at Middlehaven, Cannon Park, Centre Square East.

Socio-Economic Factors

Extensive travel to work and retail and leisure catchments.

Tees Valley has low labour rates and commercial and industrial rents.

Availability of workforce.

Weaknesses Socio-Economic Challenges

Levels of unemployment.

Trends of out-migration.

Low levels of business start-up and survival.

Poor attraction of A&B socio-economic profile.

Access to employment for Middlesbrough residents.

Economic Conditions

Current Economic Downturn.

Current failure of the development markets.

Developer confidence.

Gateways into Middlesbrough

Quality of rail links.

Quality of entry points by road and around railway and bus stations.

Perceptions

External and internal perception of high crime levels and low-quality physical environment.

The limited quality of the retail offer and diversity in the evening offer (food, drink and cultural pursuits).

Dwell Time

Lack of café culture and restaurants.

Lack of high-end retail in Town Centre Core.


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Opportunities Emerging City Region status.

Demand for additional housing, retail and leisure.

Emerging cultural and creative media hub.

Further development of existing and emerging clusters.

Educational sectors and the encouragement of spin-out companies, particularly in Digital Media.

Increased student population and the potential for overseas catchment.

Improvement of quality of offer in retail, leisure and cultural facilities across the Town Centre.

Potential for designation of a Business Improvement District in the town centre.

The delivery of Middlehaven, Cannon Park and the Linthorpe Central Improvement Strategy.

Improvements to gateways, including Metro and other forms of public transport.

Potential to develop a collaborative approach under SMI which maximises the contribution of the two town centres based on their distinctive roles.

Threats

External

Retail leakage to Teesside Retail Park, Darlington, Durham and Newcastle/Gateshead.

Loss of A&B socio-economic profile spending to other leisure and retail locations.

Office leakage to Stockton, Hartlepool and across Tees Valley.

Delay in delivery of Middlehaven due to market condition.

Extended economic downturn.

Internal

Lack of private sector activity.

Increased deprivation and social exclusion created by the recession.

Physical fragmentation, particularly between existing Core and Middlehaven /Boho, Cannon Park and Linthorpe Central.

Lack of co-ordination of projects, programmes and initiatives.

Conclusions 3.4 The main factors relevant to Middlesbrough Town Centre in its current form are:

There is significant opportunity – a positive planning framework and indicative demand for increased housing, retail, culture and leisure facilities;

The emerging Tees Valley City Region and Stockton-Middlesbrough Initiative and the role Middlesbrough centre can play as a key economic driver;

Ongoing commitment from Middlesbrough Council and its partners to generate a critical mass of activity in education, digital and creative media and culture;


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Commitment to significant development proposals including Middlehaven, Centre Square East, Cannon Park and the Casino;

The centre has expanded its boundary to include Greater Middlehaven to the north and Cannon Park to the west. However, these areas remain physically disconnected from the existing core and the A66 viaduct forms a major barrier;

While there are proposals for the Mall, Dundas and Hillstreet, there is a lack of major development sites within the Retail Core;

There is a need for the Town Centre’s future growth to address a range of ongoing socio-economic challenges including unemployment, low levels of business start up and survival and out-migration;

Middlesbrough faces Increased retail and office sector competition from out-of-town development; and

The economic downturn is likely to significantly slow development activity for the foreseeable future. It is critical that Middlesbrough has the requisite infrastructure, partnerships and profile to react positively to this challenging period and the time at which there is uplift in markets.

Strategic Objectives

3.5 In analysis of the Case for Change, the following Strategic Objectives emerged for Middlesbrough Town Centre:

3.6 The overall strategic vision is for Middlesbrough Town Centre is to fulfill its potential as a retail, commercial and creative centre at the heart of the Tees Valley City Region by 2020.

3.7 The City Region needs a successful city core. Middlesbrough can contribute to achieving that city core by the way it looks, feels and acts like a city, and in line with SMI, achieves the impacts of a city for the benefit of the whole Tees Valley City Region.

3.8 By 2020 Middlesbrough Town Centre will be:

• A centre that performs as the primary economic driver for the Tees Valley City Region;

• A centre with a critical mass of economic and social activity, across a diverse range of sectors;

• A distinct environment, recognized locally and nationally for its vibrancy, culture, educational pursuits, strong retail offer and modern physical environment;

• A centre in which people choose to live, work, shop, and spend leisure time within a twenty-four hour economy;

• A center that acts as an attractor for a broad category of shoppers and leisure users from s sub-regional catchment; and

• A centre that is economically, socially, culturally and environmentally viable and sustainable.

3.9 These aspirations will be achieved by the delivery of the following Objectives:

Economic

To continue growth in retail, education, cultural and leisure, creative industries and digital media, and office sectors.


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To deliver a package of interventions that encourages increased dwell time and expenditure from across the socio-economic spectrum and which encourages the attraction of high-end leisure and retail operators.

To assemble sites and utilise Council-owned assets and vacant and derelict properties to deliver uses that promote and diversify the economic offer within the Centre.

To offer support to new business, independent retail and incubators in Digital and Creative media.

Connectivity

To deliver a series of physical interventions that join together and encourage increased footfall between the current Centre and Middlehaven/Boho, Cannon Park and Linthorpe Central, whilst creating a series of key development opportunities.

Residential

To promote a larger and more mixed city centre population via the provision of residential development across high-end and student sectors.

To provide the town centre population with access to a broader range of high quality and diverse leisure, cultural and retail services within a safe environment.

Cultural

To develop Middlesbrough’s cultural infrastructure, capitalising upon the delivery of mima and the potential of the Digital and Creative Media hub, to deliver enhanced concert and theatre facilities, workspace for cultural pursuits and significant public art.

Movement and Accessibility

To strengthen connections and circulation across the centre, whilst providing key access points for integrated public transport and car parking.

To improve access routes and gateways into the centre via public and private transport and pedestrian links.

To strengthen connections and circulation across the centre, particularly between the Retail Core and other areas.

To ensure car parking meets the needs and aspirations of the centre in terms of capacity, location and quality.

Improving Image and Perceptions

To promote campaigns to publicise Middlesbrough’s strong and diverse offer.

To deliver events, iconic buildings and public artworks that enhance the image of Middlesbrough.

Effective Implementation

To clearly identify roles and responsibilities and the timeframe for centre proposals and to secure effective working between the public and private sectors.

Recommendations – the “Tool Kit” for a Vibrant City Centre 3.10 Action to support the vision and strategic objectives must build upon key successes

and development opportunities to create critical mass of city scale. This will be delivered by a range of core Recommendations.


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The “Tool Kit” for a Vibrant centre

3.11 In combination, the Recommendations have been designed to act as a “Tool Kit” to promote a rounded product. The “Tool Kit” aims to deliver the Strategy’s objectives by increasing the scale, quality and range of activity in the centre.

3.12 The Tool Kit must effect a number of changes as part of the ‘step-change’ Middlesbrough requires producing.

3.13 The Recommendations should assist in coordinating Middlesbrough Council’s approach to new proposals as well as established projects and initiatives, including Middlehaven. They are underpinned by the principles of sustainable development, balancing enhanced economic activity, social inclusion and broadening the Centre catchment while enhancing the physical environment.

3.14 Core Recommendations for Middlesbrough City Centre are as follows:

Recommendation A - Expansion and Strengthening of the Retail Core – “Quality, Catchment and Dwell Time”;

Recommendation B - Strategic Property and Sites;

Recommendation C - Use of Planning Powers;

Recommendation D - Development of the Office Sector;

Recommendation E - Expansion of the Educational Sector and Promotion of a Centre of Excellence in Digital and Creative Media;

Recommendation F - Ongoing development of Middlesbrough as a Cultural and Leisure Hub;

Recommendation G - Improved Movement, Access and Gateways;

Recommendation H - Car Parking – Location and Availability;

Recommendation I - Physical Interventions;

Recommendation J - Enhanced city centre Safety; and

Recommendation K - Promotion and Marketing of the city centre.


Roger Tym & Partners May 2009 33

Core Recommendation A: Expansion and Strengthening of Retail Core – “Quality, Catchment and Dwell”The policies for the Retail Core in Middlesbrough will:

Improve the quality of the Retail Core offer within its existing capacity;

Respond to identified gaps in the overall retail offer; and

In the short-medium term, grow the Retail Core to deliver an improved quality of offer – not to increase the overall capacity.

Recommendation

Fit to Objective

Key Actions Ref.

Identification of key site(s) for expansion of the Retail Core at the western end of the city centre, relative to identified demand and development of a new Department Store.

EconomicConnections Movement

Option Appraisal of the key sites that connect the existing Retail Core to the western extremities of the town centre and Cannon Park. This includes the existing bus station, the Harris Street /Yew Street triangle and the Sainsbury’s site.

A1

Appraisal of alternative bus station sites, including analysis of the potential creation of a bus/rail public transport hub or alternative arrangements for bus stopping and circulation.

A2

Development of a development proposition to potential department store retailers, inclusive of identified location and funding package.

A3

EconomicConnections

Completion of an Investment Strategy for the Linthorpe Central Improvement Strategy to further encourage improved environment and performance and physical connections between the University Quarter, the Retail Core and Linthorpe Central.

A4

Development of physical linkages to encourage increased footfall and connectivity between the Retail Core and Linthorpe Central

Design and implementation of physical improvements to the Borough Road / Linthorpe Road junction to encourage movement, attractiveness and footfall between Linthorpe Central and the Retail Core. To be inclusive of junction and public realm improvements.

A5

Investigation of options to increase car parking capacity at the Southern-edge of the city centre, particularly in the Linthorpe Central area, to support and strengthen footfall into the Core along Linthorpe Road South and further integrate Linthorpe Central with the city centre.

A6

Promotion of Middlesbrough’s unique independent retail sector in Linthorpe Central, further promoting distinctiveness within the city centre and increasing potential to attract higher levels of expenditure.

Economic Provision of support to independent retail, particularly in the Linthorpe Central area. To include identification of support for business start-up, training and provision of staff.

A7

Development of a formal working relationship with key independent retailers to identify possible peer support and joint marketing of Linthorpe Central / independent retail.

A8



Core Recommendation B: Strategic Property and Sites Recommendation

Fit to Objective

Key Actions Ref.

Identification of key sites and properties that will encourage improved connectivity across the city centre and promote commercial, leisure and residential development and related site assembly.

EconomicResidential

Preparation of a Site Assembly Strategy for Middlesbrough city centre, giving particular consideration to those areas identified for physical intervention in Recommendation H. This is an essential early action and will include identification of key ownerships and an action plan for assembly.

