A Review of
In Northern Ireland
Analytical Services Unit
Department for Social Development
4th Floor James House
Gasworks Business Park
2-4 Cromac Avenue
Ormeau Road
BT7 2JA
2
TABLE OF CONTENTS
Page
EXECUTIVE SUMMARY
5
REVIEW OF THE LITERATURE OF CAFÉ CULTURE
Current Legislation in Northern Ireland
Review of the Literature (GB)
Regulation & Control of Café Culture (GB)
Notable Other Regulation
Health Issues
Summary of the Issues Raised
7
11
14
16
21
23
24
TOWN CENTRE MANAGER INTERVIEWS – CONTENT ANALYSIS
25
BUSINESS SURVEY QUANTITATIVE RESULTS
29
BUSINESS SURVEY QUALITATIVE RESULTS
37
CASE STUDY TOWNS
41
CONCLUSIONS
55
ANNEXES
A - Project Plan
B - English Local Authority Regulations Used in Review
C - Licence Fees in Selected Council Areas in England
D - Potential Pavement Tables and Chairs Location in Belfast
E - Potential Pavement Tables and Chairs Location in NI
F - Email Requesting Interview
G - Town Centre Manager Interview
H - Business Questionnaire Information Leaflet
I - Business Questionnaire
J - Business Questionnaire Non-Response Analysis
58
59
60
61
62
63
64
65
66
70
SOURCES AND BIBLIOGRAPHY
71
3
4
EXECUTIVE SUMMARY
i.
An appraisal of café culture in Northern Ireland is being carried out by
Social Policy Unit (SPU), within the Department for Social Development
(DSD). This report is mainly concerned with pavement cafes and the
contribution they can make to the development of a café culture. The team
has been tasked with assessing Northern Ireland’s existing café culture,
highlight current issues and to make recommendations to the Minister.
Analytical Services Unit (ASU) were asked to complete the
statistical/research element of the appraisal on behalf of SPU.
ii.
The appraisal took place over several stages, all of which are presented in
this report. A project plan was established and can be seen in the
Annexes. The appraisal included a literature review, a series of interviews
with town centre managers and development officers in towns and cities
and a survey of businesses across Northern Ireland. The meetings with
town centre managers and development officers allowed statisticians from
ASU to establish the settlements which had established, emerging and no
café culture. This resulted in towns being classified as follows:
Existing Café Culture
Emerging Café Culture
No Café Culture
Belfast
Coleraine
Holywood
Portstewart
Newry
Ballymena
Armagh
Lisburn
Newcastle
Newry
Warrenpoint
Enniskillen
Ballymoney
Antrim
Ballycastle
Downpatrick
Dungannon
Larne
Limavady
Londonderry
Lurgan
Portadown
Strabane
iii.
Site visits were made to a sample of these towns to identify and
photograph physical examples of existing café culture and any issues
which may be a barrier to preventing café culture.
iv.
Café culture is considered as having a positive effect on urban
environments and contributes to life within the public realm and outdoor
spaces. It is recognised by various stakeholders that pavement cafes are
positive for an area but current legislation is not conducive to a café
culture in Northern Ireland. A section of this paper, part of the literature
5
review element, looks at the legislation in Northern Ireland and in others
areas of the UK in more detail.
v.
With tourism increasing in Northern Ireland and café culture being
associated with a more European, progressive society, an appraisal of
pavement café legislation could help Northern Ireland’s image improve
further. Visitor numbers have been increasing over the past few years, as
shown on the graph below and revenue from tourism has climbed 40%
between 2003 and 2008.
Visitor Trips (000s)
2150
2100
2050
2000
1950
1900
1850
1800
1750
2003
2004
2005
2006
2007
2008
vi.
For the purposes of the appraisal, café culture is defined as pavement
cafes, that is, the placement of tables and chairs on the footpath or other
such area at the front of a business premises (with or without an alcohol
licence), for use by customers of that business.
vii.
The main findings of the work of ASU were that café culture is seen as a
positive element to modern urban areas. This was expressed by
businesses, town centre managers and development officers across
Northern Ireland. However, current legislation is confusing and needs
overhauled. This requires joined up working and consensus from a
variety of departments and agencies to succeed. The introduction of
effective licensing could provide a new revenue stream.
6
REVIEW OF THE LITERATURE ON
CAFÉ CULTURE
with specific reference to
best practice, licensing regimes
& health benefits
7
INTRODUCTION
1.
An appraisal/assessment of café culture in Northern Ireland is being
carried out by Social Policy Unit (SPU), within the Department for
Social Development (DSD). The team was tasked with assessing
Northern Ireland’s existing café culture, highlight current issues and
to make recommendations to the Minister.
As an element of the overall project plan for café culture research,
this literature review will consider key elements of Northern
Ireland’s café culture, with particular reference to health benefits,
licensing regimes and best practice within those regimes.
2.
It is evident that café culture is starting to develop in certain cities
and towns at this moment. Given the issues that this unregulated
spread may introduce, the Department for Social Development is
taking steps to ensure proper legislation can be developed and put
in place to ensure café culture can progress across Northern
Ireland in a uniform, fair and safe fashion. As part of that process,
SPU is gathering evidence, as described in the work being carried
out by ASU above, to inform its work. The purpose of this research
was to review the existing literature, mainly in relation to legislation
and initiatives that have been undertaken in other jurisdictions to
regulate and control café culture.
3.
Emerging café culture has other effects beyond legislative. This
review is also tasked with looking into areas such as health and
other benefits and issues that may arise in an area with café
culture.
4.
The recent public realm strategy developed for Belfast City Centre
details the need “to improve the quality, accessibility and safety of
the public realm……………., in order to contribute positively to the
economic and social viability of the city.” A controlled expansion of
café culture can only help to develop a town or city, Belfast or
otherwise, in this manner. The strategy also highlighted the current
Roads (NI) 1993 Order and the fact that it does not allow for tables
and chairs on footpaths outside cafes, an important element of
pavement cafes and café culture.
5.
The literature review has concentrated on the areas which are seen
to be most relevant to the review of café culture in Northern Ireland
including :



legislation;
legislation in other jurisdictions;
health impacts;
economic impacts.
8
6.
The literature review found no studies of café culture or pavement
cafes in Northern Ireland.
7.
A number of local authorities in England publish guidelines and
procedures in relation to the permissions required for pavement
cafes. The detail provided in these documents varies in depth and
detail. This report has gathered all the relevant points of interest
from these local authorities which may be relevant to a review of
café culture in Northern Ireland. They are presented in Section 2.
8.
In attempting to adopt an international perspective, this review
hoped to focus on specific comparable international jurisdictions.
However, information on legislation and procedures beyond the UK
and Republic of Ireland proved unattainable.
9.
The findings from the literature review show that there are
perceived benefits and problems with an increase of pavement
cafes. Café culture promotes areas that are seen as more friendly.
With increased footfall and customers on the streets, crime can be
more difficult to commit. Pedestrianisation increases as businesses
lobby for the protection of the atmosphere they create. Low traffic,
less crime and an improved atmosphere attract more people to the
city centre.
10.
Café culture has also been accused of having negative effects on
an area. The most mentioned is the litter produced by outside
dining. Litter can also encourage unwanted activity beyond humans,
such as pigeons or rats, if it is not cleaned to a reasonable
standard. There are also issues regarding pedestrian and disabled
access and ensuring no obstruction to public footpaths are in place.
In the event of an accident, there can be confusion over liability.
11.
The licensing procedures across the UK are all fairly standard, with
slight variation from council to council on certain elements, such as
fees, hours of operation etc. The main areas covered by regulation
are detailed in Section 2.2.
12.
One thing common across the UK and Ireland is that pavement café
licences are considered and issued by the relevant local authority
and not by any central government body.
13.
The issue of coffee and health is one of intense debate. Some links
have been drawn between café culture and improved health. There
is also a large amount of research available suggesting both
positive and negative medical effects of drinking coffee.
14.
Some articles on café culture have suggested that while the
concept is desirable, the UK is too culturally different to mainland
Europe to be able to engender a similar cosmopolitan vibrancy to
city centres.
9
15.
The findings presented in this report will require consideration in
terms of the ways in which future legislation can promote café
culture in Northern Ireland.
10
BACKGROUND
CURRENT LEGISLATION IN NORTHERN IRELAND
1.1
Introduction
1.1.1
This literature review was commissioned in order to support the
work of Social Policy Unit through the provision of evidence to
inform the review of café culture across Northern Ireland.
1.1.2
It is recognised that the review of café culture across Northern
Ireland is taking place in order to consider specific issues relating to
legislation. Current legislation is restrictive and not specifically
suited to café culture. Development is also hindered by the
legislation relating to street furniture, an intrinsic element of café
culture, being placed within the remit of a division, Roads Service,
which has its own focus as part of the Department for Regional
Development.
