MIDDLESBROUGH COUNCIL
EXECUTIVE REPORT
Western Gateway (Cannon Park) Masterplan
Executive Member for Regeneration and Economic Development –
Councillor Charles Rooney
Executive Director of Neighbourhood and Communities – Kevin Parkes
23rd May 2013
PURPOSE OF THE REPORT
1.
This report provides the Executive with an update on the Western Gateway scheme. The
report gives the background to the proposals for redevelopment at Cannon Park,
highlights details of the consultations, changes in circumstances and recommends
revisions to the draft masterplan, including investment in the site.
SUMMARY OF RECOMMENDATIONS
2.
It is recommended that Executive endorses:
a) the revised masterplan for the Western Gateway, as set out in this report;
b) that £200,000 of investment is implemented in the environment of the Council owned
business units and the renewal of leases of these premises up to 2018; and,
c) the renewal of the Development Agreement for Barker and Stonehouse on the land
west of the Cannon Park gasholders for a period up to two years following the
removal of the gas holders.
IF THIS IS A KEY DECISION WHICH KEY DECISION TEST APPLIES?
3.
It is over the financial threshold (£150,000)
It has a significant impact on 2 or more wards
Non Key

DECISION IMPLEMENTATION DEADLINE
4.
For the purposes of the scrutiny call in procedure this report is
Non-urgent
Urgent report

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BACKGROUND AND EXTERNAL CONSULTATION
5.
There is a long history of exploration of retail development in the Cannon Park area
going back at least 12 years.
6.
A vision for Cannon Park and the associated areas (known as the Western Gateway)
was articulated in the Local Development Framework proposals, which were adopted by
the Council in 2008-9, following a Public Inquiry. These proposals allowed for additional
retail provision at Cannon Park and allocated the site as an extension of the town centre.
The Regeneration DPD (2009) allocates the majority of the eastern section of Cannon
Park into the Town Centre Retail Sector, with open A1 retailing permitted. The remainder
of the site is allocated as Cannon Park Sector, split into Cannon Park West and Cannon
Park Central. The provision of bulky goods complementary to the retail sector will be
permitted. Plan A illustrates the allocation.
7.
More detailed proposals for the delivery for Western Gateway were contained within the
draft Supplementary Planning Document (SPD), which was approved by the Executive
on 27th March 2012 and subject to a public consultation exercise in Spring 2012. The
purpose of the draft SPD was to both demonstrate how the area could be redeveloped
and what infrastructure would be required to facilitate the proposals.
8.
The draft SPD showed the creation of a new retail extension to the town centre, with a
large format superstore to be built at the eastern end of Cannon Park, bulky goods
retailing to the west of the site, a new Barker and Stonehouse store and the potential for
the redevelopment of the existing Sainsbury’s site at Wilson Street. It showed that over
the longer term the site could be wholly redeveloped for retail uses but only if sufficient
demand/need existed and it was not to the significant detriment of the established town
centre.
9.
Many responses were received during the draft SPD consultation, some in support of the
plans but others raising concerns about the proposals. The vast majority of comments
supported the view that Cannon Park should be redeveloped in some form. Appendix 1
provides a summary of the responses.
10.
In summary, the category of responses were detailed as below
a) In support
i. a prominent site which needs upgrading/redeveloping;
ii. sustainable location that uses brownfield land;
iii. town centre needs enhanced superstore and additional retailing in line with
capacity. Some specific support for bulky goods retailing;
iv. will create employment;
v. will enhance Middlesbrough’s image;
vi. will attract more shoppers to Middlesbrough; and,
vii. support for the overall vision (all land-owners at the site and a majority of
residents).
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b) Objections
i. Context – SPD lacks spatial content and is not policy compliant.
ii. Nature and extent of proposed retail provision.
1.
inadequate/out-of-date evidence base in relation to retail capacity;
2.
impact on vitality and viability of established town centre is not discussed or
considered;
3.
challenges currently facing established town centre are not taken into
account;
4.
potential for established town centre to accommodate growth is not
considered;
5.
proposals will have major adverse impact on the town centre, particular
concern in regard to volume of proposed comparison floor space;
6.
demand/capacity for retail floorspace is over-estimated;
7.
A1 retail provision will cause trade displacement and relocations to
detriment of town centre;
8.
potential for linked trips is overstated – western Cannon Park will be
discrete destination;
9.
restriction to bulky goods cannot be guaranteed/sustained; and
10. relocations likely from Portrack Lane with potential for change to open A1 at
Portrack Lane.
iii. Other concerns.
11.
1.
closure of Newport Road and subsequent loss of passing trade;
2.
potential increase in traffic congestion;
3.
development scheme is not commercially viable;
4.
evidence base is not explicit and has not been made available;
5.
loss of existing businesses;
6.
loss of employment land;
7.
disruption from development; and
8.
relocation costs, availability of alternative premises and uncertainty faced
by businesses.
In summary, the concerns raised above were primarily associated with the perceived
impact that the full redevelopment of the site could have on the established town centre,
particularly in the current economic climate and the difficult trading conditions that exist.
The amount of, and type of, floorspace proposed was also of concern and queries were
raised about the quality of the evidence base. Impact on existing businesses, particularly
the Council’s industrial unit tenants and the uncertainty surrounding their future was
another area of concern raised by consultees. The closure of Newport Road, to through
traffic was not supported by all.
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12.