B1

Identification of best value model Special Purpose Vehicle for Council property assets and, critically, Project Delivery within the city centre. A SPV provides the opportunity to attract private partnership / investment and is deemed a favourable delivery mechanism by ONE. This is also an essential early action.

B2

Identification of demand for increased housing supply in city centre locations, taking into account the potential for high-end residential, private ownership, apartment development and student accommodation. This will not consider new residential supply at Middlehaven. This should dovetail with work to prepare the LDF evidence base.

B3

Completion of a Vacant and Derelict Properties Strategy for the city centre

EconomicResidential

Development of a detailed profile of location, history, condition, status and strategic priority of all vacant and derelict properties within the city centre boundary.

B4

Engagement with key private owners with a view to facilitating / influencing end uses for vacant and derelict properties. In particular, productive engagement with Jomast in relation to Church House. Albert Road and Exchange Square. This is an early priority action.

B5

Ensure the delivery of best value on Middlesbrough Council property assets, including financial return and economic benefit.

EconomicImplementation

Ensure that Council assets are utilised to deliver key strategic city centre projects with economic and physical benefits. This Strategy is closely aligned to ensuring the optimum model of SPV. The ability to demonstrate best value and additionality will be critical to attracting funding from ONE.

B6



Core Recommendation C: Use of Planning Powers Recommendation

Fit to Objective Key Actions Reference

Ensure a sequential approach is rigorously applied to applications for retail, leisure and commercial development. It is essential that, in recognition of the city centre as the key economic driver in the City Region, new development enhances the range and mass of activity required to achieve this.


Adopt a planning policy for Middlesbrough that ensures a sequential approach to retail, leisure and commercial uses is applied to the favour of sites within the city centre boundary.

C1

Seek to influence the limitation of out-of-town and commercial consents within neighbouring authorities and local catchment


Engage with neighbouring authorities and seek to exert influence in terms of the limitation of planning consents for out-of-centre retail, leisure and commercial uses.

C2

Active promotion of the city centre as the preferred location for development.

Implementation Adoption of the Town Centre Strategy as representative of Middlesbrough Council’s approach to development, in line with the physical interventions proposed by Recommendation H.

C3

Use of development control powers by Middlesbrough Council to ensure proposed development fits to strategic targets and design quality required within the city centre.


Following the adoption of the Town Centre Strategy by Middlesbrough Council, promote the Strategy as overarching guidance for development policy.

C4



Core Recommendation D: Development of the Office Sector Recommendation


Identification of the key locations for future office sector activity within the City Centre - Middlehaven (building upon Manhattan Gate), the Centre Square Civic Quarter (including Central Square East) and Boho. Although St. Hildas, to the north of Boho, is identified within the Middlehaven Masterplan for open space, this area has significant potential as an area for commercial development. Increased animation in this area would benefit from proximity to the train station and improved linkages to the Retail Core.

Economic

Centre Square East will be the primary new-build office site in central Middlesbrough. Middlesbrough Council must continue its support and promotion of this development to ensure delivery. This in turn will bring additional animation to the Centre Square and the Civic and Cultural Quarters.

D1

Middlesbrough Council support and promotion of proposals within the Middlehaven Masterplan for further office development.

D2

Production of a development brief for the area to the North of Boho and appraising the potential to re-designate this area for further commercial development.

D3

Identification of key linkages between the Middlehaven office core and the city centre Retail Core and Centre Square. It is important that all future development at Middlehaven works to benefit the city centre, rather than existing in isolation. It is therefore important to encourage footfall, dwell time and spend of those working, living and studying in Middlehaven back towards the existing Core.


Development of physical proposals for high-quality pedestrian route between Albert Road and Middlehaven College / future office development.

D4

Identification of limited sites for niche and SME office and commercial development within the city centre

Economic Identification of key properties and sites for the clustering of smaller office provision for SME, business start-up and professional sectors around Albert Road and Borough Road.

D5



Core Recommendation E: Expansion of the Educational Sector and links to Digital and Creative Media Recommendation Fit to Objective Key Actions Reference Establishment of a coordinated approach to the ongoing expansion of University of Teesside, Middlesbrough College, Boho and other higher education facilities. The ongoing development of Middlesbrough city centre as a hub for educational activity is a critical element in the transition to achieving a city-scale mass of activity.

EconomicResidential

Establishment of a Council-led team to encourage a strategic approach to the ongoing growth of the Educational sector in the City, incorporating all active educational institutions and ONE NE.

E1

Continued and active support from Middlesbrough Council for delivery of the University of Teesside Estates Strategy and all aspects of the Boho development.

E2

Delivery of an appropriate range and variety of student accommodation within the city centre. The Case for Change notes that growth in student numbers is anticipated. Middlesbrough must respond by providing an appropriate level and quality of accommodation. This is viewed as a critical factor in attracting the long-term residence of a skilled workforce who study in the City.

EconomicResidential Cultural

Identification of likely capacity and key sites for preferred consents for student accommodation. This should include re-consideration of the ex-Odeon site and potential capacity relative to an increased overseas student contingent attending Middlesbrough College. A growing student population should be afforded a mix of traditional shared style accommodation, but also attractive apartment accommodation in equally attractive locations. Any new development around Exchange Square and the proposed link to Middlehaven would provide the opportunity to create a hub of student activity within a high-quality environment.

E3

Ongoing promotion of Middlesbrough as a Centre of Excellence for Digital and Creative Media Provision of business support for start-up and incubator enterprises in Digital and Cultural Media Digital Media is a key growth sector. It also provides the city with a distinctive character and international profile.

EconomicCultural

Active support by Middlesbrough Council for the provision of business incubation and start-up accommodation in Digital and Creative Media as an element of the Boho project.

E4

EconomicCultural

Provision of financial support and business advice for business incubation and spin-out companies in Digital and Creative media.

E5



Core Recommendation F: Ongoing development of Middlesbrough as a Cultural and Leisure Attractor Recommendation


Continued delivery of a Cultural Hub in Middlesbrough city centre, based around Centre Square and incorporating mima, the Town Hall and a centre for cultural and artistic pursuits. An essential element of the Cultural Hub will be the provision of incubator space for cultural business Middlesbrough Council has already grasped and identified the potential socio-economic benefits of promoting the city as a hub for cultural activity. It is also an important aspect in the “Tool Kit” for increasing dwell time and visitation from category A&B spend, as well as improving overall perceptions.

CulturalEconomic

Implementation of proposals for the Town Hall to create improved concert hall facilities (entrance foyer and bar) and covered space for cultural pursuits within the Town Hall Quadrant.

F1

Delivery of the proposed programme of large-scale public art installation across Middlesbrough city centre.

F2

Creation of incubator space for arts and cultural businesses within the covered Town Hall Quadrant area.

F3

Diversification of the evening economy, in tandem with the cultural hub and casino development, which enhances the overall quality of leisure, food, drink and accommodation. The lack of diversity in the evening economy is a key element currently missing from Middlesbrough city centre’s Tool Kit. Extended trips, dwell time and group A and B spend are reliant upon an appropriate evening offer encompassing quality dining, cultural pursuits and the perception of safety and ease of movement.

CulturalEconomic

Production of a Middlesbrough city centre Evening Economy Strategy, incorporating the role and purpose of key sites around Centre Square, Linthorpe Central, Borough Road and existing evening economy areas and targeting of quality restaurant operators.

F4

Establishment of a city centre Evening Economy Working Group, with invitation extended to key stakeholders and operators. It is important that this targets uplift in evening activity, but also recognises that the evening pub culture does play an important role in specific parts of the Centre.

F5



Core Recommendation F: Ongoing development of Middlesbrough as a Cultural and Leisure Attractor Recommendation


Delivery of a large casino within three years on a site that maximises regeneration benefits for Middlesbrough. The successful Casino bid is a major advantage to Middlesbrough in terms of the overall “Took Kit” and diversification of the evening economy. It must therefore be afforded the highest levels of attention by Middlesbrough Council.

EconomicImplementation Cultural

Completion of an Options Appraisal to identify the Casino Site with maximum regeneration benefits to Middlesbrough.

F6

Identification of the preferred Casino Operator F7

Delivery of hotel and conference facilities in key locations that enhance the use and animation of public space. There is a distinct lack of quality hotel accommodation available within Middlesbrough city centre. Currently the Thistle Hotel controls the market. However, there are a number of proposals for hotels in key locations and these should be promoted by Middlesbrough Council. Quality hotels will increase visitor numbers and will enhance restaurant quality and overall animation.

EconomicConnections Cultural

Middlesbrough Council support for and promotion of increased numbers of quality hotel developments within the city centre, including support for proposals at Central Gardens East, Middlehaven and Psyche.

F8



Core Recommendation G: Improved movement and access Recommendation


Production of a Gateway Strategy for Middlesbrough city centre


Identification of all key gateway points to the city centre for car and public transport and subsequent production of a Middlesbrough city centre Gateway Strategy linked to variable signage and physical improvements (linked to Recommendation I).

G1

Identification of key future actions for public transport operation, movement and integration within the city centre.

Economic Connections Movement

Completion of an Options Appraisal of alternative bus station sites and/or alternative arrangements to serve bus arrivals and departures from the city centre. This should include examination of potential improvements to the interchange between bus and rail and the impact on retail footfall, and take account of proposed physical interventions at the western end of the city centre and the role of the railway station.

G2



Core Recommendation H: Car Parking Recommendation


Implementation of an overall improvement in the supply and locational suitability of city centre Car Parking. It is important that car parking provision, operation and development reflects the objectives of the Town Centre Strategy. The location and supply of existing car parking has been identified as a key element in overall perception and the attraction of visitors and workforce to the city centre. This must take account of those parts of the city centre to which there is a desire to increase footfall, key employment locations, the University and perceptions of safety, particularly in the evening.

ConnectionsMovement Economic

Resolution and adoption of the Middlesbrough-wide Car Parking Strategy – it is essential that this is delivered as an early action. The Car Parking Strategy must reflect the objectives of the Town Centre Strategy.

H1

Implementation of a variable message car park signage system that will direct car and pedestrian movements towards appropriate car parking locations for key retail, cultural and employment uses.

H2

Completion of a study to identify key locations for the provision of new-build multi-storey car parking facilities within the city centre, taking into account demand, pedestrian safety, increase of footfall between the Retail Core and key regeneration areas (particularly Linthorpe Central).

H3

Appraisal of potential locations for secure evening parking either within existing car parking stock (either by improving security and perceptions around routes to car parks) or within new car parking provision located to provide safe, convenient and secure movements to cultural and leisure offers within the Centre.

H4



Core Recommendation I: Physical Interventions Recommendation


The Interventions outlined within Core Recommendation I are considered in greater detail in Chapter 4. Consolidation and strengthening of North-South Axes Establishment of key physical connections within the Centre.