1.1.3
The review will consider the current elements of Northern Ireland’s
law that is relevant to any café culture scene, regulation within other
jurisdictions that seek to allow pavement cafes to exist, health
issues, perceptions and the benefits and issues that are associated
with café culture. The review hopes to bring forward examples of
good practice aimed at striking a balance between the development
of a sector and fair legislative framework for it to work within.
1.1.4
This research provides information to inform the work of Social
Policy Unit in relation to current legislation and initiatives that have
been undertaken nationally and locally.
Background
1.1.5
The rapid spread of coffee shops across towns and cities has been
noticeable over the past few years and a natural rise in café culture
has become apparent. While this emerging sector is a positive
development in many respects, it is also acknowledged that robust,
modern legislation should be developed to regulate the sector
appropriately. Given the nature of pavement cafes, there are certain
risks that go with allowing café culture to expand unchecked.
1.1.6
For the purposes of this review, a pavement café is defined as any
business (with or without an alcohol licence) which would propose
to provide a designated outdoor area furnished with tables and
chairs to be used by customers to their business.
1.1.7
At present, the law addressing the issues related to pavement cafes
(i.e. the placement of tables and chairs on a footpath) in Northern
Ireland is contained in the Roads (Northern Ireland)
11
Order 1993 and associated legislation.
1.1.8
The current law in Great Britain is contained within the Highways
Act 1980, Section 115.
1.1.9
Café culture is associated with mostly positive impacts to its
surrounding environment and contributes to the development of the
public realm and extended / night-time economies of a city.
1.1.10
Café culture is also seen as something that promotes a more
positive atmosphere and a vibrant, lively mood to a public space,
one which will fit in well with the many public realm projects
currently ongoing across Northern Ireland.
1.1.11
In terms of Northern Ireland, there has been no research in relation
to the impact or proliferation of café culture that could be found. As
such, any economic figures or user surveys will mainly relate to
Great Britain and it will be made clear, where any figures are
quoted or statements made, exactly what jurisdiction it is to which
they relate.
1.2
COMMENTARY ON CURRENT NI LEGISLATION
1.2.1
Footpaths come under the jurisdiction of the Roads Service and the
Department for Regional Development. As stated above, the Roads
(Northern Ireland) Order 1993 regulates the placing of street
furniture on footpaths. Specifically, Article 71 of the Order states:
“Any person who erects any building, wall or fence on a road
otherwise than in the exercise of a statutory power shall be guilty of
an offence and liable……. to a fine”. In other words, anyone placing
any item in a street without statutory permission will be committing
an offence.
1.2.2
There are other sections of the Order that may be relevant when
discussing café culture. Section 88 deals with obstruction of roads:
“Any person who…….. obstructs the free passage along a road
shall be guilty of an offence………”. Section 90 relates to pitching
stalls or offering things for sale on a road. Similarly to Section 88,
anyone pitching a stall or exposing anything for sale is guilty of an
offence. For these circumstances, under the Street Trading Act
2001, an appropriate licence is required. These are obtained from
the relevant district council. However, the Street Trading Act does
not currently cover extending onto the footway while trading from a
shop.
1.2.3
The development of pavement cafes is further complicated by a
range of other issues and bye-laws which must also be taken into
account, such as planning considerations towards permanent
12
structures, alcohol bye-laws, alcohol licensing, litter, noise and the
aesthetic image of the area.
1.2.4
Planning issues become apparent if permanent structures are
considered. Planning applications take time and this may be an
issue for small businesses looking to adapt their business plans to
café culture quickly. Alcohol bye-laws restrict the drinking of alcohol
in designated areas, which may affect the evening economy of
cafes. Also, current alcohol licences do not extend beyond the
physical premises for which they are granted. The question of
ownership relating to health & safety, liability, noise and litter
problems on pavements has been an issue in other cities. Licence
conditions can be used as a measure of control but these need to
be clear and enforcement would be a further issue. The image of a
city may not necessarily be improved by allowing café culture to
flourish. Careful consideration should be given to the type of
establishment and the street furniture allowed.
1.2.5
Many elements require consideration in the development of any
new legislation in this area. Elements may include the body
responsible for enforcing the legislation, the allowances within any
new framework and/or any fees or charges. The impact of allowing
expansion in café culture in specific areas, the decision making
process for licensing applications and what factors the licence
controls should also be closely examined.
1.2.6
There is good reason for consideration of the sector at this time.
Belfast is looking to compete with other European cities for tourist
spending and a more cosmopolitan feel can entice more visits.
Along with the tourist economy, café culture can also stimulate the
evening economy, something which is scarce in Belfast beyond the
pub-based nightlife. The Department for Social Development has
also been investing on public realm projects and pedestrianisation,
across regional towns and cities in Northern Ireland. Café culture
complements these initiatives and helps to engender a positive
atmosphere in a public space.
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REVIEW OF THE LITERATURE (GB)
2.1
BACKGROUND
2.1.2
Reliable, unbiased literature and research on café culture and the
impact of pavement cafes and its associated issues has proved
difficult to obtain. However, some details have been acquired.
2.1.3
Coffee consumption has been rising rapidly in the United Kingdom
over recent years, while tea sales have actually fallen. Britons now
spend more on coffee than they do on tea.
2.1.4
It has been difficult to obtain economic information on the size and
impact of the sector. While much has been written of the more
illustrious chains within the sector and their success in changing
public tastes and activities, actual industry sales and value has not
been easy to source. Despite contact with industry bodies, it has
been found that there is no real interest in assisting or providing
information beyond their membership organisations.
2.1.5
The small amount of information that has been obtained shows that
national spend on coffee was £738m compared to £623m on tea in
2007. Figures suggest that the coffee shop market achieved sales
of £1.63billion in 2009, up 6.2% on 2008. Coffee chain shops have
been opening at an exponential rate. In 2009 there were
approximately 4,200 branded coffee shops, such as Starbucks,
Nero’s and Costa Coffee, across the UK (this was up from around
3,000 in 2007). Including independent coffee shops and nonspecialist shops, that total is estimated to be around 11,000 in
2009.
2.1.6
Figures from the International Coffee Organisation show the
consumption of coffee by 60kilo bag imported to specific countries.
Between 2000 and 2008, consumption in the UK rose from
2.3million bags to 3.1million bags, a rise of 31%. In the same
period, consumption in America rose by 16%, across the European
Community it rose by 5% and consumption in France actually
decreased.
2.1.7
The success of Starbucks is worth considering as a touchstone for
the increasing prevalence of café culture throughout British towns.
The brand entered London, in 1996, with virtually no coffee culture
to speak of and had expanded to 200 outlets within seven years.
(For comparison, in America it took Starbucks twenty-one years to
grow from one café in 1971 to 165 cafes when it floated on the
stock exchange in 1992). The recent expansion of this brand, what
is perhaps thought of as the McDonald’s of the coffee industry, has
been a factor in the rise of café culture. However, the opportunity
14
may be present to use this phenomenon and establish a café
culture off the back of this rise in ”fast food” coffee.
2.1.8
Along with the rise in consumption, some articles hypothesize on
the role of legislation towards encouraging the growth of pavement
cafes. Street cafes are widely associated with Europe, where
legislation allows for family drinking in public. What can be seen as
a result is that cities are considered safer, there are more children
in city centres and streets are claimed for the pedestrian and not for
traffic.
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REGULATION AND CONTROL OF CAFÉ CULTURE (GB)
2.2
GB REVIEW & LEGISLATION
2.2.1
The general legislative arrangement across Great Britain when
regulating tables and chairs on footpaths is to issue licences or
permits which allow street furniture to be placed on footpaths,
dependent on restrictions that may be set within any licence.
2.2.1
When dealing with the issue of pavement cafes, local authorities in
England and Wales operate under Section 115 of the Highways Act
1980 (with the exception of the City of Westminster in Greater
London). However, each local authority has its’ own process of
applying for the necessary permissions and some specific English
authorities are highlighted below in more detail.
2.2.2
Section 115 is too large to reproduce but in short, it allows a council
to grant permission to place objects or structures on a footpath to
enhance the amenity of the highway; to provide a service; to
provide recreation/refreshment facilities; or for advertising. If an
income is resultant from the objects or structures, the council must
first obtain the consent of adjoining occupiers. Other conditions may
be imposed by the council and provision is also made for dealing
with any breaches of conditions. A 28 day notice, affixed to the
premises, must be in place prior to permission and a copy of the
notice must also be sent to any occupier likely to be affected. A
council is obliged to consider any objections or correspondence
received as a result of the notice.