In response to specific concerns primarily from the Chamber of Commerce and the
owners of the town’s shopping centres, regarding the validity of the retail information
used to support the production of the draft SPD, the Council commissioned retail
consultants White Young Green (WYG) to update the retail capacity information. The
WYG report showed that there was still a requirement in the town for an additional
supermarket and that there was an under provision of bulky goods retailing. This report
was made available in January 2013 and comments were invited from businesses,
retailers and the public.
STRATEGIC CONSIDERATIONS
13.
In light of the concerns expressed through the SPD consultation and recent trends in the
retail business, a review of the Western Gateway proposals has been undertaken. This
has focused on the wider strategic context that impact on the scheme and the issues
associated with deliverability.
Changes in the retail economy – national and local
14.
Since the economic downturn the retail sector has been undergoing radical change,
epitomised by the failure of a large number of retail chains that are changing the face of
both the high street and out of centre retail parks. This has included the demise of the
likes of: Woolworths; Jessops; HMV; Clinton Cards; JJB; and, Focus DIY, amongst many
others. Trading conditions are difficult and unless there is a major change in the
economic prospects, nationally and locally, there are likely to be further business failures
on the high streets.
15.
The market conditions have not only been influenced by difficult economic circumstances
but also changes in consumers’ shopping habits. There has been a rise in online
shopping, which has consequential impacts on the volume of trade being undertaken
directly in stores.
16.
Furthermore, and more recently, there has been change in the business plans and
formats of major supermarket chains. As an example, Tesco announced in late 2012, its
withdrawal from much of its ambitious national programme for new superstore
development. Other companies, such as Asda, have begun to focus on new smaller
formats.
17.
The challenges to retail businesses has become much more apparent in the past 12
months and must be taken into consideration in any future plans for accommodating
future retail development in the town.
18.
The Council’s position has always been clear, in aspiring to support the future growth
and development of the town centre. However, the Council must ensure that planning
strategy does not have adverse consequences on the vitality and viability of the existing
town centre. To this end, the Executive has considered a report entitled “Supporting the
Economy of Middlesbrough Town Centre”, which outlines the significant investment
made in recent times to support the vibrancy of the town centre, and further actions and
investments that are planned.
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Impacts and issues associated with Cannon Park
19.
A number of fundamental changes have occurred, some of which were beyond the
Council’s control, and consideration needs to be given to the following:
(a)
Retail demand – Supermarket
The provision of a new supermarket was key to the strategy for the delivery of
Cannon Park. The anticipated capital receipt from a new supermarket was
fundamental to ensuring that the infrastructure provision could be provided at the
site. WYG (see paragraph 12) have confirmed that there remains a need for a new
supermarket/convenience retail provision in the town to reduce residents’
requirements to travel elsewhere.
However, at the present time the supermarket chains are being less ambitious in
their building programmes and this has had a consequential wider impact on land
values of sites for new stores. Simply put, less demand for sites equates to the
devaluation of land for such uses and a reduction in costs towards required
infrastructure.
The supermarket chain that was interested in developing a store at Cannon Park
withdrew their interest in late 2012 and is now seeking to sell their assets on the
site.
(b)
Consequential impact on existing businesses on Cannon Park
A range of businesses currently operate in the Council owned industrial units,
containing a mix of national and independent trade counter retailers and other uses.
Additionally, there are two car franchises and the Royal Mail delivery office. The
proposals for Western Gateway have led to uncertainty for some businesses and
compromised their ability to plan for the future.
To progress wholesale redevelopment of the site, these business units will need to
be acquired and assisted to relocate elsewhere. A major concern is the impact this
could have on the businesses. Additionally, if businesses were relocated from the
site and redevelopment did not follow, this could expose the Council to major
reputational damage.
(c)
Gasholders – Health and Safety Consultation Zones
Since the development of the LDF proposals for Cannon Park, the HSE has
become much more risk averse, following the Buncefield disaster in the south of
England. As a result, redevelopment of the immediate area around the gasholders
on Cannon Park is subject to significant development restrictions and therefore is
distinctly less attractive to an increasingly risk adverse development industry.
The owners of the two gasholders, Northern Gas Network (NGN), have indicated
that the tanks will be removed and have secured the funding to do so, but this could
be as late as 2020. This in effect reduces the ability to develop land on this part of
the site successfully prior to this date.
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(d)
Complex delivery arrangements
The Cannon Park site is under many different leasehold and freehold interests, of
varying lengths, some of which are extensive. It is likely that acquiring all the land
at Cannon Park to facilitate redevelopment would be complex and disruptive to
existing businesses on the site.
In order to secure redevelopment, it would require the Council (or its contracted
partner) to assemble the entire site, including the relocation of existing business etc.
It would expose the Council to financial risk and there is also the probability of a
need for Compulsory Purchase Orders, which would be resource intensive and
present risks in respect of their potential success.
(e)
Costs of infrastructure and acquisitions
The costs of providing a comprehensive infrastructure solution, including access
arrangements, for Western Gateway are significant and are likely to be required at
an early phase of development. Additionally, acquisitions would also have to be
secured to enable the site to be made ready for redevelopment. Without
contractually securing developers and end users, this would expose the Council to
extensive risk if redevelopment were then not secured. Additionally, as highlighted
earlier in this report, the values of disposals of land to retailers is falling and,
therefore, brings into question whether the delivery of the proposals are affordable.
(f)
Town Centre impacts
Trading conditions in the town centre have deteriorated in the past 12 months and
the signs of the green shoots of recovery in the national economy and consumer
confidence do not appear imminent. The town has seen the recent demise of the
likes of Jessop’s and JJB. Whilst many vacated units are being re-let, there is no
disguising that this is a challenging period for the high street retailer. The Executive
has considered a report entitled “Vacant Council Owned Town Centre Properties”
that highlights the actions being taken to re-let units.