ConnectionsResidential Economic Movement

Establish a key physical pedestrian link to Middlehaven via Exchange Square, creating new development opportunities by the removal of properties to the Eastern end of Exchange Square. The provision of a high-quality link to Middlehaven will serve office, residential and student populations, but will also encourage footfall back towards the Retail and Cultural Cores in the longer term.

I1

Creation of an improved pedestrian link from the northern end of Linthorpe Road, including the upgrading of spaces under the A66 and railway, the redevelopment of the public space and Gateway site around Crown House which will also animate the route and setting of the Zetland Car Park.

I2

Re-appraisal of open space proposals within the Middlehaven Masterplan and subsequent re-designation of the area as a key zone for commercial and potentially education-related development in the centre, building upon Boho, and further drawing animation to the north of the A66 at a location more deliverable in the medium term than other parts of Middlehaven.

I3

Consolidation and strengthening of East-west Axis. Establishment of key physical

ConnectionsResidential Economic Movement

Identification of key development and public realm enhancement opportunities to strengthen and animate the physical connections between Middlesbrough Leisure Park and Corporation Road / Centre Square.

I4



Core Recommendation I: Physical Interventions connections within the centre. Appraisal and identification of the preferred option for the extension of the

Retail Core to the western end of the city centre, including detailed consideration of the bus station site, the Sainsbury’s site and the Harris Street / Yew Street triangle. The preferred option must improve linkages with Cannon Park, and create a development opportunity for a new department store and consider overall transport and pedestrian movements between the Retail Core and Cannon Park.

I5

Implementation of the preferred option for physical development proposals to the western end of the centre and Retail Core.

I6

Completion of a review of traffic circulation in the western end of the centre, to consider movement between Cannon Park and the Retail Core, and the potential implications of development options on circulation, access to car parking and bus movements.

I7

Creation of a series of stronger pedestrian linkages across the centre, encouraging increased footfall

ConnectionsCultural

Completion of proposals to encourage increased 24-hour footfalls between the Retail Core, the current bus station and Centre Square, This will include discussions with the Mall over the potential opening-up of access through the Mall into Centre Square and further upgrading of the public realm.

I8

Identification and promotion of day and evening economy uses along key city centre pedestrian routes to retain animation and natural surveillance twenty-four hours of the day. Areas to be taken into account are the Retail Core to Centre Square, Boho to Linthorpe Central and Middlehaven to Centre Square and the Retail Core.

I9



Core Recommendation J: city centre Safety Recommendation


Identify, promote and monitor measures to reduce city centre crime and anti-social behaviour through the multi-agency PSG5. Actively promote and apply the principles of Crime Prevention through Environmental Design. Enhancement of the overall perception of safety across the city centre is a pre-requisite of encouraging a diverse evening economy and increased visitor numbers.

MovementEconomic Residential

Completion of a Safety Through Design Code for the city centre and adoptionby the Council as key guidance in the design and delivery of physical interventions.

J1

Encouragement of a mix of uses in the delivery of the physical interventions which naturally engender extended active use and follow the principles and attributes of “ Safer Places – The Planning System and Crime Prevention” (Home Office/ODPM 2004).

J2

Through the existing multi-agency Problem Solving Group 5 on town centre crime and anti-social behavior issues, engage private sector stakeholders to agree principles and practice regarding safety improvements. Ensure the work of PSG5 integrates with that of the proposed Evening Economy Working Group (Recommendation F5).

J3



Core Recommendation K: Promotion / Marketing of the city centre Recommendation


Use of the City Centre Strategy, and related Vision, Policy and Actions as a basis for the marketing of the City Centre.

Economic Adoption by Middlesbrough Council of the Town Centre Strategy as the foundation document for the marketing of the City Centre, focussing on the city-status aspiration and indicating commitment to quality, distinctiveness, new physical development, improved retail, education, improved movement and access, leisure and cultural pursuits.

K1

Overall, aim to alter perceptions, both external and internal, of Middlesbrough city centre in a manner that attracts increased numbers of visitors and residents and increases retail and leisure footfall and catchment.

EconomicImplementation Cultural

Preparation of a Marketing and Events Strategy for Middlesbrough city centre for the period of the Town Centre Strategy (to 2020). The Strategy must consider the exploitation of key events, public art, iconic buildings and seasonal promotions as key opportunities to market Middlesbrough city centre.

K2


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4 PHYSICAL INTERVENTIONS 4.1 In proposing Physical interventions within the centre, it is critical to consider how we

create a dynamic whereby the various parts of the centre work together cohesively. In particular this relates to creating physical links that encourage improved movement, and increased animation. It is important that individuals working in the Civic Quarter or Middlehaven or attending Middlesbrough College are facilitated with direct, attractive routes to the retail and leisure offer.

4.2 Figure 4-1, the Key Diagram shows the centre as a whole, indicating the areas in the centre to which it will be important to form key connections in terms of animated routes – Middlehaven and Boho, Cannon Park and Linthorpe Central - and shows current patterns of vehicular and pedestrian movement around the town centre.

4.3 It highlights directions for development of areas for key intervention. There are also a number of movement and transportation elements related to these.

Key Issues Summary

Town Centre Core

4.4 Retail analysis has identified the need to extend the size and quality of the Retail Core area in the long term. As noted in the physical analysis, while there are a number of redevelopment opportunities (e.g. Dundas, Hillstreet and The Mall ) there are no major development opportunity sites within the current Retail Core. Expansion will be required at some point in the future and is most likely to be viable to the west of the centre.

4.5 The identification of an opportunity site for landmark retail development should be considered - in particular for a new high-end department store to strengthen the retail offer in a sub-regional context.

Town Centre Core West to Cannon Park

4.6 At the Western end there are complex traffic movements around the bus station entrance and to Sainsburys and the Hill Street Centre and its car park. These make connections between and the integration of Sainsburys and the Cannon Park area with the centre very difficult.

Town Centre Core North to Middlehaven

4.7 The RPDP expanded the boundary of Middlesbrough town centre. The future development of Greater Middlehaven, and Boho will be part of the centre, but disconnected from the Retail Core by a major barrier – the A66 and the railway.

Town Centre Core South to Linthorpe Central

4.8 Middlesbrough has the benefit of an independent retail sector along Linthorpe Central, but this area is also disconnected from the Retail Core and the adjacent University Quarter.

4.9 On the southern edge of the centre, limited parking capacity and the perceived barrier of Borough Road needs to be addressed if Linthorpe Central is to be better integrated with the Retail Core and to play a stronger role in its diverse offer.

Town Centre Core East to Middlesbrough Leisure Park

4.10 Real and perceptual easing of pedestrian movement across Marton Road is essential to integration of the existing leisure base and potential future development in this area, and to promote increasing footfall on the eastern end of Corporation Road.


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Figure 4-1 Key Diagram and Existing Patterns of Movement and Circulation


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Town Centre Core 4.11 Retail analysis has identified the need to extend the size and quality of the Retail Core

area in the long term. As noted in the physical analysis, while there are a number of redevelopment opportunities (e.g. Dundas, Hillstreet and The Mall ) there are no major development opportunity sites within the current Retail Core. Expansion will be required at some point in the future and is most likely to be viable to the west of the centre.

4.5 Planned developments in and around the Town Centre Core, whilst not likely to address the need for additional retailing, will be important to the development of other sectors. Sites including the former police station/Dunning Street, Centre Square East and the former Odeon and Cleveland Scientific Institute sites have the potential to add dramatically to the office, restaurant/hotel and town centre accommodation offers and will provide the next phase of development over the short to medium term. Ensuring the quality and connectivity of these developments will be key to maximising their contribution to the overall Strategy.

4.6 Beyond these sites there will be opportunities for further physical redevelopment within the town centre core though these will be predominantly private sector led. The priority under this Strategy will be to ensure that these opportunities are maximized in relation to their contribution to the objectives within the Strategy. Potential sites, which would certainly make significant contribution, include Church House, Gurney House, and Albert Road (south of Wilson Street).

Key Animation Route – Bus Station to Centre Square

4.12 While the bus station is well related to the Retail Core, it is not well linked to other city centre activities and bus / rail interchange is perceived as difficult. The bus station is also located in the area with greatest potential for an expansion of the Retail Core and the accommodation of a landmark retail development.

4.13 A range of alternative approaches to the bus station and public transport interchange issues need to be considered in relation to their varied operational and locational performances. Options could include sites near the railway station or Wilson Street east of Albert Mews or, radically in a range of on-street locations.

4.14 One important route in terms of the dynamic and animation of the city centre relates to pedestrian movements from the bus station, via the Retail Core to Centre Square. The route is currently constrained by the Mall and its lack of access to Albert Road. The Retail Core is buoyant during the day, as is Centre Square as a result of its civic functions. However, these spaces are underused and perceived as unsafe in the evening.

4.15 In order to encourage improved route animation and, ultimately, improved animation of Centre Square and the Cultural Quarter, it is important to encourage ease of pedestrian movement. This can best be achieved through opening up the eastern edge of The Mall to permit access to Centre Square. The Mall edge on Albert Road also provides an opportunity for an improved food and drink offer, offering significant increased animation to Centre Square.

4.16 The route would also benefit from improved signage to the Cultural Quarter, Centre Square and key other attractions, including Middlesbrough College and Boho. Increased levels of footfall and evening activity are important in terms of perception and promotion of safety.


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Town Centre Core West to Cannon Park

Figure 4-2 Current Patterns of Movement and Key Issues

4.17 There is a need to explore alternative routes for a strong pedestrian link between Cannon Park and the Retail Core. The route needs to encourage Cannon Park edge of centre car borne retail trips to extend into wider city centre retail trips.

4.18 Key factors here include:

The interrelationship of pedestrian route alignment with bus movements into and out of the bus station in its current location;

Traffic movements to and from Hillstreet and Sainsburys in the current configuration;

Consideration of alternative configurations and access arrangements in relation to Sainsburys and Hillstreet and its car park;

Consideration of alternative arrangements around the bus station; and

Consideration of options for a landmark retail opportunity in this area to reinforce the Retail Core and the Cannon Park to Retail Core route.

Access to car parks / servicing Public transport access


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4.19 The future expansion of this area needs to be considered in the context of: detailed discussions with land and property owners in the area; a detailed assessment of any options for the relocation or redevelopment of the bus station area; the emerging Middlesbrough Car Parking Strategy; and other policies.

4.20 In addition to the pattern of vehicle and pedestrian movement, proposals must respond to the area’s visual prominence / gateway location and offer opportunities for high quality gateway buildings.