2.2.3
The City of Westminster is unique in England as it created its own
specific legislation, the City of Westminster Act 1999, to address the
issue of street trading and street furniture. It was felt that the
Highways Act was not fit for purpose in the case of street furniture
at cafes and instead treated the issue as street trading. The 1999
Act introduced a council-run licensing scheme similar in its
application process to that described in the Highways Act above.
However, the 1999 Act gave City of Westminster the power to set
its own fees as appropriate, including clauses which allowed the
council to recover costs for refuse removal, street cleaning and any
other costs (Section 22). This did not form part of the Highways Act.
In a 2004 review of access in the public realm in Westminster,
pavement cafes were noted as being an important asset but the
potential obstruction of footpaths was an important issue and
access for the disabled, particularly including the visually impaired,
should be an issue raised clearly at licence application stage.
2.2.4
Prior to actually making an application, the detail provided by local
authorities on their pavement café regulation varies in depth, some
provide one side of A4 and some provide substantial booklets.
However there is a large degree of commonality as to how
16
authorities regulate across England. The councils that were
researched as part of this review can be found in Annex B. Rather
than go through each council, it is more appropriate to highlight the
common themes and unique issues across the various factors
relating to the legislation.
2.2.5
Most licences are valid for one year, the majority operate from the
day they are granted but some operate on a financial year basis
(April – March) and renewal is due on 1st April each year,
regardless of when the first licence was issued. There are some
exceptions to the one year licence; for example, Wigan Council’s
licences are for a two year period from the time granted.
2.2.6
Many councils will actively mark out the pavement café area, once
agreed, by placing metal studs in the pavement. This is at the
licensees expense. In general, most councils require the
location/size of the pavement café to leave at least 1.8 – 2.0metres
between the kerb and the licensed area. In the case of busier
pedestrian areas, councils may make a judgement that this distance
may be larger. Access to the premises fronted by the pavement
café must usually be through an unobstructed corridor of 1.5metres.
Some councils also specify that cafes cannot be placed within a
certain distance of a junction to allow good visibility for motorists to
remain. Typically, this distance is fifteen metres. Any change in
layout must be notified and agreed and if this is not done, councils
can revoke licenses with immediate effect. Emergency service
access must be protected at all times (in pedestrianised areas a
corridor of 3.5metres is expected). Some authorities specifically
restrict pavement cafes only to the frontage of the applicant’s
premises. Other councils require consent from affected
neighbouring businesses. Nottingham City Centre has identified
specific areas where applications will not even be considered.
There are also areas in cities which will not be considered for
pavement cafes due to air quality issues arising from traffic.
Pavement cafes must be visible from inside the applicant’s
premises.
2.2.7
Many, but not all, councils insist that all pavement café areas need
to be enclosed to allow other footpath users to distinguish it,
particularly to assist the blind and visually impaired. The design of
barriers should always complement the area and must have solid
elements at specified heights above ground level. In general, rope
barriers are not considered suitable. Planters can also be
considered. All equipment relating to barriers must be removed out
of the specified operating hours of any licence. Therefore materials
must be sturdy, yet lightweight enough to be moved daily.
Advertising on barriers is tightly controlled by some councils, while
others make no mention of it in their regulations. Where it is
specified, advertising should relate to the food or drink being sold
on the premises and not be overly dominant. Nottingham does not
17
allow brewery or product branding. Any permanent barriers are
likely to require planning permission.
2.2.8
All councils discourage plastic garden furniture and insist that all
chairs and tables must be of a high quality and uniform style.
Details of furniture must be provided with some licensing
administrations. All tables and chairs should be stable and kept in
good repair. Where umbrellas are allowed (not all councils allow
umbrellas), they should be fabric type (non-reflective). Umbrellas
must not overhang the boundaries agreed in the licence. They must
be suitably secure and balanced to withstand wind. Some councils
that allow advertising on umbrellas limit logos to 150x450mm in
size. Any additional furniture eg. A boards / heaters must be
included in any application and permission is generally at the
discretion of the council. Furniture should be positioned so as not to
impair vehicle sight lines. Like barriers, all furniture must be stored
off-street when the business is not operating. All customers must be
seated.
2.2.9
All pavement cafes are expected to have enough staff to cope with
the potential increase in customers an outdoor area may bring. All
tables must be served by waiting staff and the operator is
responsible for keeping the area clean and free of litter. Vacated
tables should be cleared as soon as possible to prevent litter and
unwanted animals, such as pigeons. Noise disturbance and
unpleasant smells are also not allowed and may breach conditions
of licence. The conduct of customers is also the responsibility of the
licensee. Toilet facilities must also be appropriate to cope with
increased trade. Any required lighting must be attached to the
building in which the café is based, unless the café area is
detached from the premises.
2.2.10
Not all guidance provided by the local authorities specifies their
stance in respect of operating hours. Of those that do, there is
variation. Tameside licences operate from 9am-9pm. Preston City
Council ask that all furniture is removed from the street by 7pm.
Liverpool’s guidelines do not specify times but make reference to
the development of the city as a 24 Hour City. Herefordshire
licences allow opening between 8am and 10.30pm. Calderdale and
Nottingham allows trading to 11pm.
2.2.11
The vast majority of authorities demand insurance for a minimum of
£5million in respect of any one incident, which must indemnify the
authority from any claims arising from use of the highway for the
permitted purpose.
2.2.12
If the planned café is likely to affect other frontages, or in some
cases even if it isn’t, councils require notice to be posted in the
window of the applicant for 28 days to inform of the licence
application and allow any comments to be presented to the council.
18
Comments are taken on their own merits and all are considered.
Where frontages are directly affected, permission must be sought
from that business. The notices are supplied by the councils to
ensure consistency in wording. In Taunton Deane, the council will
also place a notice in the local paper and send notification to the
town centre manager, police, fire and environment agencies. The
licence does not confer any ownership rights to the licensee and the
area affected must be cleared if maintenance or repair is required.
Councils state they are not liable for any loss of business under
these circumstances.
2.2.13
Fees for licences vary significantly. Of the local authorities
researched, (outside of the City of Westminster) the cost of a new
licence ranged from £150 in Tameside (west of Manchester) to
£1,000 in Taunton Deane Borough Council. Renewals range from
£100 in Tameside to £800 in Taunton Deane. Some councils
charge a flat fee that does not differ for renewals or new licences.
Wigan charges per area (£250 if less than 10m2, £400 if greater
than 10m2) but these charges are for two year licences. Calderdale
Council charges £206 for cafes that intend to operate no later than
7pm, £309 if beyond that time. A list of selected licence fees can be
found in Annex C.
2.2.14
In the City of Westminster, the fee is dependant on the number of
chairs a café intends to have. Licences operate to 7pm and there is
an additional charge for each hour past that time also. There is also
a supplement added to new applications, which is not payable for
licence renewals. The payments applicable are as follows:
Table 1: City of Wesminster table and chair fees
No. of Chairs
Fee (£)
1-4
5-9
10-16
17-23
24-36
37+
325
500
900
1,300
1,750
2,400
New App. Supplement (£)
50
75
110
175
200
300
Hourly Charge Beyond 7pm (£)
7
11
15
21
28
38
2.2.15
In Scotland, local authorities regulate under the Roads Scotland Act
1984. Section 59 of the Act is concerned with the control of
obstructions in the road. The section is small and vague and is not
specific to any premises placing items on footpaths. Councils
handle permit requests using Section 59 as the guiding legislation.
Additionally, the recent Licensing (Scotland) Act 2005 requires
outdoor tables and chairs to be detailed in the licence application.
2.2.16
In Edinburgh, permits can be six or twelve months and standard
closing time is 9.00pm. Applicants must now display a notice of
intention for 14 days to allow any concerns to be raised prior to the
19
granting of a permit. Permits, once granted, must be displayed at all
time and insurance must be in place. Unauthorised items can be
removed by environmental wardens and A boards must be within
the table and chair area, which should be marked by solid barriers.
The cost of a permit varies depending on whether the location is
within a world heritage site. If inside such an area the cost is £85
per m2, £65 if outside world heritage boundaries.
2.2.17
In Aberdeen, a similar process as to that used in most English
authorities is used. Enclosures cannot be permanent without
planning permission, two metres must be kept between kerb and
café, furniture must be of an appropriate style and quality,
cleanliness must be observed and liability insurance of £5million
must be in place. Letters of agreement from potentially affected
frontages must be forwarded with any application and cafes must
close by 10.30pm. Current costs are £150 annual administration fee
plus £25 per chair paid annually also.
2.2.18
Glasgow has a standard annual fee of £175. Planning permission is
not necessary for every application but it is advised that the
planning authority is contacted prior to application.