Conclusions
20.
Whilst there is an acknowledged need for further retail development in the town, as
identified by WYG, there are significant risks associated with the major and
comprehensive redevelopment of Western Gateway.
(a)
The scheme would require extensive upfront funding and therefore expose the
Council to major financial risk on acquisitions and infrastructure and there is no
certainty that costs would be recovered or indeed development secured.
(b)
The potential loss to the town of jobs and businesses that currently operate from
Cannon Park and the need for the latter to be relocated.
(c)
Uncertainty on whether there is the appetite from the retail industry to deliver a
scheme that would complement the town centre at this point in time.
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(d)
21.
In common with national trends the town centre (whilst relatively stable compared to
many comparators) is vulnerable to a loss of trade. The draft proposals for the
Western Gateway could cause risk to vitality and viability of the centre.
As a consequence, it is, therefore, concluded that the proposals for the draft masterplan
for the Western Gateway should be revised.
REVISIONS TO THE MASTERPLAN
22.
The Council has therefore sought to develop a revised masterplan, which better reflects
the current position outlined above. The revised proposal, illustrated on the attached
Plan B, splits Cannon Park into four zones, which are described below.
Retail Redevelopment Zone (East)
23.
This area includes the vacant former DIY store, the Royal Mail delivery office and a
poorly used Council car park. It is an area that would benefit from some form of
redevelopment. There have been negotiations with the other landowners and it is
considered that the assembly of the site to allow for comprehensive redevelopment is
going to be difficult.
24.
It is, therefore, proposed to retain the original LDF allocation for this part of the site,
which would allow for open A1 retail use. The Council would only use its land for any
scheme if it complements the town centre offer. Potentially, a modest food supermarket
could be accommodated in this zone. This site would come forward for development as
dictated by the market and would be potentially deliverable if property owners wish to sell
their land interests.
25.
An improved access from Newport Road, or a new access to the east of the existing
Renault dealership, may be required to facilitate additional retail traffic. If a
comprehensive scheme were to come forward the Council would consider whether an
eastern exit slip road directly on to the A66 from the site would be required as was
indicated in the draft SPD proposals.
Central Business Zone
26.
There are 45 Council owned industrial units located at Cannon Park Road, Cannon Park
Way and Bulmer Way, which employ several hundred people. There are an additional 14
private units at Newport Way. The site is conveniently located close to the town centre
and to the A66. The location of the businesses in close proximity to each other provides
clustering and complementary trade counter retail to other businesses on the site.
27.
The Council units are in a complicated leasehold arrangement of varying lengths and
would be difficult to redevelop whilst the gasholders remain. It is therefore proposed that
these units remain in-situ with all current occupiers offered five year lease renewals, up
to 2018. This will provide certainty for the businesses on site for that period of time.
28.
To support the trading environment of these businesses it is also proposed that a
refurbishment programme would be implemented throughout the estate, to improve the
overall environment. This would include resurfacing of Bulmer Way, relaying of paving
and the removal of planters, as well as new signage. It is estimated that this work will
cost the Council in the region of £200k. The funding for the work would be allocated from
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the Council’s capital programme. This investment would support viable lettings and
ensure that income from rents to the Council is maintained.
29.
The Cannon Park Way car park is currently used by Teesside University as a successful
park and ride operation. The contract with the University is currently renewed annually. It
is proposed that the consent be renewed for two more years. Should the site be required
for redevelopment during this period, alternative park and ride arrangements would be
found.
Bulky Goods Redevelopment Zone (West)
30.
This area of the site is in multiple ownership, with some well established, successful
businesses currently operating, such as Barker and Stonehouse and the Lookers car
dealership, which is planning to expand and invest in its operations, and has recently
acquired the majority of the leasehold interest at the former Fruit and Vegetable market
to enable this.
31.
However, there are also parts of this area that are vacant and provide poor quality
environments. There is, therefore, a need for appropriate redevelopment but the
gasholders present a major constraint.
32.
The gasholders are due to be removed as part of a national programme of works. Initial
discussions with NGN in this regard have indicated that the removal of the Cannon Park
gasholders could be programmed in 2017-2020 (although this is not confirmed).
33.
It is, therefore, proposed to retain the LDF proposals that would allow for bulky goods
redevelopment in this area (which could also include other related uses such as car
showrooms). However, it is acknowledged that any redevelopment is likely to be
significantly constrained until the gasholders are removed. If this area were to be
redeveloped, an additional access may need to be provided at Punch Street to the west
of the site with an in-only access off the A66 slip road.
Barker and Stonehouse
34.
Barker and Stonehouse have long indicated their intention to develop a major new
flagship store at the west of the site, and entered into a Development Agreement with the
Council on land to the west of the gasholders (see Plan C) in 1998. The Development
Agreement has subsequently been renewed on a number of occasions. The most recent
renewal was in 2010 and is due to expire at the end of August 2013. The Council’s
proposals for Cannon Park has resulted in Barker and Stonehouse suspending activity
on their own redevelopment plans, so as to ensure that their proposals were compatible
with the overall masterplan.
35.
As a consequence it is, therefore, deemed appropriate to allow Barker and Stonehouse
to renew the Development Agreement until such time as the gas holders are removed
and then be given two years to complete the redevelopment of the plot.
Wilson Street Site (Zone 4)
36.
The draft SPD proposed that if Sainsbury’s were to vacate their site at any time then the
Council would encourage its reuse for redevelopment that would add to the town centre.