Town Centre Core North to Middlehaven

Albert Road and Exchange Square

Figure 4-3 Albert Road and Exchange Square Current Pattern

4.21 The existing pedestrian link between the Town Centre Core and Middlehaven skirts Exchange Square and turns off Albert Road, north of the railway, onto Bridge Street East.

4.22 The relative levels of Exchange Square, the railway and Middlehaven offer the potential for a high quality pedestrian route across and animating Exchange Square, continuing under the railway into Middlehaven on the alignment of Wood Street.


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4.23 For this route to be attractive, it must be generous and animated along its length by frontage development. For the overall intervention to be affordable, it will also need to be accompanied by substantial enabling development.

4.24 The interplay between the route and the extensive established footfall from Middlesbrough College and its planned capacity of 20,000 students- as well as the potential footfall from the remainder of Middlehaven - suggests a strong market for animated frontages extending from Exchange Square which is highly animated throughout, not only on its western edge.

4.25 There are development opportunities on sites in the Wood Street / School Croft area.

4.26 Localised re-appraisal of the Middlehaven Masterplan would be required to offer the desired route for this intervention, as well as allowing the promotion of more intense enabling, supporting and animating development in this part of the Masterplan’s “Stitch” area. This would relate to the manner in which the proposed route would seamlessly join with the important organising pattern of sugar cubes.

4.27 The architectural and heritage value of Exchange House and 6 Exchange Square will need to be taken into consideration for this intervention to work. Although both are Listed Grade 2, they are of poor quality in relation to the rest of the Exchange Square buildings and seriously affected visually by their relationship to the intrusion of the A66 viaduct. Replacement by new development which provides a positive eastern edge to the square and animates this edge as it passes under the A66 may be of greater value than retention of the existing buildings and serve to positively enhance the conservation area and the setting of the higher quality listed buildings which shape the remainder of the Square.

Figure 4-4 Links to Middlehaven – Proposed Intervention


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Figure 4-5 Links to Middlehaven – Visualisation


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Linthorpe Road to Boho One

Figure 4-6 Existing Pattern

4.28 This route is extremely challenging, both with regards to levels and potential for animation.

4.29 The public space at the top of Linthorpe Road adjacent to the station and Zetland Road is generous. The vacant Crown House presents an opportunity for animating development - which can also animate and improve routes to the Zetland car park. This space can be viewed as a significant Gateway for those arriving by rail and entering the Retail Core and therefore the quality of development and public realm must reflect this status.


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4.30 There are opportunities to increase the width and modestly increase the height of the route under the railway. However, the relative level of Bridge Street West makes continuation of a generous pedestrian link particularly challenging.

4.31 Extension of the route under Bridge Street West to rise on the line of Sussex Street (between the police station and Boho / DigitalCity) can be achieved. The considerations are:

The lack of any immediately related development opportunities to directly assist funding; and

There are limited opportunities for frontage animation of the route.

4.32 The potential for additional higher education facilities in the area north of Boho may offer some assistance in both respects, while also generating increased footfall on this route. Should this be pursued, consideration must be given to providing the Boho developments with active frontage and to maximise association between the Police HQ and this route.

Figure 4-7 Linthorpe Road to Boho One– Proposed Intervention


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4.33 Physical intervention promotes improvements to pedestrian movements between the Retail Core and Boho / DigitalCity. This includes the upgrading of the subway under-pass and improved integration (and therefore perception) of the route to Zetland Car Park.

Town Centre Core South to Linthorpe Central

Figure 4-8 Linthorpe Rd/Borough Rd - Existing Movement Patterns and Issues

4.34 The delivery of the Linthorpe Central Improvement Strategy will build on the successful regeneration of the areas to date, and further improve the attractiveness of this dynamic, independent area.


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4.35 The physical intervention proposed promotes improved linkages between the Retail Core and Linthorpe Central by upgrading the Borough Road junction and improving the public realm at its approaches.

Figure 4-9 Linthorpe Rd/Borough Rd - Proposed Intervention

4.36 The effectiveness of links between the Retail Core and Linthorpe Central would be enhanced by the identification of key opportunity sites around Bedford Road, Baker Street and Borough Road.


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Town Centre Core East to Middlesbrough Leisure Park

Figure 4-10 Town Centre (east) - Existing Movement Patterns and Issues

4.37 A similar interplay of transportation and development and connection issues applies to traffic movements which need to be addressed at the eastern end as well as the western end of the Corporation Road axis.

4.38 At the eastern end of the centre, physical intervention promotes consolidation with further mixed use and leisure development. Enhanced routes, public realm and animated frontage will improve the connection to Corporation Road and Centre Square. The routes, spaces, development and animation provide a platform for potential work to improve pedestrian links further east under the A66.


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Figure 4-11 Town Centre (east) – Proposed Intervention


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5 PRIORITISED ACTION PLAN 5.1 The Key Recommendations and Physical Interventions respond to the specific

challenges facing Middlesbrough and will create a new dynamic within the city centre – one of increased intensity of activity, movement and quality. In adopting a range of Policies, Middlesbrough Council must continue to demonstrate its commitment to driving implementation. A diverse range of public and private bodies own a stake in the future of Middlesbrough city centre, but the Council has the authority to shape, guide, influence and drive the process.

5.2 The main mechanism for the regeneration and management of the city centre is Partnership Working; engaging with service providers, business and residential communities, landowners / developers and all other users. A coordinated and comprehensive approach to the improvement of the centre will only be achieved by a strong partnership approach - led by Middlesbrough Council, supported by ONE and working together with private sector interests. This is a key factor in attracting investment. Private landowners own a range of critical strategic sites within the city centre. This relates particularly to Jomast, Mandale and Terrace Hill. It is essential that Middlesbrough Council effects strong leadership when engaging with and seeking to influence private developers.

5.3 The structure of the partnership, the way it operates, key responsibilities and the manner in which resources are used in support of city centre regeneration are key decisions which must be addressed within the initial twelve months of the Strategy.

5.4 It is also noted that Tees Valley Regeneration (TVR) is due to be wound up in March 2010. This will impact upon overall responsibility for the management and implementation of Middlehaven, and Middlesbrough Council’s role – relative to the Town Centre Strategy – will have to be reconsidered at this point in time.

Town Centre Partnership

5.5 The Town Centre Partnership is the existing stakeholder body in Middlesbrough. The Partnership was established in the wake of the Town Centre Company as a strategic advisory panel to the Centre. It represents a broad range of relevant stakeholders, but the lack of any responsibility for delivery curtails its effectiveness. The four Shopping Centres also have a formal group that meets regularly to discuss issues pertinent to the Centre and retail. It is important that Middlesbrough Council forge solid working relationships with this group.

5.6 Middlesbrough Council is currently undertaking the appointment of a team to deliver the future management of the city centre. It is important that their role be tied closely to the implementation of the Town Centre Strategy.

Business Improvement District

5.7 Middlesbrough Council (via the current Town Centre Manager) in partnership with the Mall is considering the promotion of a Business Improvement District. It is important that this process be integrated with the Town Centre Strategy and fully considers any potential revenues – both for city centre Management and project implementation.

Delivery Vehicle

5.8 Initial consideration of implementation must include Middlesbrough Council’s approach to its own assets and its ability to exert influence over key development sites within the centre.

5.9 Middlesbrough Council is considering the creation of a Special Purpose Vehicle into which its physical assets may be transferred. It is important that this vehicle takes a form which best attracts private investment, allows the Council to shape development and maximise regeneration / economic development outcomes. A key issue in Middlesbrough centre is the private ownership (and often a lack of activity) of key


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strategic sites, including Church House, Crown House, properties around Gurney Triangle, Exchange Square, Albert Road and the ex Odeon and Cleveland Scientific Institute sites on Corporation Road. It is important that the Council be prepared to engage directly with private developers to encourage delivery and, as necessary, indicate willingness to utilise statutory powers and encourage planning gain.

5.10 The identification of best value Special Purpose Vehicle and a site assembly strategy are both key early actions in the implementation of the Town Centre Strategy.

Public Sector Funding Support

5.11 ONE NorthEast currently invests heavily in the Newcastle / Gateshead conurbation. However, Middlesbrough has significant socio-economic need. To attract funding via the Single Programme, intervention should demonstrate additionality in normal market conditions.

Criteria for ONE NorthEast Funding

5.12 The Regional Economic Strategy aims to spearhead the economic resurgence of the North East. ONE NorthEast’s (ONE)investments relate directly to RES priorities and particularly its four key activity areas/ themes:

Pipeline of sites and premises;

Strategic Transformational Regeneration;

Promoting and Enhancing our Natural and Cultural Assets; and

Connectivity: Transport and ICT.

5.13 In determining the appropriateness of support, ONE considers the extent to which a project addresses:

Economic context & effects – addressing market failure and providing for emerging industry needs;

Sustainability & integration with RES priorities;

Quality of Place benefits; and

Deliverability.

5.14 All investment proposals should demonstrate their relationship to these principles.

Location

5.15 There should be clear spatial analysis and prioritisation in all place interventions. In urban areas, a strategic approach to investment planning is employed using City Regional analysis to assist in defining key priorities. This ensures that economic development, housing and transport investment is co-ordinated and consistent with other public sector investment and Government funding streams.

5.16 The RES and the RSS aim to achieve high rates of economic growth. Supporting investment will therefore be targeted to those places with the greatest potential to achieve this. The Tees Valley City Region is identified as a key area of investment.

5.17 All projects and initiatives at a sub-regional level must consider whether proposed investment is in the most economically appropriate location to ensure that economic benefits are maximised at a city and regional level.

Economic Impact

5.18 It is ONE’s intention that its investment in economic infrastructure will have a direct relationship to increased GVA growth and economic activity. Project development should therefore outline anticipated economic benefits, whether realised through GVA improvements or increased employment or economic activity.


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5.19 ONE seeks additionality in all its investments against increased GVA which has two key drivers:

Improved productivity linked to process and operational improvements; and

Enhanced output due to increased economic activity reflected in additional employment.

5.20 Additional employment is a core economic and political measure of progress towards RES objectives. Key factors include:

Direct increases in employment at regional/sub regional level;

Net employment increases at regional and sub-regional levels (after accounting for deadweight, leakage and displacement, and including anticipated multiplier impacts);

Employment increases in key sectors (gross and net);

Increased economic activity in disadvantaged areas;

Indirect effects:

Industrial/commercial - Supply/demand linkages with key and other sectors; and

Linkage/ integration with established assets (locations, attractions, facilities, accommodation).

The relationship between net additional employment and project costs (cost per job).