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NOTABLE OTHER REGULATION
Literature on jurisdictions outside Great Britain proved difficult to
access but what was obtained and proved relevant is detailed
below.
3.1
Republic of Ireland
3.1.1
In the Republic of Ireland, local authorities issue licences under the
Planning and Development Act 2000 (Section 254) and the
Planning and Development Regulations Schedule 12. Regulations
made under the Act detail the appliances, apparatus and structures
suitable for licensing.
3.1.2
The Planning and Development Act is not specific to pavement
cafes and covers other potential street furniture such as vending
machines, maps, advertising or cables. The Act does not regulate
any structure which needs planning permission or any maintenance
work undertaken by a statutory employee.
3.1.3
As with England, the licensing authority can specify conditions in
relation to location and design. Other considerations at application
stage include local development plans, existing structures (in this
case, other pavement cafes) and safety of highway users. A licence
can be revoked if it is felt any structure has become dangerous or
impairs movement on the highway.
3.1.4
A request for information was sent to the twenty-nine county
councils and five city councils in the Republic of Ireland. A total of
six replies were received and most were not forthcoming with detail
as to the processes and fees involved.
3.1.5
Of those that did provide some detail, Laois and Carlow County
Councils advised of a charge of €125 per table. Both confirmed this
fee is based on a one year licence. It was later found that the €125
charge per table is standard across Ireland, as stated in Schedule
12 of the Planning and Development Regulations.
3.1.6
The applicant must state in their application letter what period the
licence is required to cover. South Tipperary provide temporary
licences and issues considered on application are
pedestrian/vehicular access, size of pavement café, implications for
neighbouring frontages and hours of operation.
3.1.7
Dublin City Council provided the most comprehensive response.
Here, applicants meet with the Street Furniture Unit to determine
whether a pavement café would be suitable. Then the applicant
must place a notice in a public newspaper and place a notice in the
current premises. Wording of the notice is set out in Schedule 12 of
21
the Planning and Development Regulations. An application form is
also required to be completed and the council will then consider
safety, access and size alongside any comments from police, fire,
planning and the public. If a licence is then granted, liability
insurance for €2.6million is required. The fee structure, compared to
others, is convoluted. The annual licence fee is €100, as well as the
regulation annual fee per table of €125. Annual space rental on the
pavement is also charged by the square metre. Less than four
square metres is €200 per year. Over four square metres, the
charge varies from €200 to €500 per year depending on location
within the city.
3.1.8
A substantial response was also received from Wexford County
Council, who provided their licensing conditions. These conditions
closely matched those in force in England. Licences operate from
10am to 8pm and there must be a minimum of 1.2m of the footpath
left clear for pedestrians. The café area must not extend more than
3m from the shop front. Barriers must be dark coloured and
advertising must be approved. Tables and chairs must be robust
and stable. Public liability (€6.35million) must be in place and
access, if required, must be given to statutory employees. Tables
must be served by café staff.
3.2
Europe
3.2.1
Information for other cities across Europe was extremely difficult to
obtain. Investigation of Barcelona did not uncover any information
from their City Council. One small article was found relating to
Paris. Plans were being looked at to reduce the size of the cities
central cafes as the outside seated areas were deemed too large
and were restricting movement of vehicles in non-pedestrianised
streets.
22
HEALTH ISSUES
4.1.1
The effects of café culture on a nation’s health are limited and hard
to measure. The role of encouraging people to sit at a table, drink
coffee and enjoy a relaxed social setting may not seem immediately
beneficial. Therefore, it is important to look at the research that has
been published on the health matters related to coffee/tea as well
as any information relating to café culture itself.
4.1.2
Café culture is seen as a social phenomenon, encouraging more
public interaction, which may bring associated mental health
benefits. Pavement cafes have also been described as one element
borne as a result of limiting urban sprawl. People will prefer to live
in a vibrant, peaceful city compared to a city seen as lifeless and
anti-social. By having a population living closer to the city centre,
people are encouraged to walk more rather than use forms of
transport associated with commuting. A paper released by
Birmingham University in 2003 hypothesizes that this effect can be
partially demonstrated by obesity statistics. At the time, the US and
the UK led the adult obesity tables with 23% and 19% respectively
(measured in 2005/06, Northern Ireland had an obesity rate of 24%
amongst adults). Societies seen to have strong café cultures had
much lower rates (France – 10%, Italy – 8%). These figures
suggest that there may be some weight behind the view that café
culture brings a health benefit to society. The argument could also
be made that these countries simply have better dietary habits.
4.1.3
Coffee itself has drawn much debate and research over its health
impacts, both positive and negative. Its effect as a stimulant is well
known, as well as potential dependency and withdrawal effects.
4.1.4
Research has hypothesised that, on the positive side studies have
shown that coffee drinkers may be less likely to be affected by
Alzheimer’s disease and Parkinson’s disease. Coffee can also
reduce the incidence of cirrhosis of the liver and is correlated to a
reduced risk of certain cancers (oral and throat). Coffee also
contains significant amounts of antioxidants.
4.1.5
Alongside all these positive effects, there are also many potential
negative impacts of coffee consumption. Coffee contains over 1,000
chemicals and some are known carcinogenics, although exposure
levels are not likely to be high enough through consuming coffee.
Coffee can also damage the lining of organs and is not
recommended to be consumed by those with ulcers. Too much
caffeine can also cause anxiety, loss of sleep and, in a cosmetic
side effect, causes staining of the teeth. Studies have also
suggested a risk of coffee drinking in pregnancy and a risk of iron
deficiency in mothers and babies.
23
SUMMARY OF ISSUES RAISED
5.1
THE EVIDENCE PRESENTED
5.1.1
The information presented in the literature review comprised of
legislation in the UK and Ireland. This work is intended to help
inform the debate in relation to the development of appropriate
measures for the control and regulation of pavement cafes within a
Northern Ireland context.
5.1.2
The literature review showed that while legislation and control of
pavement cafes is the responsibility of individual local authorities,
they have interpreted the Highways Act and developed their own
procedures in a similar manner.
5.1.3
The key points from the literature review regarding measures to
regulate pavement cafes in Northern Ireland are summarised
below:
For pavement cafes to be regulated consistently, a robust set of
guidelines and procedures make it easier for any prospective
pavement café owner to determine what is required prior to
opening.

The pavements in Northern Ireland are currently regulated by
the Roads (Northern Ireland) Order 1993. This Order contains
no allowance for councils to provide permission for any
regulated tables or chairs to be placed on a pavement, unlike
the Highways Act 1980, which regulates the issue in England
and Wales.

A licence fee would likely be required but the level of the fee is
set to an appropriate amount for the area in which the café will
be situated. Hence the disparity between councils in England,
where fees can range from £150 to £1,000 per year.

Despite being open to each local authority to independently
introduce guidelines and procedures, pavement cafes across
England are subject to similar restrictions and similar
procedures could be considered for Northern Ireland.
.
24
TOWN CENTRE MANAGER
INTERVIEWS
CONTENT ANALYSIS
25
INTRODUCTION
6.1
For the purposes of the café culture review, all Local Government
District’s Town Centre Managers were contacted and asked to take
part in a semi-structured interview (email attached at Annex 1,
questionnaire attached at Annex 2). From this exercise a wide
selection of Town Centre managers in Northern Ireland agreed to the
interview to ascertain the level of this type of activity in their respective
towns/cities. Interviewees were mainly town centre managers or
Economic Development officers with wide ranging geographical areas
of responsibility.
6.2
All interviews asked for a business register of the town or area of
responsibility and these were mainly available on the Local
Government District or town centre websites. The interview then
progressed and responses were as follows.
Existence
6.3
Of the fourteen respondents, twelve said that there were pavement
cafes in their jurisdiction. Two said there were no pavement cafes.
However, several of those who initially answered yes to this question
subsequently went on to detail that there were actually very few, if even
any, pavement cafes in their area.
Longevity
6.4
A common reply was that cafes have been reasonably well established
(at least 6 years). Equally common was that cafes were recent (2-3
years). A few had a mix of established and more recent cafes and
Coleraine reported that the completion of a recent DSD public realm
initiative was when some pavement cafes were established.
Drivers
6.5
The smoking ban was the most common reply, cited by eight of the
respondents. Coleraine, Newcastle and Armagh reported that improved
public realm provided by DSD was a driver. Other reasons given were
tourism (Newcastle and Enniskillen), an increased wider cultural
awareness and shopping footfall creating business opportunities.
Seasonality
6.6
Nine respondents said there was no seasonality, four said there was.
Of those who said the service was all year round, some noted that
usage was seasonal but that tables and chairs still were placed on the
pavement all year.