This site is part of the long established town centre boundary as defined in the Council’s
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planning strategies. Any redevelopment would be required to link the main core of the
town centre into the Cannon Park area.
37.
It is proposed to retain the proposals in the draft SPD. The Council would encourage a
comprehensive redevelopment of the site and for this to include the Council owned car
parks.
Transportation proposals
38.
The revised proposals for the Western Gateway will require a different transport solution
to that originally reported to the Executive in March 2012.
39.
It is also no longer proposed to introduce bus priority measures on Newport Road as part
of the Tees Valley Bus Network Improvement (TVBNI) scheme. The revised proposals
will generate less peak time traffic and the road network will be able to work effectively
without the need to restrict general through traffic using Newport Road. Works to
Newport Interchange to improve bus journey times are planned to take place this year
funded by the TVBNI grant.
40.
The new transport proposals are those that would be required if the market were to bring
forward the development in the Retail Zone (East Phase) or Bulky Goods Retail Zone
(West Phase) proposed in the masterplan.
41.
If a proposal were received to provide a new retail development in the Retail Zone, it
would be necessary to improve the existing access from Newport Road or provide a new
access from Newport Road to the east of the existing Renault dealership, dependant on
the volume of additional traffic. The layout of the retail proposal may require the closure
of the existing Marsh Street access. If a comprehensive scheme were proposed,
including the provision of a new food supermarket, the Council would consider whether
an exit onto the westbound A66 slip road at Hartington Interchange is required.
42.
The revised masterplan supports appropriate development proposals in the Bulky Goods
Zone, albeit subject to the current restraints of the existing gasholders. If this area were
redeveloped, an additional access may need to be provided at Punch Street, to the west
of the site with the provision of an in-only access from the existing A66 slip road.
43.
The Wilson Street site is within the town centre boundary and any development in this
area must encourage connectivity between the town centre and Cannon Park. Vehicular
access will continue to be via Newport Road, but it is anticipated that volumes would be
reduced through lower levels of parking provision and the closure of the petrol station.
Thus, there may be an opportunity to reduce the road width to aid pedestrians.
44.
The provision of improved pedestrian routes between Wilson Street and Cannon Park
are key to achieving the desired integration of the sites. Improved crossing points at
Wilson Street and the junction of Newport Road and Hartington Road will be required,
along with improvements to the underpass under Hartington Road and that under the
A66, which links to the Zetland and Station Street car parks.
45.
Any new development proposals that come forward would be required to undertake a
comprehensive transport assessment to determine the impacts and the mitigation
measures required to offset any adverse impacts, as well as opportunities to improve
access for pedestrians.
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IMPACT ASSESSMENT (IA)
46.
An initial screening assessment has been completed to determine whether there would
be any negative impacts as a result of the recommendation that that the Executive
endorse the revised masterplan for the Western Gateway. The initial screening
assessment shows there would not be any negative impacts and is attached as Appendix
2.
OPTION APPRAISAL/RISK ASSESSMENT
47.
As stated previously in this report, the retail study undertaken by White Young Green
acknowledged that there is a need for further retail development in the town. The
Council, therefore, has two options:
a) Option 1 - Implement the proposals contained in the draft SPD.
b) Option 2 - Endorse the revised masterplan (Preferred Option).
48.
There are significant risks associated with Option 1, the comprehensive redevelopment
of Cannon Park, as proposed in the Draft SPD:
a) Financial risk – the project would require the Council to fund land acquisitions
and up front infrastructure provision.
There is no guarantee that future
development would be secured or that the Council’s expenditure would be
recovered.
b) Loss of jobs – the businesses that currently operate out of the Council’s industrial
units would have to be relocated and may choose to move outside of the town.
c) Retailer appetite – in the current financial climate, there is no guarantee that
there would be interest from retail industry to deliver a scheme that would
complement the town centre.
d) Town centre impact – the existing town centre is vulnerable to a loss of trade that
could be caused by the draft proposals for the Western Gateway.
49.
In recognition of the risks outlined above, and the strategic considerations outlined in
paragraphs 13 to 21, it is a recommendation of this report that the Executive endorse the
revised masterplan for the Western Gateway.
FINANCIAL, LEGAL AND WARD IMPLICATIONS
50.
Financial –The Risk Assessment section of this report highlights the financial risks that
have been taken into account when developing the revised masterplan, which better
reflects the current economic climate and minimises the Council’s financial exposure.
51.
The Council does, however, currently receive a substantial rental income from the 45
existing industrial units. This report recommends that the Executive endorse a £200k
refurbishment programme funded from the Capital Programme and the offer of lease
renewals to all current occupiers for a five year period up to 2018. This will provide
businesses with more certainty over their futures and increase confidence in the area.
52.
Ward Implications – Western Gateway is situated in the Gresham and Middlehaven
Wards. The potential considered redevelopment of the site will be beneficial in terms of
10
economic development, potential employment and environmental improvements, not just
in these wards but also for the wider Middlesbrough area.
53.
Legal Implications –Potential issues could arise with lease renewals for the industrial
units. These are not believed to be insurmountable and detailed discussions with
leaseholders will greatly reduce the likelihood of this.
CONSULTATION
54.
The revised masterplan has been influenced by the views expressed by stakeholders
during the draft SPD consultation process and as a consequence of the prevailing
economic climate, and represents a major change in thinking to that originally proposed.
55.
It is, therefore, proposed that the revised masterplan is subject to a further four week
period of consultation. The outcome of the consultation process will be reported back to
the Executive Member for Regeneration and Economic Development for a decision on
the adoption of the revised masterplan in July 2013.
RECOMMENDATIONS
56.