5.21 Addressing low market demand and maximising private sector leverage are also key priorities.

5.22 It is important to demonstrate that provision does not lead to oversupply. Contributions to general needs floorspace will not be supported unless additional market demand (market failure) can be demonstrated. Sustainable property markets are achieved where prospective rentals and yields support sufficient margins to provide an acceptable development profit. This is dependent on the level and quality of current provision relative to demand.

5.23 Key criteria include:

Prospective yields and rents relative to benchmark North East market norms;

Demand Assessments by accommodation/site type:

Scale & nature of end user market demand; and

Prospective visitor numbers by origin .

Supply Assessments by accommodation/site type:

Scale and nature of end user market requirement – current & projected.

5.24 The level of private sector involvement and investment is a fundamental consideration in all place projects.

Quality of Place

5.25 All Single Programme investments will seek to enhance the region’s Quality of Place, This is a holistic and overarching factor and all projects will be expected to contribute to it. This means that any economic project should bring positive place-based advantages to Middlesbrough.

5.26 High quality urban design – as a key component of quality of place – can transform areas that are not commercially attractive into more desirable and profitable locations, while acting as a catalyst for other development opportunities. The Commission for


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Architecture and the Built Environment (CABE) has highlighted some of the tangible and less tangible economic benefits directly associated with good urban design:

Tangible Less tangible

Potential for higher land values Enabling difficult sites to be tackled Higher sale & re-sale values Quicker permissions (reduced cost & uncertainty)Increased funding potential Distinctiveness (greater product differentiation) Higher rental returns Greater investment security (subject to market

performance) Increased asset value for borrowing

Competitive investment edge

Reduced running costs Increased business confidence Maintenance of value/income Workforce benefits (enhanced recruitment &retention)Reduced lifetime maintenance costs

Improved productivity

Reduced public expenditure (on health care, urban management & maintenance etc)

Increased occupier prestige

Increased economic viability for neighbouring uses/opportunities

Higher quality longer term tenants

Increased local tax revenue Increased marketing potential Reduced travel costs Enhanced developer reputation Enhanced design reputation (enabling agency) Future collaborations more likely

5.27 All place-making investment criteria will not necessarily be applicable to all projects. However, they form a checklist from which to identify strengths and weaknesses of projects. Place-making criterion fall into several categories:

5.28 Uses and Activities - the greater the variety and diversity of uses, the more sustainable economic and social activity occurring in a given area is likely to be.

Place-making for people to provide and integrate variety of functions and land uses;

Flexibility and adaptability of form and layout to enable change; and

Range of economic provision for different types and sizes.

5.29 Sense of place: image, identity & physical quality - places with a positive and distinctive identity have a greater chance of attracting residents, investors, tourists and cultural contributors to economic activity than those that are unattractive or bland, and lacking any positive sense of place.

5.30 Variety of built form and development character, covering the following aspects:

General Public realm composition Human scale & richness of form

A hierarchy of public spaces, where function and symbolic importance is clear

Attention to skylines & roofscapes

Lively and pleasant public spaces & routes

Distinctive landscapes A sense of safety and security Natural features Uncluttered, easily maintained streets/ public

places Locally distinctive built form Reuse of historic buildings and spaces Street patterns which respondto their context

Well-designed lighting and street furniture

Special spaces of natural/ cultural significance

Places suited to the needs of everyone, including the disabled and elderly

Appropriate building materials Locally appropriate attractive and robust planting


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General Public realm composition Addressing local culture & traditions

Variety in public places to support a range of leisure and social activities

5.31 Access, Linkage and Movement - spatial connectivity, legibility and safety need to be

considered and incorporated at a strategic level – then followed through into detail. This is deemed crucial to integrate projects into their surroundings in both the short and longer terms. Social connectivity must be taken into account demonstrating how inclusive design has been incorporated:

Legibility;

Comprehensibility; and

Safety.

5.32 Community involvement - there may need to be appropriate provision for a broad cross section of community and cultural values within the place-making dimension of a project.

Deliverability

5.33 The approach to project development and delivery is a major consideration and investment and involvement from the private sector is generally a prerequisite for funding. In pursuing a sustainable commercial development sector, One NorthEast and other sources of funding have generally sought to involve the private sector and attract investment at the earliest possible stage of project development. Successful projects should also attract significant support (and therefore leverage of resources & appropriate policy commitments) from the public sector. Ultimately, the aim in the majority of projects will be for the private sector to take full control and ownership. While this is clearly more challenging in the context of the present economic circumstances, project submissions should demonstrate how they achieve this.

5.34 Project interventions should demonstrate achievable target outputs and outcomes. Strong and sustained partnership commitment, sound organisational structures, project management and appropriately skilled project implementation staff, and a realistic assessment of project risks will generally all be taken into consideration.

5.35 The assets and mechanisms employed in project delivery are also critical factors: whether providing additional incentive for private sector investment (or creating special purpose or public/private partnership vehicles which can speed implementation while also sharing project risks and rewards).

Promotion

5.36 Place promotion should be embedded in all relevant projects to achieve maximum benefit. It is considered to be of particular importance for urban centres where there is competition with out-of-town locations for investment.

5.37 It is essential that the North East projects a strong positive image to potential investors, visitors and residents, as well as helping to enhance the perceptions and pride of existing residents. It has been One North East’s policy to focus on projects which can demonstrate an enhancement to the region’s ability to:

Showcase the overall quality of place offer and in particular, natural and cultural assets to visitors;

Promote the reputation and skills of the North East workforce; and

Prioritise innovative and creative employment sectors.

5.38 Projects may therefore be expected to incorporate appropriate promotional approaches which:

Comply with the North East regional branding strategy;


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Reflect the needs of the RES;

Communicate an appropriate business case; and

Identify appropriate marketing resources and capabilities.

Types of Intervention - Transformational Quality of Place Projects

Characteristics

5.39 Interventions in this category will enhance public space in high impact locations with the aim of effecting improvement in external and internal perceptions of the immediate area and the sub-region or region. This includes public realm investments in core urban centres and gateway improvement projects.

Key Considerations

5.40 Developing the North East’s ability to attract, nurture and retain highly skilled and creative individuals who can assist the economy to grow successfully is a key RES objective. Individual locational decisions are heavily influenced by the quality of the natural and built environment. The appeal of a place is directly linked to environmental assets such as the natural landscape, waterways, heritage and parkland. Investment in high quality environmental infrastructure can significantly improve the external and internal reputation of the region as a place to visit, invest in or relocate to.

5.41 Key themes should be reflected in project proposals:

• Uses and Activities - in town / city centres, the greater the variety and diversity of uses proposed the more sustainable economic and social activity occurring is likely to be. Linkages to key commercial, leisure, service and civic focal points should be incorporated. Projects should seek to gather evidence of increased footfall and economic activity and a range of space provision for different economic opportunities;

• Image and physical quality - places with a positive and distinctive identity have a greater chance of attracting residents, investors, tourists and cultural contributors to economic activity. An assessment of increased patronage of a location (footfall, visitor numbers, number of businesses etc) will be required and demonstration that the proposed investment will enhance the region’s external image;

• The context for place enhancement is critical. Proposals for support should define their potential contribution to place improvement across the city; and

• In increasing usage, transformational projects will generate benefits to local business through increased. Proposals must outline how information on the business impacts of such place investment will be captured, along with an assessment of potential private sector leverage.

Types of Intervention - Mixed Use Development

Characteristics

5.42 This type of intervention is particularly focussed on the region’s larger towns and cities Mixed use development - incorporating a balance of accommodation for employment uses, residential, leisure and potentially civic and community functions – can have a significant role in the economic transformation of the City Region.

5.43 Mixed use development has a key role in increasing the range and quality of residential environments and is therefore an important factor in retaining existing residents and attracting new people to the region.

Key Considerations

5.44 Those interventions which demonstrate high economic impact at both local and sub-regional levels are more likely to be supported . Any investment will only be made on


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the basis of well-established links with a wider action-orientated area or indeed the Town Centre Strategy. Projects should seek to demonstrate how intervention contributes to Middlesbrough city centre’s overall attraction and performance.

5.45 Locations and developments with effective linkages between different uses have the potential to create more vibrant places with increased opportunities for economic interaction. Achieving variety is a key factor.

5.46 The scale of overall development and its individual use components must reflect robust market assessment of city centre uses. Given the heightened sensitivity, visibility and complexity of development in central locations, the development of practical project delivery and implementation vehicles and the long term sustainability of development proposals must be given particular consideration.

Types of Intervention - Cultural Infrastructure

5.47 ONE NorthEast supports investment in culture and associated infrastructure to achieve impact in 6 areas: Quality of Place, Productivity, Education, Economic Inclusion, Tourism and Regional Image.

Characteristics

5.48 Cultural infrastructure is a key factor in quality of place. The importance of cultural innovation in changing internal and external perceptions of Middlesbrough cannot be overstated.

5.49 While ‘iconic’ strategic infrastructure, including performance and exhibition facilities of national and regional standing, tends to be the focus of media images and visitor attention, the sustainability of the cultural sector needs to be supported by appropriate education, business and training infrastructure to further develop indigenous capacity and embed and increase the economic contribution of cultural activity in the City Region.

5.50 Cultural infrastructure includes arts, sports and heritage facilities and extends to appropriate provision for the design, digital and broadcast media, and popular music sectors. ONE is keenly aware of the potential contribution that the ongoing development of the region’s cultural offer can make to the regional economy. Appropriate high quality facilities are required to sustain and develop a critical mass of activity in the region, focused on the urban centres.

Key Considerations

5.51 Any facilities, projects or programmes must aim to strengthen existing or planned links with educational and cultural institutions and organisations or clusters of acknowledged expertise. ONE does recognise that the direct employment benefits of investment in cultural infrastructure may be lower than those witnessed in business interventions. However, a number of other impact areas can be captured and their value validated including:

• Demonstrating regional/ national excellence and innovation;

• Increasing visits to and expenditure in the North East through related activity emanating from outside of the region;

• Increasing participation and involvement in cultural activity, as a route to economic engagement;

• Providing opportunities to promote and nurture regional talent, particularly in design and commissioned artworks;

• Improved perception of region, through strategic interventions and commissioning of landmarks;


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• Greater potential for inward investment due to improved regional image and quality of place;

• Economic reuse of derelict buildings or removal of listed buildings from the ‘at risk’ register; and

• Increased educational attainment as a direct result of new cultural facility and new learning opportunities.

Types of Intervention - Connectivity

Characteristics

5.52 From an economic perspective, the North East’s transport infrastructure needs to be of sufficient capacity and quality to accommodate the needs of the key growth sectors, economic inclusion and the economy in general where it supports productivity and participation. It needs to ensure swift access to markets and suitable capacity and facilities at the main points of entry to the region and must provide high quality communications within and between the two City Regions.