26
Opening Hours
6.7
The majority (ten interviewees) said pavement cafes were provided for
normal operating hours only (i.e. generally 9am-5pm). Two stated that
bars and pubs would provide tables for longer (but again, this would be
within bar/pub normal operating hours). Two areas did note that in
summer, some operating hours were extended (Downpatrick and
Limavady).
Business Type
6.8
The main response was cafes (twelve), followed by restaurants (eight),
bars (four) and hotels (three).
Permanency of structures
6.9
Twelve interviewees detailed that tables and chairs were all that was
provided. One did expand on this to describe the provisions as semipermanent. All were on the public footpath and no surrounds or
structures were described.
Support for café culture
6.10
Every response to this question was yes. Some expanded and preempted the next question, stating that pavement cafes provide
increased vibrancy, meeting places, safety, footfall and an improved
aesthetic to a town. The Warrenpoint Chamber of Commerce has
already discussed the issue in its meetings.
Benefits of café culture
6.11
The benefits put forward were (in order of frequency): improved
atmosphere, greater footfall, an improved night time economy,
increased tourism, healthier lifestyles and proper legislation for the
enterprise.
Problems with café culture
6.12
Potential problems/issues (again in order of frequency) were: access
issues (particularly for the disabled), litter, the current state of public
realm (mainly that footpaths are too narrow, steep or uneven), antisocial behaviour and on-street drinking, health and safety and
ownership of liability, the licensing arrangements, increased traffic and
policing issues.
DSD’s assistance with problems
6.13
Assistance with pedestrianisation, the public realm and, in particular,
wider footpaths were mentioned repeatedly. This was followed by DSD
drawing up new legislation to properly police and inform this sector.
27
Other comments were the provision of a single authoritative body,
rather than the current departmental mix of responsibility, incentives for
businesses to establish pavement cafes and to address this issue
alongside street drinking laws.
Perceived business attitudes toward café culture
6.14
Most had encountered a lack of interest or had no approaches from
local businesses. Three interviewees stated that their town had a selfregulating structure that the business operated amongst themselves.
Three expressed some sense of interest from businesses, while two
had approaches from businesses who thought tables and chairs were
prohibited. Many of the smaller towns said that a lot of their businesses
were generational enterprises and are stuck in their ways, most of
these have no ambition to change or diversify.
Public stated attitudes toward café culture
6.15
Nine respondents had received no comments from the public. Four
cited some positive feedback, while two had complaints that tables
currently provided block footpaths.
Additional comments
6.16








This question again raised the issue of pedestrianisation being an
important element of encouraging pavement cafes. Other responses
were:
By providing proper legislation, businesses may be more likely to
establish pavement cafes.
The idea is popular in the area but concerns outweigh the positives
with local decision makers.
Enniskillen has a ‘rights ownership’ regarding street trading. Requests
are dealt with by Enniskillen Marts rather than the council.
Newry highlighted current public works which have scope for
introducing more café culture into the town.
One respondent mentioned one business that had ‘red tape’ issues
previously and this has put others off.
Some small towns were described as copy cat towns, if one pavement
café was established a domino effect would likely occur and others
would follow suit.
Ballycastle highlighted one other prohibitive factor due to the layout of
the town. Parking was an issue in and around the area where café
culture would be suited.
A lot of towns have beer gardens and similar areas but these are in the
back of premises and would not be considered as part of a café culture
review.
28
BUSINESS SURVEY
QUANTITATIVE RESULTS
29
METHODOLOGY
7.1.1 The survey in Annex I was sent out in late April 2010 with a closing
date for return of 7 May 2010. Using the latest Experian dataset of
shops in Northern Ireland, all businesses classified as cafes,
restaurants, public houses and bars / wine bars were extracted. A
representative sample was then taken using SPSS to ensure a spread
across the country.
7.1.2 954 surveys were sent out by post. 122 (12.7%) completed surveys
were returned and included in the analysis. Two surveys were returned
incomplete and were not included in the final analysis. A total of 737
establishments did not return the survey. 93 (9.3%) were returned ‘not
at this address’ and this information will be passed on to Experian for
their records.
7.1.3 Of the two surveys that were returned but were not included in the final
sample analysed, one was returned but not completed at all and one
was returned completed incorrectly (the respondent made their own
definition of a pavement café and completed the questionnaire under
this assumption, including tables and chairs that it provided which were
on private property).
ANALYSIS
Response
7.2.1 Of the surveys returned completed (122), the majority were from
businesses classified as cafes. The remainder was made up almost
entirely of restaurants and public houses.
Response Classification
2%
19%
Café
Restaurant
59%
20%
Pub
Bar/ Wine Bar
7.2.2 Analysis of the responses, non-responses and of those returned ‘not at
this address’ can be found in Annex J.
30
Provision of Pavement Café Facilities
7.2.3 Of the completed responses, fifty-three businesses (43.4%) considered
that they provided pavement café facilities as part of their business.
This left sixty-nine (56.6%) establishments that do not provide
pavement café facilities.
7.2.4 Of the fifty-three that do provide facilities, three-quarters (40) were
cafes, with a small number of bars, restaurants and public houses
making up the remainder.
Providers of Pavement Cafe
Facilities
9% 2%
Café
13%
Restaurant
Pub
Bar/ Wine Bar
76%
7.2.5 Cafes were also most likely to be non-providers of pavement café
facilities (but this is to be expected as cafes made up the majority of
the responses received). However, amongst those that do not provide
facilities, the response was more evenly spread than amongst those
that do. Cafes made up just under half of the responses and
restaurants and pubs each made up a quarter of the completed
surveys.
Non-Providers of Pavement Cafe
Facilities
1%
26%
Café
47%
Restaurant
Pub
Bar/ Wine Bar
26%
31
Location
7.2.6 As expected, the majority of replies both providing and not providing
came from Belfast. Similarly, Lisburn, Bangor, Antrim, Portadown and
Ballymena returned multiple responses in both categories.
Londonderry, the other major city, had five responses to the survey,
none of which detailed provision of café culture facilities.
7.2.7 Interestingly, Ballycastle had two returns from businesses stating they
do provide pavement café facilities. However, on visiting this area and
interviewing the Development Officer, the conclusion was that café
culture did not exist in any significant form. Similarly, Coleraine had
four responses that all reported no pavement café facilities, following
the town having been identified as having an established café culture.
Location of Responses
25
20
15
10
5
Be
l
Ba f as
t
lly
m
en
C
a
ol
er
ai
ne
Li
sb
ur
n
An
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m
Ba
ng
C
or
oo
ks
to
Lo
nd wn
on
d
Ba erry
lly
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Po stle
rta
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w
Ar n
m
En agh
ni
sk
H
ills ille
n
bo
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N
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ew
ca
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N
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ew
ew
ry
to
w
na
rd
s
O
th
er
s
0
Town
Provide
Don't Provide
32
Reason for Providing Pavement Café Facilities
7.2.8 Respondents who stated they provide pavement café facilities were
then asked what the reason behind that decision was. The main
responses were split between the smoking ban and that it was a
business decision, to increase revenue etc. Nearly one-fifth of the
responses also cited improved public realm in their area as a driver for
this change in their business. Some responses included several of the
options provided so totals will not tally with previous counts.
7.2.9 Some other reasons given included; improving the local atmosphere,
appealing to tourists, providing a more continental theme and customer
demand.
Reasons for Providing Facilities
15%
28%
Smoking Ban
Improved Public
Realm
Business Decision
36%
Other
21%
Seasonal Provision
7.2.10 Respondents were next asked whether their pavement café facilities
were provided all year round or on a seasonal basis. Thirty-three
(63.5%) of replies stated that their facilities were provided all year. Of
the eighteen that provided on a seasonal basis, only two were from
what would be considered tourist towns (Ballycastle and Enniskillen).
Other locations that provided seasonal facilities included Strabane,
Aughnacloy, Lisburn, Magherafelt and Lisnaskea. This would suggest
that seasonal provision may be more weather-driven and not
necessarily tourist season-driven. One respondent advised that their
provision was seasonal as the business was closed between October
and March and one respondent did not complete this question.
33
Other Furniture
7.2.11 The survey then asked about other street furniture that may be
provided. A lot of the comments that came back from the survey
suggested confusion amongst businesses as to the legislation and
planning regulations. Around half (26) provided only tables and chairs.
However, there were numerous examples of businesses that had
provided more than just tables and chairs. Eighteen businesses
provided barriers or fencing of some kind (15 of these were cafes). Six
provided umbrellas and three provided patio heaters. Overhead
canopies / awnings were also prevalent and one respondent stated that
flower boxes were part of their pavement café facilities.
Future Provision
7.2.12 Those who responded that they currently do not provide pavement café
facilities were asked would they consider providing this service in the
future.
Would you consider providing pavement
cafe facilities in the future?