It is recommended that Executive endorses:
a) the revised masterplan for the Western Gateway, as set out in this report;
b) that £200,000 of investment is implemented in the environment of the Council owned
business units and the renewal of leases of these premises up 2018; and,
c) the renewal of the Development Agreement for Barker and Stonehouse on the land
west of the Cannon Park gasholders for a period up to two years following the
removal of the gas holders.
REASONS
57.
The above recommendations are supported by the following reason.
a) To ensure that Western Gateway is redeveloped in line with current market conditions
and that businesses are supported to succeed.
BACKGROUND PAPERS
The following background papers were used in the preparation of this report:
1. WYG – Middlesbrough Retail Capacity Update – January 2013
2. Executive Report 27th March 2012 – Western Gateway (Cannon Park) draft SPD
consultation
3. Western Gateway (Cannon Park) draft supplementary planning document (SPD), March
2012.
4. Middlesbrough Local Development Framework (LDF) Core Strategy (2008)
5. Middlesbrough Local Development Framework (LDF) Regeneration Development Plan
Document (2009)
AUTHOR: Kevin Parkes
TEL NO: 01642 729301
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______________________________________________________
Website: http://www.middlesbrough.gov.uk
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Plan A – Local Development Framework proposals at Western Gateway (Cannon Park)
13
Plan B - Revised masterplan
14
Plan C – Barker and Stonehouse Development Agreement land
15
Appendix 1 – Summary of Responses to draft SPD consultation – Spring 2012
Respondent
Support
/Object
Taylor Goodman
(12 Cannon Park Way)
Object?
Abbas Salahshouri
Direct Line Supplies
1,3, 5 Cannon Park Way
Support
John Davey
Norchem Distribution
9a Cannon Park Way
Object
Respondent Comment/
Suggested Change
Summary of response.
Suggested Change Accepted/Declined
The company is a specialist engineering firm for electric motor repairers. Concerns
regarding potential relocation costs. Do not wish to close the factory.
Revised proposals show Council tenants
contained within an Industrial Zone, with lease
renewal being offered until 2018, providing
businesses with more certainty. A programme
of improvement being implemented throughout
the estate.
Certain reservations in regards to
Revised proposals show Council tenants
 potential damage a relocation project will cause business location provides contained within an Industrial Zone, with lease
renewal being offered until 2018, providing
a lot of passing trade. This would be lost immediately.
 company not in position to financially duplicate the re-investment costs of businesses with more certainty. A programme
relocating and financing the required facilities to same standard. Would of improvement being implemented throughout
the estate.
immediately lose 15% of trade upon relocation away from current area.
 would like assurances as to what help the council will deliver for the
safeguarding of the employees jobs and reimbursement of the cost of
investments
Have moved premises previously due to Council regeneration initiatives and Revised proposals show Council tenants
concerned as to where could potentially be relocated to. Invested in units, told by contained within an Industrial Zone, with lease
Council inline units would not be affected by redevelopment proposals in 2009.
renewal being offered until 2018, providing
businesses with more certainty. A programme
Cosmetic work is required to units, would like current occupiers to be involved in of improvement being implemented throughout
future of site. Cannon Park is very successful.
the estate.
Concerns regarding
 Uncertainty faced by businesses due to redevelopment proposals
 MRS (2006) completed in 2006, pre recession.
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WYG Middlesbrough Retail Capacity Study
was revised in 2013.
Respondent
Support
/Object
Bedworld
Ian Marsh
Bulmer Way
Managing Director
Object
The Fire Centre
Ian Macrae
19 Bulmer Way
Support?
PW Flooring Solutions
Paul Warters
9 Cannon Park Road
Object
Cleveland Auto Service
John Weeks
Managing Director
Support
Respondent Comment/
Suggested Change
Summary of response.
Suggested Change Accepted/Declined
Concern regarding
Revised proposals show Council tenants
 No provision for small businesses on site, believes some businesses may contained within an Industrial Zone, with lease
renewal being offered until 2018, providing
struggle to find suitable relocation premises
businesses with more certainty. A programme
 Effect on established town centre
of improvement being implemented throughout
Cannon Park is in need of a facelift but this should be done sympathetically to the the estate.
existing businesses.
 Cannon Park is unique,
Believes the proposals could be of benefit to the business. Interested in a new unit Revised proposals show Council tenants
depending on costs.
contained within an Industrial Zone, with lease
renewal being offered until 2018, providing
Has concerns about being relocated in the future and short term disruption during businesses with more certainty. A programme
phase 1.
of improvement being implemented throughout
the estate.
Totally opposed to the development. Cleveland Centre should be demolished and Revised proposals show Council tenants
Captain Cook Square continued.
contained within an Industrial Zone, with lease
renewal being offered until 2018, providing
businesses with more certainty. A programme
of improvement being implemented throughout
the estate.
A speedy development would be advantageous.
Revised proposals show Council tenants
Concerns regarding passing trade along Newport Road.
contained within an Industrial Zone, with lease
Look towards new signage on Newport Road.
renewal being offered until 2018, providing
businesses with more certainty. A programme
of improvement being implemented throughout
the estate.
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Respondent
Tyre Exchange
Geoff Smith
(12-14 Cannon Park Road)
Support
/Object
Object?
Respondent Comment/
Suggested Change
Summary of response.
Suggested Change Accepted/Declined
Agrees that the area needs to modernise and improve and that redevelopment is Revised proposals show Council tenants
required on the Royal Mail land, ex B+Q store and Sainsbury’s. (eastern areas)
contained within an Industrial Zone, with lease
renewal being offered until 2018, providing
Believes Cannon Park is one of the best in the Council’s property portfolio with a businesses with more certainty. A programme
vibrant business community. Little investment in the area in last 16yrs by Council.
of improvement being implemented throughout
the estate.