Key Considerations

5.53 Connectivity investment will be targeted where it will support increased economic activity and improved regional competitiveness through greater productivity. ONE limits financial support to strategic connectivity projects where implementation will make a real difference to the region’s economic prospects, and where it can be shown that the private sector will not provide.

5.2 In order to achieve this, supported projects will need to be closely aligned with both regional economic objectives and the priorities set out in the Regional Transport Strategy and the Regional ICT Strategy.

5.3 These can be summarised as:

Increasing the attractiveness of the region to inward investors;

Maximising private sector investment;

Improving strategic connections both across the North East and inter-regional;

Improving physical and virtual connections between regeneration priority areas and employment centres such as city centres;

Recognising the region’s airports and ports as drivers of economic growth; and

Improved connectivity between the two City Regions including those areas remote from the main corridors.

Prioritised Action Plan

5.54 The overall objective of the Strategy is one of enabling transition to ensure Middlesbrough becomes a Place worthy of the title, “city” – distinct, vital and vibrant. The Policies and related interventions are designed to facilitate a staged transformation and therefore promote intervention in the short, medium and longer term.

5.55 One unavoidable aspect of prioritization and delivery is the recession. The most obvious impact this has is the slowing down, or complete cessation, of development delivery in the short to medium term. The Strategy’s Action Plan must react to this; major physical interventions are proposed to bring physical cohesion to the city centre. They will not be delivered in the early stages of the Strategy lifespan. The Action Plan therefore proposed a series of short to medium term actions that are:

Achievable by Middlesbrough Council within current conditions; and


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Set the scene and optimise conditions for Middlesbrough to react to the earliest signs of economic recovery.

5.56 Many of the short to medium term actions relate to establishing key partnerships and delivery mechanisms, working-up and appraising projects and physical interventions in greater detail and continuing to promote key sectors within the city centre – retaining momentum in terms of improving overall perception.

5.57 In developing projects and proposals for Middlesbrough, the criteria (described above) for ONE funding have been taken into full account. Those projects with the potential to attract ONE investment have been identified.

5.58 The bulk of those Actions outlined below fall within the responsibility of Middlesbrough Council. It is important that the Council continue to take the lead role in affecting the overall transition to city centre - promoting activity, encouraging partnership and clearly communicating the kind of Place Middlesbrough will become.

5.59 The Action Plan is shown below, with actions colour-coded to indicate priority as follows:

Short Term Years 1 – 2 (2009 – 2010)

Medium Term Years 3 – 7 (2011 – 2015)

Long Term Years 8 – 12 (2016 – 2020)


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Recommendation A – Expansion and Strengthening of Retail Core – Quality, Catchment and Dwell Time

Action Point

Description Delivery Timeframe

Priority Lead Partner(s) Funding Potential

Inter-dependent Actions

A1 Option appraisal of key sites at western end of Retail Core, including Bus Station, Harris / Yew Street triangle and Sainsbury’s

2009 Middlesbrough Council

A2, I6, I8

A2 Appraisal of alternative bus station sites, including appraisal of an integrated public transport hub


A1, G2

A3 Development of a detailed proposition to potential department store retailers


A1, C1, I6

A4 Completion of an Investment Plan for the Linthorpe Central Improvement Strategy to encourage improved environment and physical links between the University Quarter, the Retail Core and Linthorpe Central.


ONE I4

A5 Physical improvements to the Borough Road / Linthorpe Road junction to encourage movement, attractiveness and footfall between Linthorpe Central and Retail Core

2011 – 2013

Middlesbrough Council

ONE A8

A6 Identification of locations for new multi-storey car parking at the Southern end of the Centre


H2, H3

A7 Support for independent retail and business start-up in Linthorpe Central

2009- 2015 Middlesbrough Council / ONE

ONE A8

A8 Development of working relationship with Psyche / retailers to encourage peer support and joint marketing

2009 / 2012

Middlesbrough Council / Psyche

ONE


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Recommendation B – Strategic Property and Sites

Action Point




B1 Development of a strategic site assembly strategy for Middlesbrough Council relative to the physical interventions proposed by Policy H.

2009 – 2010


B1, B4

B2 Identification of a best value model SPV for Council assets and project delivery within the city centre

2009 – 2010


Private investment

B3 Assessment of housing demand in city centre locations, particularly relevant to private ownership and apartment development.

2010 - 2011


B4 Completion of a detailed profile and portfolio of vacant and derelict properties within the city centre


B5 Engagement with key private owners of identified Vacant and Derelict Properties with a view to securing a long-term strategy for positive re-use.

2009 – 2010

Middlesbrough Council / Jomast / Mandale

Private investment

B6 Ensure Council assets in the city centre are ring-fenced in line with the physical interventions proposed by Policy H to achieve best value.

2011 – 2020


B2


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Recommendation C – Use of Planning Powers

Action Point




C1 Ensure a sequential approach to ensure retail, leisure and commercial uses are promoted within the city centre boundary.

2009 – 2020


C2 Engage with neighbouring authorities and seek to promote the sequential test throughout the Tees Valley.

2009 – 2020

Middlesbrough Council / Stockton Council

C3 Adoption and promotion of the Town centre Strategy as being representative of the Council’s approach to development, in line with the Physical Interventions proposed by Recommendation H.


C4 Following its adoption, reference to the Town Centre Strategy by Middlesbrough Council Development Control in assessing development proposals..



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Recommendation D – Development of the Office Sector

Action Point




D1 Support and promotion of proposals for Centre Square East as the primary new-build office location in the city centre.

2010 - 2015


D2 Support of proposals for further office development within the Middlehaven Strategic Framework Plan

2010 – 2020

Middlesbrough Council / TVR

ONE, Private Investment

D3 Production of a development brief for the area to the north of Boho and re-assessing the open space allocation of the Middlehaven Masterplan and appraising potential benefit as a location for further commercial development.

2009 – 2011

Middlesbrough Council / TVR

ONE

D4 Further development of proposals for a high-quality pedestrian route between Albert Road and Middlehaven office development.

2010 – 2015

Middlesbrough Council / Jomast / TVR

Private investment

B1

D5 Identification of key properties and sites for clustering of smaller office provision for SME, start-up and professional sectors, focused on Albert and Borough Road.

2009 - 2010


ONE B5


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Recommendation E – Further Expansion of the Educational Sector and Digital and Creative Media

Action Point




E1 Establishment of a Council-led team, incorporating all active educational institutions and ONE NE to encourage a strategic approach to the future development of the educational sector.

2009 – 2010

Middlesbrough Council / University / Middlesbrough College / Cleveland College of Art and Design

E2 Continued support for the implementation of the University Estates Strategy and Boho.

2009 – 2020


E1

E3 Identification of likely capacity and key sites for preferred consents for student accommodation.

2009 – 2010

Middlesbrough Council / all educational facilities / Mandale

Educational institutions / Private investment

B3, E1

E4 Support for the provision of business incubation and start-up accommodation in Digital and Creative media as part of the Boho project.

2009 – 2020

Middlesbrough Council / ONE / University

Educational institutions / Private investment / ONE

E1

E5 Provision of financial support and business advice for business incubation and spin-out in Digital and Creative media

2011 - 2020

Middlesbrough Council / ONE / University

Private investment / ONE

E1


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Recommendation F – Ongoing Development of Middlesbrough as a Cultural and Leisure Attractor – Quality, Catchment and Dwell Time

Action Point




F1 Implementation of proposals for Town Hall to create improved concert hall facilities (entrance foyer and bar) and covered space for cultural business and pursuits.

2010 – 2012 Middlesbrough Council ONE

F2 Delivery of public art programme across Middlesbrough, including Middlehaven

2009 – 2020 Middlesbrough Council / TVR

ONE

F3 Creation of incubator space for arts and cultural businesses within the cover Town Hall quadrangle

2011 – 2012 Middlesbrough Council ONE F1

F4 Development of evening economy strategy, incorporating key sites around Centre Square, Linthorpe Central / Borough Road and Albert Road, including targeting of quality restaurant operators.

2009 – 2010 Middlesbrough Council

F5 Establishment of an Evening Economy working group, with invitation extended to key stakeholders and operators

2009 – 2010 Middlesbrough Council F4

F6 Completion of Options Appraisal to identify the casino site with maximum regenerative benefit to Middlesbrough.


F7 Identification of preferred casino operator. 2010 Middlesbrough Council F6

F8 Council support for key quality hotel developments within the city centre, including Centre Square East, and Middlehaven .



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Recommendation G – Improved Movement and Access across the city centre

Action Point




G1 Identification of all key city centre gateway points for car and public transport, and identification of a Gateway Strategy linked to variable signage and physical improvements.


H1, H2, I2, I7, I8

G2 Completion of an Options Appraisal of alternative bus station sites and/or alternative integrated public transport arrangements, taking into account physical intervention options to the western end of the city centre and the role of the railway station.

2010 – 2012


A1, A2

Recommendation H – Car Parking

Action Point




H1 Resolution and adoption of the Middlesbrough –wide car parking strategy


H2 Implementation of a variable message car park signage system that will direct movement towards key retail, cultural and employment uses.

2009 –2010

Middlesbrough Council G1

H3 Commissioning of a study to identify key locations for the provision of new multi-storey car parking facilities within the city centre, taking into account demand, pedestrian safety, increase of footfall between the retail cores and key areas.

2009 Middlesbrough Council H2

H4 Appraisal of key locations for secure evening parking (either within existing stock or new provision) to encourage the perception of safe routes and increased evening footfall.

2009 -2010

Middlesbrough Council H2, H3


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Recommendation I – Physical Interventions

Action Point




I1 Establish a key physical and pedestrian link to Middlehaven via Exchange Square, creating new development opportunities by the removal of properties to the eastern-end of the Square and a high quality pedestrian link to serve office, residential and student populations

2011 – 2020

Middlesbrough Council / Jomast

Private investment

B1, B4, B5

I2 Creation of an improved pedestrian link from the northern end of Linthorpe Road, including upgrading of spaces under the A66 and railway, redevelopment of the public space around Crown House to animate the route and setting of Zetland car park.

2011 – 2020

Middlesbrough Council / Boho / University

Private investment

I3 Re-appraisal of the Middlehaven Masterplan to designate St.Hilda’s as a key zone for City Centre commercial development, building on Boho and the area’s educational potential.

2012 – 2014


ONE / Private Investment

D3

I4 Identification of key development and public realm enhancement opportunities to strengthen and animate the physical connection between Middlesbrough Leisure Park and Corporation Road / Centre Square.