19%
45%
Yes
No
Maybe
36%
7.2.13 The feeling is a positive one, with those at least considering the
possibility being 64% of the response and only 36% completely ruling
out pavement café facilities. However, this service is more suited to
cafes specifically, as opposed to pubs and restaurants. In light of that,
it is interesting to note that of the 25 that did completely rule it out, the
majority were pubs and restaurants (only 9 were cafes). Inversely, of
the 44 that were positive in their response, 23 were cafes.
In favour of increasing the sector
7.2.14 All respondents were then asked if they would be in favour of an
expansion in café culture. 64.8% were in favour of expansion, with
22.1% not in favour. Responses were skewed slightly from this result
when taking those who currently provided and those who do not
34
provide separately. This was as expected, as those who do not provide
such facilities currently were less in favour of expansion and vice
versa.
The following table shows the results for each category.
Currently Providing
%
In favour
71.7
Undecided
11.3
Not in Favour
15.1
Not Completed
0.0
* Totals may not add to 100 due to rounding.
Currently Not
Providing
All responses
59.4
13.0
27.5
0.0
64.8
12.3
22.1
0.8
7.2.15 Between business types, the café sector was most in favour of
expansion, with slightly more in favour when compared to restaurants.
Public houses were less inclined to support an expansion. On street
drinking was a common issue raised in the survey and this is likely to
be one reason pubs would be less keen to support pavement facilities
and the possible issues it may develop outside a licensed premise.
%
In favour
Undecided
Not in Favour
Not Completed
Cafes
Restaurants
Public Houses
65.3
13.9
19.4
1.4
64.0
4.6
24.0
0.0
60.7
8.7
30.4
0.0
35
36
BUSINESS SURVEY
QUALITATIVE ANALYSIS
37
8.1.1
As well as asking respondents for information on the facilities they provide,
the survey of businesses also asked for any comments or opinions on café
culture that the respondents were willing to provide. Below is an overview of
the general themes included in those responses.
Benefits Envisaged / Encountered with Providing Pavement Café / Café Culture
Facilities
8.2.1
Pavement cafes were seen as a positive development in an area, creating a
more cosmopolitan, relaxed atmosphere with outside dining. This was
mentioned also in relation to increased tourism.
8.2.2
Café culture also had positive business effects with outside facilities
increasing awareness and footfall to both the cafes and other nearby
businesses. There was a noted potential for increased advertising also.
8.2.3
The smoking ban was a commonly mentioned issue, outside seats
encourages more custom from smokers (as well as dog walkers).
8.2.4
There was a general feel good factor towards pavement cafes from the
responses, particularly when good weather was involved, with customers
enjoying people-watching and the on-street furniture creating a more
aesthetically pleasing high street. With businesses feeling a sense of
ownership of the pavement space, it was also thought that the streets would
be kept cleaner by the businesses if they have a stake in cleanliness of the
outdoor environment.
Issues Envisaged / Encountered with Providing Pavement Café / Café Culture
Facilities
8.3.1
There was a wide range of responses to this question, the most common
being around the themes of litter, theft (including non-payment of bills), antisocial behaviour. Businesses were concerned about the hassle that may
come from having to deal with non-customers using the facilities they provide.
8.3.2
Another common response was related to current public realm provision.
Footpaths can be too narrow or uneven and some businesses could be less
thoughtful in the placement of their facilities. It was thought important to take
into account pedestrian usage, the disabled / blind and buggies / prams etc.
8.3.3
Other issues included a lack of clarity over who actually is responsible for the
administration of pavement cafes (DRD or councils?), planning, councils not
being in favour of providing on-street facilities, health and safety / insurance
issues and the general bad weather in Northern Ireland.
8.3.4
Several responses were concerned about traffic fumes and one response
thought having smokers outside would detract from their business.
38
What Can DSD Do To Address Issues Raised
8.4.1
A lot of the responses to this question raised issues that fall under the remit of
other departments but most responses were related to those issues raised
above. Urban design and public realm issues, such as improved lighting,
planting, wider footpaths and pedestrianisation were mentioned.
8.4.2
Administrative issues were also common. This included introducing specific
legislation, making the application process simple and clear, reducing the
cost, having regular inspections and issuing specific licences and consents.
8.4.3
Cleanliness and the regular emptying of bins was raised several times and
increased security and enforcement of laws was suggested.
General Attitudes of Businesses
8.5.1
The vast majority of responses to this question were of a positive nature.
Many did lend their support as long as footpaths were kept clear of
obstruction and tidy.
8.5.2
Some were completely against the idea. There was some feeling that
Northern Ireland is a pub culture and café culture would not work. Many were
of the opinion that councils would not be interested in promoting pavement
cafes and the potential legal ramifications were a concern.
Additional Comments
8.6.1
Again, the majority were positive and in favour of café culture but felt that
more assistance could be provided to develop the sector. Again the drinking
culture was raised and there is concern that promotion of this could lead to an
increase in on-street drinking.
8.6.2
Issues raised earlier, such as clear legislation and cleaning and security
issues, were raised again.
39
40
CASE STUDY TOWNS
41
Introduction
9.1.1
Following the process of interviewing the town centre managers, the
responses received were used to classify each town as; having no café
culture, having an emerging café culture or having an existing café culture.
9.1.2
This was dependant on the number of establishments providing pavement
café facilities and by how long these services have been in existence.
The results were as follows (chosen case study towns are in italics):
9.1.3
Existing Café Culture
Belfast
Coleraine
Holywood
Portstewart
Emerging Café Culture
Newry
Ballymena
Armagh
Lisburn
Newcastle
Newry
Warrenpoint
No Café Culture
Enniskillen
Ballymoney
Antrim
Ballycastle
Downpatrick
Dungannon
Larne
Limavady
Londonderry
Lurgan
Portadown
Strabane
Once the case study towns were identified, maps were created using the
most up-to-date Experian data. Visits were then made to each, using the
maps as guides, to examine the current provision and to photograph any
relevant areas or examples. Towns were chosen to give a good range of size
(population and geographical) and to provide a wide coverage of Northern
Ireland.
42
Considered As Having Established Café Culture - BELFAST
9.2.1 A map of the facilities likely to provide pavement café facilities in
Belfast City Centre is below. Belfast, being the capital of Northern
Ireland, has the population (around 260,000) to support café culture.
The data, obtained from Experian, detailed a total of 152 cafes, 180
restaurants, 127 public houses and 29 bars/wine bars within the Belfast
area.
9.2.2 Finding pavement café
facilities in Belfast was not
difficult. An on-site visit around
the Botanic area or through the
main shopping area around Corn
Market and City Hall found
numerous examples and some
photos are shown below.
Botanic Avenue, Belfast
9.2.3 Many of the sites found in Belfast
had more provision than just tables
and chairs, as these two
photographs show many cafes had
barriers either advertising the café
or products relating to the services
offered inside. The majority of
street furniture that was observed
was of good quality and
businesses had not resorted to
cheap, poor quality garden-style
tables and chairs.
Botanic Avenue, Belfast
43
9.2.4 However, as the photos below show, some facilities were of a more
simple standard and used any space available.
Bradbury Place, Belfast
Corn Market, Belfast
9.2.5 Given the increasing pedestrian areas of Belfast and the current public
realm improvement work, the city appears well positioned and equipped to
cope with an expansion in the provision of pavement cafes. The Belfast
Streets Ahead Phase 1 project is a £28 million public realm scheme taking
place currently in Belfast City Centre. The scheme, funded by DSD, involves
new granite paving, rationalising and installing new street furniture, putting in
new street lighting and public art in 14 of the main streets in the city centre.
Work commenced in July 2007 and is on target for completion by March 2011.
To date 12 streets have been completed at a cost of £21 million. This has led
to a more visually attractive and welcoming area, perhaps best observed in
Arthur Street and Corn Market.
44
Considered As Having Established Café Culture - COLERAINE
9.3.1 Coleraine, being the second largest urban area on the north coast, has
a reasonably large town centre area and population within the
catchment area of that town centre. Most recent population figures
show the Coleraine Borough Council area has a population of around
57,000. There has been recent public realm works in Coleraine, aimed
at improving the town centre. DSD has spent approximately £1.1million
over the past three years in work mainly around the Kingsgate/Church
Street area.
9.3.2 From the Experian data,
Coleraine has 18 cafes, 27
restaurants and 15 public houses.
The majority of cafes can be found
around the Diamond area,
particularly to the east. On the day
Coleraine was visited, pavement
cafes were easy to find in the area
and most cafes seemed to have
furniture on the pavement.
Kingsgate Street, Coleraine
9.3.3 Pavement cafes in Coleraine
were in a more concentrated
area than in Belfast and most
were less formal in nature also.