Invested in premises since 2008 on Council advice that the units would not be part of
redevelopment.
Concerns regarding
 Impact on established town centre
 Jobs created would not be full time
 Closure of Newport Road
Greco Brothers
Anthony Rovardi
Managing Director
Volkswagen
??
Would like to purchase / lease some land to design and build a retail and wholesale
tyre outlet. The Council supported the company at its origins and the company has
grown into a successful business and invested in the business, staff and local area.
Concerned about access to Newport Roundabout from Lamport Street.
Newport Road to remain open.
Concerned regarding proposals for redevelopment of site
Welcome efforts to upgrade the area and would embrace any suitable scheme which
will attract new investment but retain and allow further growth from businesses in the
locality.
Dan Thorpe
Editor of BBC Tees
Would like to be part of the redevelopment proposals.
Wishes to be kept informed.
18
No redevelopment proposals suggested for
Lookers site. Council will support dealership to
invest in site.
Respondent
Decathlon
Support
/Object
Support
Respondent Comment/
Suggested Change
Summary of response.
Western Gateway provides an ideal opportunity for a new Decathlon store that can Provision for Bulky goods retailing remains at
help ensure the sustained delivery and growth of the Western Gateway as well as the western end of the site.
enhancing the vitality and viability of the existing town centre area.

St James Securities / Barker Support
and Stonehouse
Suggested Change Accepted/Declined
Welcome the opportunity to meet further with the Council to explain our
concept in greater detail.
 agree that large space users (LSU) are vital to initiate the expression of
interest to the future development phases
 need to consider the uses other than predominantly retail that will attract
visitors to this retail development and importantly increase dwell time (i.e.
small recreational playground areas for children (part of our concept), cafes,
restaurants, outdoor sitting / eating areas, cycle ways to the city centre).
 agree that the additional access points proposed off the A66 will have a
positive effect on traffic movements
Support the overall strategy of the Masterplan for extending Middlesbrough
Cannon Park will still be part of a town centre
Town Centre into Cannon Park to enable it to maintain its role as the prime retail extension area as detailed in the LDF.
centre in the Tees Valley Region.
The timescales for the proposals have been
Concerns regarding the
extended and will only be brought forward
when market demand arises. Retail Impact
 Viability and deliverability of the Masterplan;
Assessments would be required as part of any
 Controls on retail to bulky goods at Cannon Park West;
planning application.
 Site definitions and phasing approach;
 Funding of infrastructure; and
 Design of the proposal.
19
Respondent
Tesco
Support
/Object
Support
Respondent Comment/
Suggested Change
Summary of response.
Suggested Change Accepted/Declined
Support the overarching objective which aims to facilitate the development of a Supermarket site to be allocated in Retail
sustainable extension to the town centre.
Zone, providing more flexibility.



Welcome the acknowledgement in the masterplan that capacity projections
formed in the MRS and documented in the CS DPD should not restrict the
proposed quantum of accommodation articulated in the Western Gateway
masterplan.
Support supermarket use on site but suggest additional flexibility in case a
supermarket does not come forward.
Support that the development illustration is not intended to be prescriptive of
the built form required but suggest more generic terminology and less detail
in relation to design guidance.
Funding secured by NGN for removal of
gasholders by 2020.
A66 exit slip only to be implemented if traffic
requirements show it is necessary.
Would like to see further information / costs regarding
 current servicing and utilities constraints on site and more explicit guidance
on how removal of gasholders will be paid for
 costs / locations of reproviding car parking
 the Traffic Network Modelling results and reasoned justification for the
highway proposals, in particular the A66 exit only slip road
 explicit guidance on developer contributions
Sainsbury
Royal Mail
Support
Support
Over reliance on retail.
Supports vision for a new retail quarter.
Provision for a retail zone on the eastern end
of Cannon Park.
Redevelopment of the existing Sainsbury’s store at Wilson Street is entirely
dependent on the delivery of a new flagship Sainsbury’s store elsewhere in the town. Existing Sainsbury’s site to be allocated for
redevelopment, dependent upon Sainsbury’s
vacating the site.
No current plans to relocate delivery office
Site allocated as part of retail zone. A
developer could acquire the site for
redevelopment but the Council will not be
leading on this process.
20
Respondent
VALAD Property Group
Pendragon
Renault Garage
North East Chamber
Commerce (NECC)
Support
/Object
Support
of Generally
supportive
Respondent Comment/
Suggested Change
Summary of response.
Suggested Change Accepted/Declined
VALAD generally support and welcome the overall aims of the draft SPD. However, VALAD site is allocated as part of industrial
concerns about the overarching principles in the draft SPD such as phasing, land zone and will not be subject to redevelopment
uses and developer contributions and how they will relate to the future development within the next 5 years as a minimum.
of their site. In particular, Valad request that the removal of the gasholders is
brought forward to Phase 1 and higher value after-uses are allowed to ensure
viability.
The Masterplan should acknowledge that the operational requirements of existing
industrial buildings will not be unduly hindered during the implementation of the Plan
Concerns regarding the possible consequences of redevelopment in terms of their
ongoing business operation.
Accept there are factors beyond the control of the Council where doing nothing is not
an option such as the Royal Mail sorting office and the desire of Sainsbury’s to
relocate to another area and accept that some development will be necessary on
those two sites.