2010 – 2015

Middlesbrough Council / Mandale

Private investment / ONE

B1, B4

I5 Identification of a preferred option for the extension of the retail core to the western end of the city centre, including consideration of the bus station site, Sainsbury’s site, the Harris Street / Yew Street triangle, creating a new department store development opportunity and overall

2009 – 2010


A1, A2, I8


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Action Point




movement to and from Cannon Park.

I6 Implementation of physical development proposals to the western end of the city centre / retail core.

2015 onwards


Private investment

A1, A3, I6

I7 Completion of a review of traffic circulation in the western end of the city centre to consider movement between Cannon Park and the existing Core, and potential implications of development options on circulation and bus movements.

2009 – 2010


A1, A2, I6

I8 Completion of proposals to encourage increased 24-hour footfalls between the Retail Core, the existing bus station and Centre Square, including access through the Mall and further upgrading of public realm.

2010 – 2012

Middlesbrough Council / the Mall

ONE J1

I9 Promotion of day and evening economy uses along key routes to retain animation and natural surveillance twenty-four hours of the day – including Retail Core to Centre Square, Boho to Linthorpe Central and Middlehaven to the Centre,

2010 – 2020


ONE / Private Investment

F1, F4, I9


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Recommendation J – Improved city centre Safety

Action Point




J1 Completion of a Safety Through Design code for the city centre, and adoption by the Council as key guidance in the delivery of physical interventions.

2010 – 2020


J2 Encouragement of a mix of uses in delivery of the physical interventions which naturally engender active use and follow the principles and attributes of safer places as established in the Home Office / ODPM safer place publication.

2010 - 2020


J3 Through the existing multi-agency Problem Solving Group 5 on town centre crime and anti-social behavior issues, engage private sector stakeholders to agree principles and practice regarding safety improvements.


J1, J2, F5


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Core Policy K – Promotion and Marketing of the city centre

Action Point




K1 Adopt Town Centre Strategy principles as the basis for developing a marketing approach that addresses City Centre aspirations, and indicates commitment to distinctiveness, physical development, retail, education, office development and refurbishment, improved movement and access, leisure and culture.

2009 – 2020


K2 Preparation of a Marketing and Events strategy for the city centre for the Town Centre Strategy period.

2009 – 2010


ONE K1


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Monitoring and Evaluation of City Centre Performance

5.60 The Middlesbrough Town Centre Management team will be responsible for the Annual and Monthly monitoring and evaluation of the Town Centre Performance and implementation of the Town Centre Strategy, including evaluation of the step-change from town to city.

5.61 The Town Centre Manager will therefore be required to submit monthly and annual monitoring reports (appropriate to type of performance measure) to Middlesbrough Council and the Town Centre Partnership.

5.62 The Performance Measures to be applied are as follows:

Table 5-1 Annual City Centre Performance Measures

Aspect of Performance Annual Measure Sources Retailing Vacancies, national

comparison Goad Category Report

Vacancies, vs. local competitors

Goad Comparison Report

Mix, national comparison Goad Category Report Mix, vs. local competitors Goad Comparison

Report Floorspace, national

comparison Goad Category Report

Floorspace, vs. local competitors

Goad Comparison Report

UK Retail Ranking Goad Town Centre Shopper Reports

Office accommodation Vacancies, town centre Annual Baseline survey: Electronic spreadsheets

Floorspace, town centre Annual Baseline survey: Electronic spreadsheets

Rents, vs. competitors Annual Baseline survey Yields, vs. competitors Annual Baseline surveyCultural Facilities Number of venues, events,

attendances Cultural Services

Students Numbers University, and Further Education colleges

Evening economy facilities Floorspace, mix Leisure in Annual Baseline Survey plus TCM Office assessment.

Café Culture Floorspace, daytime Annual Baseline survey, plus TCM Office assessment

Residential Accommodation Housing units Annual Baseline survey; plus planning permission completions

Middlesbrough Resident Opinion Positive/negative opinion; and priority change

Corporate Services

Catchment Resident Opinion Positive/negative opinion; and priority change

Through Corporate Services

Business opinion, city centre Positive/negative opinion; and priority change

TCM to commission

City centre activity Footfall Shopping Centre Managers

Aspects of city centre performance Monthly Measure Sources Retail, Office, Evening Economy, Vacancies, and Vacant Annual Baseline survey,


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Aspect of Performance Annual Measure Sources Café Culture floorspace plus monthly TCM Office

updates city centre activity Footfall Shopping Centre

Managers: Outline agreement with Captain Cook Square, Dundas and The Mall; Hillstreet

to be approached;

APPENDIX A – Supporting Information: Middlesbrough’s challenges


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EXECUTIVE SUMMARY

Introduction

This Strategy recognises the critical role Middlesbrough town centre plays as the key economic driver within the emerging Tees Valley City Region, and promotes the aspiration to develop economic, social, educational and cultural activity appropriate for a city centre.

The Strategy outlines the recent improvements that have been made in the Town Centre as a platform for its future development. Moving forward:

The Centre’s retail performance must respond to challenges, and consolidate and seek to strengthen the offer. It is important to create an environment which is attractive for prolonged visits. Increased dwell time and expenditure will be achieved by high quality retail, leisure and cultural provision;

A renewed role for the town centre as an office centre would generate benefits in terms of additional retail turnover and users of cultural and leisure services; and

Middlesbrough must continue to focus on the expansion of the educational sector within the Town Centre.

The economic downturn provides a backdrop to the Strategy. In response, a range of short to medium term Actions are proposed to create the relationships and proposals that will best place Middlesbrough to react and attract investment as the economy improves. In the meantime, it is likely that the delivery of physical development will slow.

The Case for Change

The Case for Change is the outcome of the economic, social and physical analysis of the Town Centre’s current performance. It is presented in the following sections in Chapter 2:

Progress – recent investment and achievements in physical development and the promotion of key sectors and policy;

Economic – those drivers of growth and key proposals that can be capitalized upon within Middlesbrough Town Centre, including retail, education, leisure and culture, retail and new business sectors; and

Physical – the need to address the gaps in physical connection and overall circulation, movement and access (pedestrian and transport) within the Town Centre.

The Vision and Strategic Objectives

The overall Strategic Vision is for Middlesbrough Town Centre to fulfill its potential as a retail, commercial and creative centre at the heart of the Tees Valley City Region by 2020 This supports the objectives of the Stockton-Middlesbrough Initiative which seeks to rejuvenate the Stockton-Middlesbrough urban core, building on the two town centres, the major regeneration sites of North Shore and Middlehaven, and the Green-Blue Heart which lies between.

This aspiration is to be achieved by a series of Policy and Physical Interventions that respond to objectives in the following categories:

Economic;

Connections;

Residential;

The Retail and Workplace Economy

Overview of Town Centre Economic Sectors

Data relating to Middlesbrough Town Centre highlights the key business sector drivers:

The retail sector remains healthy and competitive, although employment has contracted slightly;

There has been a relatively steady increase in employment in banking, finance and insurance, although the sustainability of this is doubtful in current economic conditions;

Employment in education almost doubled between 2004 and 2005, matched by substantial increase in student numbers, this trend continues;

The Town Centre has a key role as the main service centre for the Tees Valley, a function demonstrated by the high proportion of employment in public administration; and

Targeted growth in knowledge base industries – led through the DigitalCity concept and University/ College spin – outs and historic centre for chemical and refining industries – has long-term potential benefits to the local economy.

Health of the Retail Sector

The health of Middleborough Town Centre has been assessed in three key reports: the Middlesbrough Town Centre Retail Report (2006), The Potential Expansion of Middlesbrough Town Centre (2007) and the Stockton Middlesbrough Joint Retail Study (2008). The studies indicate that the Town Centre has:

A strong level of retail trading- only Newcastle performs better in the North East;

A comparatively poor convenience shopping offer;

A deficiency in bulky goods retailing;

The 2007 report identified a need to accommodate 37,000 sq m of comparison goods floorspace. The 2008 Stockton-Middlesbrough report identified a need for 47,000 sq m of additional; comparison goods floorspace in the sub-region;

A failure to attract affluent shoppers from the wider Teesside area and spend from A and B socio-economic groups; and

A limited leisure / food and drink offer which affects the performance of the leisure and evening economy in the Town Centre.

The retail studies highlight the need for the Town Centre to further raise its game. Middlesbrough fell in the national retail ranking 20 places between 2003 and 2008. Retail ranking is carried out by Management Horizons Europe and provides an indication of the retail strength of a location based on its representation of non-food multiple retailers.

The most recent ranking from 2008 shows that Middlesbrough has continued to fall in ranking, dropping 20 places since 2004.

Table A.0-1 Change in retail ranking

Rank 2003 Rank 2008 Change in ranking

Leeds 4 8 -4Newcastle 13 16 -3York 21 23 -2Middlesbrough 54 74 -20Stockton on Tees 201 218 -17Redcar 224 221 +3

Source: Management Horizons Europe

However, the Stockton and Middlesbrough Joint Retail Study (2008) highlights Middlesbrough Town Centre’s strong performance, particularly its relative strength in comparison goods retailing.

A need for a new food-store within or on the edge of Middlesbrough and additional facilities for bulky goods retail, particularly within the urban core, is identified.

The Town Centre faces increasing competition from out of town retail parks offering the benefits of accessibility, car parking and a modern shopping environment. The growth of Teesside Retail Park will continue to challenge Middlesbrough’s traditional town centre retail role. The continued development of the internet as a shopping medium and the economic downturn present further challenges. Studies have suggested that internet shopping now accounts for 10% of expenditure on non-food items.

Expenditure Growth

The most recent Retail Capacity Assessment prior to the recession concluded that expenditure on convenience goods is forecast to increase by £97.23million or 13% between 2005 and 2016. At the same time comparison expenditure within the primary catchment is forecast to experience an even stronger growth of £671million or 48%. Overall, it identified capacity for 2,761m2 net convenience goods by 2016 - based on population increases in the primary catchment area in line with RSS assumptions.

Potential of the Retail Catchment

Middlesbrough potentially has the most extensive retail and leisure catchment in the North East after Newcastle. This is a factor that Middlesbrough must capitalise on when considering future growth. However, the leisure catchment is smaller than the retail catchment.6 The Middlesbrough Town Centre Retail Study adopted a catchment area containing a resident population of 580,569 people.

There are opportunities to extend the existing catchment.

Table A.0-2 indicates that 900,000 people can reach Middlesbrough in less than half an hour and 2,800,000 within 1 hour, a substantial population to attract as potential residents, visitors or employees in local businesses.