The main provision was tables
and chairs placed on footpaths.
There were less branded
barriers, umbrellas etc. The
majority of the cafes were found
in the pedestrian zone around the
streets surrounding the Diamond.
This zone has certainly been
Church Street, Coleraine
45
conducive to encouraging the
growth of the cafes in Coleraine and there is certainly scope for further
growth if other businesses are willing and able to expand.
9.3.4 Our visit to Coleraine centre showed that pedestrainisation can be a
key factor in café culture. The lack of through traffic provides a much
more relaxing, clean and quiet environment. Coleraine still has room
for further cafes, the Diamond itself lends itself to outdoor facilties but
currently has none. Other pedestrianised zones off Church Street are
also suitable.
Pedestrianisation in Coleraine
Church Street, Coleraine
9.3.5 It is worthwhile noting that, while Coleraine has an established
collection of cafes providing pavement facilities, these are mainly
located in a small area on the central street through the Diamond and
there is little provision away from this area.
46
Considered As Having Emerging Café Culture - NEWRY
9.4.1 Newry is the largest urban area in the south of Northern Ireland and
receives a significant amount of cross border trade due to its location
near the border with the Republic of Ireland. The city would be the
major hub for other towns within a reasonable distance, such as
Warrenpoint, Newcastle and Banbridge, as well as Dundalk in the
South. The Newry and Mourne area has an estimated 100,000 people
living within its administrative boundary.
9.4.2 The most recent
Experian data shows that
Newry has 5 wine bars/bars, 29
cafes, 77 restaurants and 44
public houses. In the town
centre these are found mostly
by the river and along Hill
Street. Cafes can also be found
in the Buttercrane Centre and
The Quays Shopping Centre
but these businesses cannot
provide pavement cafes as they
are situated indoors on private
premises.
9.4.3 An inspection around Newry showed
that, while some businesses were
providing tables and chairs for
customers, all provision was simple
and not entirely in character with the
surrounding area. A lot of the provision was also in areas that were not
entirely suitable for the placement of street furniture, either in narrow or
uneven footpaths.
47
9.4.4 As shown in the picture on the right, most
of the street furniture in Newry was basic
and aesthetically poor. However, there
were a number of areas within the city
which would lend themselves to further
development of café culture. There are a
number of public realm areas which
could be used for the provision of tables
and chairs in a more comfortable and
spacious environment. Given these
areas, some of which are shown in the
photographs below, there is definitely
scope for the further emergence of café
culture in the Newry City area.
9.4.5 As can be seen, these areas are
much more accessible and suited to
pavement cafes and some businesses
have begun to take advantage of this,
as in the top left photo. However,
currently use of these areas for cafes is
limited. Consideration could be given to
encouraging development of cafes and
similar businesses in this area as it is
well suited to outdoor provision.
48
Considered As Having Emerging Café Culture - BALLYMENA
9.5.1 Ballymena is the largest town in the Antrim area and would be the main
service centre for the region. However, due to its location, Ballymena would
not receive a significant amount of trade from outlying towns. Most recent
estimates show the council area having a population of approximately 64,000.
9.5.2 From the Experian data, the
Ballymena area has 32 cafes, 58
restaurants and 32 public houses. The
majority of the cafes in the town centre
are in and around the Church
Street/Wellington Street area and the
Tower Centre.
9.5.3 While Ballymena has some examples of café culture, there is some
scope for further development, in particular on the pedestrianised area
behind the Tower Centre shown in the photo below. However,
development would be difficult in other parts of the town given the
current layout and existing public realm. Church Street in particular is
very narrow, the road is one lane and footpaths are tight and uneven.
The town has no apparent identifiable “zones” of common services.
Greendale Street, Behind the Tower Centre, Ballymena
49
Considered As Having No Café Culture - ENNISKILLEN
9.6.1 The two towns considered as having no café culture both have the
fewest cafes out of the six case study towns. Enniskillen is the main town in
the Fermanagh Council area and has a large number of tourists pass through
it annually due to its proximity to Lough Erne. Therefore, there is a definite
potential for the development of café culture in the area, given the right
infrastructure.
9.6.2 The latest figures show the
Fermanagh area to have a population
of just over 60,000. However, tourism
figures show 185,400 overnight stays in
2007.
9.6.3 Enniskillen currently has 3
bars/wine bars, 16 cafes, 57
restaurants and 40 public houses.
Within the town centre, the majority of
establishments are located along the
main central street from East Bridge
Street, through Townhall Street, High
Street and Darling Street. However, as
can be seen below, the public realm
does not lend itself to pavement cafes.
As the photos below show, footpaths
are narrow and uneven, the street itself
is narrow and the few cafes that have
provided facilities have put tables and
chairs in their doorways or in areas that could cause blockages for prams and
wheelchairs and cause issues for the elderly and disabled.
50
9.6.4 Enniskillen certainly has the visitor numbers to support café culture
development. A site visit to the town it was also apparent that, given
the correct public realm planning and development, there are spaces in
the town that could be changed from their current use into areas that
could support outdoor dining and socialising.
Car Park, Wellington Road, Enniskillen
High Street, Enniskillen
9.6.5 Another area to improve the potential for pavement cafes is at least
partial pedestrianisation of the main through route of the town. There is
currently a one way system and, as shown on the right above, cars
park on both sides of the street. If this parking was reduced to one side
and footpaths widened, the opportunity to place pavement furniture
would increase. This might also encourage drivers to park in the car
parks at Wellington Street.
51
Considered As Having No Café Culture - BALLYMONEY
9.7.1 Ballymoney’s position near to Coleraine means it is not seen as a main
town in the area. It is also not considered a tourist destination in
comparison to other sites on the North Coast (apart from mid May
during the North West motorcycle races). Therefore the town is quite
small and lacks any major high-street brands.
9.7.2 Despite being a small town,
the area is served by its own council,
Ballymoney Borough Council, which
has an estimated population of
around 30,000. This makes it the
second smallest council area in
terms of population in Northern
Ireland.
9.7.3 Ballymoney has the least
amount of businesses of any of the
case study towns. There are 12
cafes, 11 restaurants and 10 public
houses in the latest data held by
ASU.
9.7.4 The town centre is consists of
one main thoroughfare, High Street.
The south end of the street is
located on a slope but the north end
is relatively flat and pavements are
wide enough to provide for furniture.
Indeed some public realm works have been undertaken with improved
footpaths and some seating being installed.
9.7.5 However, even with these
improved areas, as can be seen
on the right, the hill in the town
makes the provision of tables
difficult. If café culture were to be
established in the town centre,
the most likely place is on High
52
Street, between Church Street and Charles Street. On this stretch, the
road is wider and flatter and there are already
potential sites where pavement cafes could be located.
9.7.6 While the following photograph shows no street furniture, the café on
the corner does provide simple tables and chairs when it feels it is
appropriate (generally when the weather is good). However, while
perhaps being one of the best locations in
the town, it is also one of the busier
junctions with a steady flow of traffic. This is
one factor that consistently arises when
discussing negative elements of pavement
cafes. Given the current width of the road
and footpaths however, partial
pedestrianisation of this one way street is
something that could be considered.
53
CONCLUSIONS
54
In summary, from the information presented above, the following conclusions
can be drawn:
10.1
Overall, the positive effects associated with coffee and café culture are
seen to outweigh the perceived negatives.
10.2
Despite some finer differences in the detail between councils in
England, terms and conditions are generally similar in intent and
implementation.
10.3
Legislation in England is within the Highways Act but licensing is
administered by local councils. Consideration should be given to which
bodies would control licensing in Northern Ireland.
10.4
There is confusion between businesses in different council areas in
Northern Ireland concerning legislation. A common, clear and
transparent legislative framework is required.
10.5
In part, this clarity can be achieved by cross-departmental working and
consensus in moving forward. DSD should liaise closely with Roads
Service in the development of any legislation to ensure buy-in and
determine ownership of future movements of legislation.
10.6
All town centre managers and development officers that were
interviewed were keen to see café culture developed in their towns.
Resistance was cited at council level in some instances.
10.7
The majority of businesses replying to the survey issued were in favour
of the development of café culture and pavement cafes in the future.
10.8
Improved public realm and civic space is important to encourage and
promote the growth of café culture.
10.9
Pavement cafes are already numerous in towns and cities across
Northern Ireland and the opportunity exists to develop the sector
uniformly and provide a revenue stream through licensing.