Concerns regarding
 Retail study – business case based on WYG 2006
 Phase 1 retail development

– accept some development however not convinced enough work has
been done to establish market for A1 retail

- provision of comparison goods in a superstore (store restricted to RME /
derelict warehouse site)
 Phase 2 – NECC cannot support. Evidence base and fear Council will come
under pressure in future to relax A1 control. Disruption to existing
businesses on site and likely to lead to job losses amongst skilled workers.
Newport Road closure – pressure on other routes and A66, Hartington interchange.
No plans for redevelopment of this site.
Revised proposals show Council tenants
contained within an Industrial Zone, with lease
renewal being offered until 2018, providing
businesses with more certainty. A programme
of improvement being implemented throughout
the estate.
WYG Middlesbrough Retail Capacity Study
was revised in 2013 which identifies a need for
a new superstore and bulky goods retailing.
The timescales for the proposals have been
extended and will only be brought forward
when market demand arises. Retail Impact
Assessments would be required as part of any
planning application.
Timetable for removal of gasholders will be
integral to the bringing forward of the western
part of the site for redevelopment.
Newport Road to remain open.
21
Respondent
Dodds Brown
Contract Experts Limited
Dundas Arcade
Support
/Object
Object
Respondent Comment/
Suggested Change
Summary of response.
Suggested Change Accepted/Declined
Share aspirations to enhance town centre, have significant concerns regarding Timescales for delivery of the site to be
content, form and scale of proposals. Believe proposals in current form will have revised.
detrimental impact on town centre.
WYG Middlesbrough Retail Capacity Study
Concerns regarding
was revised in 2013, which identifies a need
for a new superstore and bulky goods retailing.
 SPD lacks geographical context
 SPD does not consider challenges faced by existing town centre (50% of
Revised proposals show Council tenants
lease renewals due to expire in next 3 years)
contained within an Industrial Zone, with lease
 Demand for retail floorspace
renewal being offered until 2018, providing
 Capacity for additional floorspace
 Blight and uncertainty due to Phase 2 proposals –existing business uses businesses with more certainty. A programme
of improvement being implemented throughout
should be retained
 Proposed superstore (but accept that there is an under-representation of the estate. Retail zone at far east of site. This
reduces the available space for development.
grocery shopping in the town.)
 Open A1 units – (supportive of design principles.) Oppose open A1 retail
Timetable for removal of gasholders will be
west of Hartington Road
integral to the bringing forward of the western
 Bulky goods – accept this is required (subject to updated data on retailer
part of the site for redevelopment.
demand and capacity levels) but would prefer to see at eastern end of
Cannon Park, close to town centre.
22
Respondent
Support
/Object
Cleveland Shopping Centre Object
on behalf of
 F+C REIT Asset
Management (managers of
Cleveland Centre)
 Ignis Asset Management
(managers of Hill Street
Shopping Centre)
 Hill Street Shopping Centre
 House of Fraser
 Henry Lax Ltd (owners of
Dundas Shopping Centre)
 Dundas Shopping Centre
 La
Salle
Investment
Management (managers of
Captain Cook Shopping
Centre)
 Captain Cook Shopping
Centre
Respondent Comment/
Suggested Change
Summary of response.
Suggested Change Accepted/Declined
Concerns about content and emerging form of proposals for Western Gateway, Cannon Park will still be part of a town centre
which would compete rather than complement the town centre.
extension area as detailed in the LDF.
Particular concerns regarding
 Draft SPD lacks spatial content
 Draft SPD is not policy compliant
 Over estimates capacity for additional floorspace
 Over estimates demand for additional floorspace
 Disregards any future development in the town centre
 No consideration for the vitality of existing retail core
 Development west of the superstore will not facilitate linked trips to existing
town centre
 Comparison goods offer (although development of an enhanced superstore
is supported)
23
The timescales for the proposals have been
extended and will only be brought forward
when market demand arises. Retail Impact
Assessments would be required as part of any
planning application.
Revised proposals show Council tenants
contained within an Industrial Zone, with lease
renewal being offered until 2018, providing
businesses with more certainty. A programme
of improvement being implemented throughout
the estate. Retail zone at far east of site. This
reduces the available space for development
Respondent
Support
/Object
Ignis asset management Object ?
on behalf of Phoenix Life
Ltd (owners of Hill Street
Centre)
Respondent Comment/
Suggested Change
Summary of response.
Suggested Change Accepted/Declined
Support aspirations to enhance the retail and service offer of the centre and improve Cannon Park will still be part of a town centre
its attractiveness.
extension area as detailed in the LDF.
Concerns about content and emerging form of proposals for Western Gateway, The timescales for the proposals have been
which would compete rather than complement the town centre.
extended and will only be brought forward
when market demand arises. Retail Impact
Particular concerns regarding
Assessments would be required as part of any
planning application.
 Draft SPD lacks spatial content
 Draft SPD is not policy compliant
Revised proposals show Council tenants
 Over estimates capacity for additional floorspace
contained within an Industrial Zone, with lease
 Over estimates demand for additional floorspace
 Development west of the superstore will not facilitate linked trips to existing renewal being offered until 2018, providing
businesses with more certainty. A programme
town centre
 Comparison goods offer (although development of an enhanced superstore of improvement being implemented throughout
the estate. Retail zone at far east of site. This
is supported)
reduces the available space for development
 Blight (?) for Western Gateway and existing town centre.
24
Respondent
Support
/Object
F and C Reit Asset Object
Management (Managers of
Cleveland Centre)
LIDL
Respondent Comment/
Suggested Change
Summary of response.