6 Tees Valley Joint Strategy Unit, 2006 Tees Valley City Region, Business case and development programme, an economic profile and analysis

Table A.0-2: Estimated Population, 30 minutes - 1 hour Drive Time

Total Population Working Age Population

Within 30 mins 899,000 550,000

Within 1 hour 2,753,000 1,704,000

Source: Tees Valley Joint Strategy Unit, Economic Profiles for Boroughs in the Tees Valley (October 2007)

A study carried out for NERIP in 2006 shows catchment areas and shopper flows in the North East. The proportion of shoppers from nearby settlements that shop in Middlesbrough includes:

Billingham – 49%;

Saltburn-by-the Sea – 52%;

Guisborough – 83%;

Stockton-on-Tees – 22%;

Hartlepool – 12%;

Thornaby New Town – 74%; and

Redcar – 51%.

The Potential Expansion of Middlesbrough Town Centre Study identified that Middlesbrough’s market share fell between 2001 and 2005 as a result of improved facilities in Stockton and Redcar.

Significantly, market share across all categories of retail from more affluent zones of catchment (for example around Yarm and the North Yorkshire Moors) fell significantly between 2001 and 2005.

The Independent Retail Sector

Middlesbrough has a burgeoning independent retail core around the Linthorpe Central area. The success of Psyche Department Store has led to the development of an independent retail core. A number of smaller independent clothes retailers have opened in the area adjacent to Psyche, encouraged by its success and the custom it attracts. The area brings particular benefits to Middlesbrough, particularly in terms of broadening the Town Centre catchment and encouraging Category A and B spend.

The independent and high-end retail core must be encouraged and linked physically to the existing Retail Core. It encourages the growth and start-up of indigenous business and the overall uplift of Linthorpe Central.

Linthorpe Central is physically aligned to the University on one side and the Gresham Housing Renewal area on the other and offers potential for improved public realm and further delivery of quality food and drink and the evening economy, as well as encouraged extended dwell time. Psyche is now promoting well publicised plans for expansion and the development of a modern hotel above the current store.

The Linthorpe Central Improvement Strategy was produced in October 2007. The Study developed a series of proposals for the area which are currently the subject of a consultation exercise being conducted by Middlesbrough Council. Following this process, the Council will commission an Implementation Strategy for the delivery of proposals for Linthorpe Central in early 2009. This work will be supported by the Town Centre Strategy,

Key retailers in Middlesbrough Town Centre also highlighted:

The lack of Category A and B socio-economic group spend in the Town Centre; and

A requirement for improved food and drink and leisure facilities to encourage increased dwell time in the Town Centre.

Business Activity

The Town Centre business and office sector is split between the traditional central office core of Corporation Road, the emerging office area at Middlehaven and the municipal administration focus at Centre Square / Corporation Road. There are also numerous older small office spaces scattered throughout the centre.

The office and business sector has, since the 1980s, been affected by substantial development at Teesdale (Stockton). However, there is a desire to encourage office and business activity into the centre around Centre Square East, Middlehaven and Boho.

Entrepreneurship

In 2001, there were 205 business start ups in Middlesbrough. This declined to 190 in 20067. This rate equates to 1.4 start ups per 1,000 inhabitants for 2006, placing Middlesbrough among the bottom ten localities in the UK. However, the latest available business survival rates from 2002 are at 64%; a significant improvement from the previous year.

Business density in Middlesbrough is low - 13.2 per 1,000 inhabitants and among the lowest ten in the UK. However, when compared to 2004, both business start ups and business density rates have improved8.

7 DTI Small Business Service - vat registrations/deregisrations by industry 8 Centre for International Competitiveness Cardiff’s metropolitan university, UK competitiveness index 2008

The Resident and Workforce Populations

Population and Out-migration

Middlesbrough’s population was estimated at 138,400 in 2006, representing an increase of 4,400 people since 2001 (Office for National Statistics midyear population estimates, 2006). This has been the result of a positive natural change in migration – there have been fewer deaths than births. However, figures for 2006-2007 show that net migration was negative. It is important that Middlesbrough seeks to reverse the current trend of out-migration by ensuring opportunity and quality of life.

Forecasts produced by National Statistics indicate that the Middlesbrough population is expected to decline. However, this is trend based analysis and does not correspond with the economic growth targets of the Northern Way, the RES or indeed the population growth ambitions reflected in the RSS housing allocations for the North East Region.

Employment Change

In the last ten years, unemployment has fallen in Middlesbrough. Between 2001 and 2006, unemployment fell from 5.8% to 4.7%. This represented an improvement of 1.1%, the highest level of improvement in any of the Tees Valley boroughs.9

Recent employment forecasts for Middlesbrough project an increase in employment of 4,200 people between 2007 and 2020. This represents an increase of 5.6%.10

Economic Activity rates in Middlesbrough increased from 69% to 72.6% between 2001 and 2006 indicating improved opportunity within the labour market.

The Travel to Work Area

Travel to Work data (2001) for Tees Valley boroughs and wards indicates that Middlesbrough has far higher inflows of workers than the other boroughs, with a net inflow of 8,111 people per day. However, in the main settlement within the City Region, this is to be expected. 11

At the same time only 51% of jobs located in Middlesbrough are occupied by Middlesbrough residents. When analysing the flow data, large flows were identified between Stockton, Middlesbrough and Redcar & Cleveland. This indicates that 18% of Middlesbrough’s workers travel from Redcar & Cleveland and 17% from Stockton.12

Clearly this leads to high levels of out-commuting. Only 59% of the town’s residents actually work in Middlesbrough – a fall from 66% in 2001. The destinations of out-commuters are:

Stockton (17%);

Redcar and Cleveland (11%);

Darlington (2%);

Hartlepool (2%); and

Outside Tees Valley (9%).

This situation presents Middlesbrough with a significant challenge at three levels:

There is a need to increase the availability of employment to residents, thus increasing the proportion working in the town in the long term. In addition,

9 Tees Valley Joint Strategy Unit, Economic Profiles for Boroughs in the Tees Valley (October 2007) 10 Tees Valley Joint Strategy Unit, Initial Outputs from Local Economy Forecasting Model, October 2007 11 Tees Valley Joint Strategy Unit, 2001 Census Travel to Work Statistics, http://www.teesvalley-jsu.gov.uk/old/reports/TVTTWresults.doc 12 Tees Valley Joint Strategy Unit, 2001 Census Travel to Work Statistics, http://www.teesvalley-jsu.gov.uk/old/reports/TVTTWresults.doc

there is a need to encourage those who choose to live in Middlesbrough, but work elsewhere, to use the Centre to shop and engage in leisure and cultural pursuits. This is dependent on the presence of a quality shopping, culture and leisure environment.

The level of employment inflow provides opportunities to encourage non-Middlesbrough residents to use the Centre for shopping, leisure and cultural activities both in the evenings and at weekends.

There remains a significant level of unemployment and non-workers in Middlesbrough. Access to employment, training and business start-up opportunity must be made available.

Key Performance Indicators

Between 2001 and 2006, Middlesbrough has experienced:

Improved levels of employment;

Increased rates of economic activity;

Population increase;

Improved business survival rates; and

An increase in residential development activity with a total of 2,090 net additional dwellings built13.

However, the economic challenges faced by Middlesbrough remain clear:

Net-migration is negative and population is forecast to decline. However, all regional economic strategies place focus on economic and population growth;

Business start up rates and business density rates are among the lowest in the UK, but have shown improvement in recent years;

Employment levels have improved, but long term unemployment has increased by 2.7% while other Tees Valley boroughs have experienced reduction;

Middlesbrough has fallen in national retail rankings, but retains a regionally strong centre for retail activity. Middlesbrough must continually respond to remain competitive in retail terms; and

The shopping offer for convenience goods is weak and action must be taken to reduce expenditure leakage.

13 Middlesbrough Council, Local Development Framework, Annual Monitoring Report 2006/07

The Middlesbrough Property Market

Middlesbrough is at the centre of the Tees Valley City Region, together with Stockton and West Redcar. It is the centre of a large travel to work area with a comparatively good road network and local public services. The property market recognises this, and therefore the market for the wider area can be summarised as follows:

Middlesbrough is the sub-regional centre for retail, indicated by the highest values and largest floorspace;

Middlesbrough is the sub-regional centre for offices, demonstrated by the highest values and rentals with the most diverse stock, comprising new, refurbished and older offices;

Middlesbrough is the sub-regional centre for leisure and entertainment – it has the largest number of restaurants, cafes, public houses and clubs;

Middlesbrough is the sub-regional centre of education, demonstrated by the largest University and College in the Teesside area within the town centre boundaries. This greatly assists the leisure and retail economy;

The conurbation has the sub-regional out-of-town centre for offices located in Stockton, primarily at Preston Farm/Bowesfield, Teesdale and Wynyard; and

The conurbation has the sub-regional out-of-town centre for retail – this is outside of Middlesbrough at Teesside Park and, for bulky goods, at Portrack and Cleveland Retail Park.

Retail

Middlesbrough has opportunities to consolidate and improve its retail offer. The Mall and Hillstreet (extensions and improvements),the Dundas arcade, the Sainsbury’s site and related car park, the bus station site and Cannon Park all provide opportunities for future growth. The Town Centre’s linkage to retail and leisure development at Middlehaven will be extremely important.

Offices

There are significant opportunities to refurbish accommodation on Albert Road, Exchange Square and Queens Square, together with unique development sites at Gurney Triangle and Church House.

The development of new offices at Middlehaven and Centre Square East will extend and consolidate the position of Middlesbrough as the alternative to out of town business parks. The continuation of this office development into Greater Middlehaven would provide benefit in terms of linking commercial development to the retail and leisure core.

Education

A continuing build programme at Teesside University, together with other potential developments at Middlehaven, provide the opportunity to capture the market and provide stability in the leisure and retail markets.

The consolidated Middlesbrough College has been delivered and opened as the first phase of Middlehaven.

Leisure

The proposed Casino provides a unique opportunity for regeneration. Although there are a number of potential locations, proposals will be assessed against the scale of regeneration benefits they offer to Middlesbrough.

There are a number of opportunities for new hotels in the Town Centre. This includes Dunning Street (the ex-police station) and Central Gardens East, building on the existing regeneration work at Centre Square.

Conclusions

The key consideration for the current and short to medium term property market relates to economic circumstances. As a result of the recession, availability of finance and the economic downturn, the property market has effectively stopped. This is demonstrated by the fact that very few transactions are taking place.

The immediate consequences are:

A fall in capital values;

A stagnation and decline in rental values;

Very few transactions; and

A postponement of proposed development and no speculative development.

In the case of developments where end uses are committed, discussions are ongoing. This invariably will involve negotiations that affect all parties. Current economic circumstances will produce opportunities and threats. Middlesbrough is well placed to take advantage of the opportunities that will present themselves once the recession has abated and confidence in the economy – and therefore the property market – returns

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