55
ANNEXES
56
ANNEX A – Project Plan
Stage
1
Action
Time Scale
Desktop Research
Gathering appropriate literature in relation to Café
Culture, with specific reference to health benefits &
best practice
2
Ongoing
Establish Appropriate Methodology
Interview Town Centre Managers for main towns in
each District Council in NI, to establish the level of
Café Culture in each town
Categorise town as No Café Culture; Immerging
Café Culture; Definite Café Culture
Jan - Feb
From each of these categories select a few towns to
base research on
3
Data Capture
Surveying Businesses in the towns to gauge impact
that café culture has where it exists; the impact it
could have if it did exist
4
Mar - Apr
Results
Document detailing all results from desktop research
and fieldwork will be provided. Interim results will be
provided where appropriate throughout the project
57
End May
ANNEX B – English Local Authority Regulations Used in
Review
Bradford Metropolitan District Council
Calderdale Metropolitan District Council
Chorley Council
Herefordshire Council
Lincolnshire County Council
Liverpool City Council
Nottingham City Council
Preston City Council
Reading Borough Council
St. Helens Council
Surrey County Council
Tameside Metropolitan Borough Council
Taunton Deane Borough Council
Warrington Borough Council
Wigan Council
Wirral Metropolitan Borough Council
58
ANNEX C – Licence Fees in Selected Council Areas in
England
Council
Tameside
New Licence
150
Renewal
100
Surrey
434
300
Preston
296
296
Calderdale
206 if open to 7pm, 309 if open beyond 7pm
Chorley
280.50
230.50
Nottingham
300
150
St. Helens
100
100
Taunton Deane
Warrington
New from £540 if <10 m2, up to £1000 if >40 m2.
Renewal from £340 if <10 m2, up to £800 if >40 m2.
650
450
Wigan
250 if < 10m2, 400 if > 10m2 (licence is for two years)
Lincolnshire County Council operates fees depending on the number of
people catered for. For less than ten people, fees are £50 or £10 to renew, 10
to 25 people licences cost £150 or £15 to renew and over 25 people costs
£500 and £50 to renew.
59
ANNEX D – Potential Pavement Tables and Chairs Location in
Belfast
60
ANNEX E– Potential Pavement Tables and Chairs Location in
Northern Ireland
61
ANNEX F - Email requesting interview
“Analytical Services Unit has been commissioned by the Department for Social
Development's Social Policy Unit to research the existence (and the potential for expansion)
of café culture in Northern Ireland.
For the purposes of this project we are defining café culture specifically as pavement cafes.
As a starting point we would like to meet to discuss Café Culture in the areas you have
responsibility for. The meeting would be short, last no more than 30 minutes and would cover
the following areas:
1. An overview of the areas you have responsibility for,
2. Existence, or otherwise, of Café Culture in your area,
3. Attitudes towards Café Culture in your area,
4. The perceived benefits of café culture for your area.
I will be call in the coming days to arrange a convenient meeting time.”
62
ANNEX G – Town Centre Manager Questionnaire
Pre-amble
1. What geographical area do you have responsibility for?
2. Would you have a business register for the area- would it be possible
to share this?
3. Are there any pavement cafes in your area?
If yes — where are they (go to Q4)
If no — where are they (Go to Q7)
4. If there are pavement cafes in the area
a. how long have they been established?
b. what were the drivers behind their creation?
5. Is there seasonality to the pavement cafes?
a. What would their opening hours be?
b. what type of businesses would they be?
6. Is the pavement café on their property; is the structure temporary, semi
permanent or permanent?
7. Would you as a dev officer/TCM encourage the development of
pavement cafes?
8. Why would you encourage/discourage –
a. what are the specific benefits/problems you envisage?
b. What could DSD do to address these issues?
9. What are the attitudes of businesses in the area to pavement cafes;
(this would include those premises wishing to develop an area or
businesses affected by the pavement cafes in existence)
10. Have you received comments (positive or negative) from the public
regarding pavement cafes? (what type of comments- type of
development, rules/legislation etc.)
11. Given our remit to investigate the prevalence/existence of /attitudes to
Café Culture in Northern Ireland is there any additional comments that
you would like to make?
63
ANNEX H – Business Questionnaire Information Leaflet
Analytical Services Unit within the Department for Social Development is carrying out
a survey of hospitality businesses in your area during April 2010 on behalf of DSD’s
Social Policy Unit (SPU).
WHAT IS THE SURVEY ABOUT?
The survey will ask about provision of pavement café facilities and the
opinions of businesses towards café culture. For the purposes of this
questionnaire, we are defining café culture specifically as pavement cafes, that
is, the placement of tables and chairs on the footpath or other such area at the
front of your business premises, for use by customers of your business.
WILL MY NAME BE USED?
The questionnaire is completely confidential and does not ask for your name.
No-one will know what views you have expressed and all results will be
presented as overall views. Therefore, please be as open as possible in your
answers.
WHAT WILL THE RESULTS BE USED FOR?
Your answers will help assess the current prevalence of café culture and ensure the
views of users are taken onboard in relation to any future development plans
regarding cafe culture.
WHAT HAPPENS NEXT?
Please post back survey in the envelope provided by Friday 7th May 2010.
The more businesses who take part in the survey, the better understanding we shall
have of the issues affecting you.
If you have any further queries please contact:
Michael Thompson
Analytical Services Unit
Department for Social Development
Tel: 028 90 819942
64
ANNEX I – Business Questionnaire
Café Culture Questionnaire
Please give an answer to ALL questions which apply to your business.
Q1
What town/village are you located in?
__________________________________________________
Q2
Q3
Q4
Q5
Which of the following best describes your
business?
Cafe
1
Restaurant
2
Pub
3
Bar / Wine Bar
4
(Circle
only one)
Do you provide pavement café facilities for your
customers?
Yes - Go to Q4
1
No - Go to Q9
2
How long has your business been providing
pavement café facilities?
Less than six months
1
Less than one year
2
Between 1 and 2 years
3
Between 2 and 3 years
4
Between 3 and 5 years
5
6 years or more
6
(Circle
only one)
What were the main reasons that led you to provide
these facilities?
The smoking ban
1
Improved public facilities and surroundings
2
A business decision
3
65
(Circle
only one)
(Circle all
that
apply)
Q6
What are your opening hours?
__________________________________________________
__________________________________________________
Q7
Do you provide pavement cafes facilities all year
round?
Yes – all year round
1
Only for the summer season
2
Other (please specify)
3
(Circle
only one)
______________________
______________________
______________________
Q8
Do your pavement café facilities extend beyond
tables and chairs?
Barriers / Fencing
1
Patio heaters
2
Umbrellas
3
Other
4
(Circle all
that
apply)
______________________
______________________
______________________
Q9
Q10
Would providing pavement cafes facilities be
something you may consider in the future?
Yes
1
No
2
Maybe
3
Overall, how keen would you be to see an expansion
of café culture in your area?
Very Much
Not At All
In Favour______________________________In Favour
1
2
3
4
5
67
(Circle
only one)
(Circle
only one)
Q11
Are there any benefits you envisage / have
encountered with providing pavement café / café
culture facilities?
_______________________________________
_______________________________________
_______________________________________
_______________________________________
_______________________________________
Q12
Are there any issues you envisage / have
encountered with providing pavement café / café
culture facilities?
_______________________________________
_______________________________________
_______________________________________
_______________________________________
_______________________________________
Q13
As a government department, what could DSD do to
address any issues identified in Q12?
_______________________________________
_______________________________________
_______________________________________
_______________________________________
_______________________________________
Q14
What are the general attitudes of businesses in the
area to pavement cafes that you are aware of (if
any)?
_______________________________________
_______________________________________
_______________________________________
_______________________________________
_______________________________________
68
Q15
Given our remit to investigate the prevalence;
existence of and attitudes to Café Culture in
Northern Ireland are there any additional comments
that you would like to make?
_______________________________________
_______________________________________
_______________________________________
_______________________________________
_______________________________________
Thank you for your time.
Please return this survey in the envelope provided.
The closing date is 7th MAY 2010
Your response will remain strictly confidential and no individual
business will be identifiable from the results of this survey.
69
ANNEX J – Business Questionnaire Non-Response Analysis
Of the 954 surveys issued, 93 were returned ‘not at this address’, leaving an
effective sample of 861. Of these 737 businesses did not respond, a further
2 were not included in the analysis due to being incomplete or incorrectly
completed, and 122 returned the survey complete.
This meant the total response rate from the survey was 14.2%, which is
normal for a postal survey.
Total Sample
Returned ‘Not at this Address’
Number
954
93
Percentage
100
9.7
861
122
2
737
100
14.2
0.2
85.6
Effective Sample
of which
Returned Complete
Returned Unusable
Not Returned
The non-responses were as follows:
Café
Retaurant
Public House
Bar / Wine Bar
Not Returned
Number
Percentage
423
57.4
125
17.0
186
25.2
3
0.4
70
Not At This Address
Number
Percentage
66
71.0
17
18.3
9
9.7
1
1.1
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