new and existing retailers can be accommodated in the town centre. Vacant
units are currently available
Concerns regarding
 Impact of recession
 Western Gateway proposals are a threat to town centre
 Shopping Centres have invested in the town centre
 comparison element of food stores impacting on town centres more so than
the internet. Accept conurbation is poorly served by food stores.
 Draft SPD not consistent with Development Plan Documents. Needs to
comply with NPPF
 Evidence base (Retail studies)
 Bulky goods restriction could be challenged
 Existing retailers relocating
Suggested Change Accepted/Declined
WYG Middlesbrough Retail Capacity Study
was revised in 2013, which identifies a need
for a new superstore and bulky goods retailing.
Cannon Park will still be part of a town centre
extension area as detailed in the LDF.
The timescales for the proposals have been
extended and will only be brought forward
when market demand arises. Retail Impact
Assessments would be required as part of any
planning application.
Revised proposals show Council tenants
contained within an Industrial Zone, with lease
renewal being offered until 2018, providing
businesses with more certainty. A programme
of improvement being implemented throughout
the estate. Retail zone at far east of site. This
reduces the available space for development
Welcomes development that retains expenditure and supports the town centre as a Newport Road to remain open to all traffic.
retail destination.
The timescales for the proposals have been
Concerns regarding
extended and will only be brought forward
 Potential for Western Gateway to have adverse impact on the stores trading when market demand arises. Retail Impact
Assessments would be required as part of any
performance
planning application.
 Masterplan fails to recognise Lidl
 Bus only section of Newport Road
Revised proposals show Council tenants
 Design approach / Considered frontages
contained within an Industrial Zone, with lease
renewal being offered until 2018, providing
businesses with more certainty. A programme
of improvement being implemented throughout
the estate. Retail zone at far east of site. This
reduces the available space for development
25
Respondent
House of Fraser
Support
/Object
Respondent Comment/
Suggested Change
Summary of response.
Support
the Concerns regarding
general
Compliance with
aspirations
 National Planning Policy Framework / Core Strategy / Regeneration DPD
 Evidence Base – Retail Studies
 Impact
 Phasing of development
 Sequential approach
 Linkage with the town centre
 Loss of employment land
 Transport assessment
 Screening for Sustainability Appraisal (SA) and Strategic Environmental
Assessment
Suggested Change Accepted/Declined
WYG Middlesbrough Retail Capacity Study
was revised in 2013, which identifies a need
for a new superstore and bulky goods retailing.
Cannon Park will still be part of a town centre
extension area as detailed in the LDF.
The timescales for the proposals have been
extended and will only be brought forward
when market demand arises. Retail Impact
Assessments would be required as part of any
planning application.
Revised proposals show Council tenants
contained within an Industrial Zone, with lease
renewal being offered until 2018, providing
businesses with more certainty. A programme
of improvement being implemented throughout
the estate. Retail zone at far east of site. This
reduces the available space for development
26
Respondent
Chris Brignall
Resident
Support
/Object
Object
Respondent Comment/
Suggested Change
Summary of response.
Concerns regarding
 Consultation on masterplan
 Evidence that the Western Gateway proposal is required
 Impact on existing town centre
Attraction of Teesside Park is free parking.
Suggested Change Accepted/Declined
6 week public consultation , longer than
required by Middlesbrough LDF Statement of
Community Involvement.
Evidence base for Local Development
Framework shows requirement for new
superstore and for additional bulky goods.
WYG Middlesbrough Retail Capacity Study
was revised in 2013, which identifies a need
for a new superstore and bulky goods retailing.
The timescales for the proposals have been
extended and will only be brought forward
when market demand arises. Retail Impact
Assessments would be required as part of any
planning application.
Charles Fowler
Object
Concerns regarding
 Existing decline in town centre, which is due to car parking charges and Evidence base for Local Development
Framework shows requirement for new
future decline due to Western Gateway proposals
superstore and for additional bulky goods.
 Relocation of existing businesses on Cannon Park
WYG Middlesbrough Retail Capacity Study
 Proposal is too late
was revised in 2013, which identifies a need
for a new superstore and bulky goods
retailing..
Revised proposals show Council tenants
contained within an Industrial Zone, with lease
renewal being offered until 2018, providing
businesses with more certainty. A programme
of improvement being implemented throughout
the estate. Retail zone at far east of site. This
reduces the available space for development
Mr C Narrainen
Support?
Supports highways proposals.
Would like to see more provision for cyclists and cyclist parking.
27
More detailed cycling information will be
contained within planning applications
Respondent
Robert Mullen
Resident
Support
/Object
Object
Ian Shannon
Resident
Support
Philip Yates
Resident
Object
Dr Graham Martin
Resident
Support
Respondent Comment/
Suggested Change
Summary of response.
Suggested Change Accepted/Declined
Town Centre already has sufficient square footage of retail space for the size of the
town.
Retail space between Hartington and Albert
Road is not in the Council’s ownership.
Better to substantially redesign and refurbish the existing retail space between
Hartington Road (existing Sainsbury outlet) and Albert Road
Cannon Park is allocated as an extension to
the town centre in the LDF. Evidence base for
Cannon Park should revert to a residential area
Local Development Framework shows
requirement for new superstore and for
Northern Gas could also be encouraged to contribute to the costs of removal of the additional bulky goods. WYG Middlesbrough
gasometers
Retail Capacity Study was revised in 2013,
which identifies a need for a new superstore
and bulky goods retailing.
Funding secured by NGN for removal of
gasholders by 2020.
No change required.
Looks good and will help invigorate area and Middlesbrough town centre in general.
Good example of making improved use of brownfield sites adjacent to the main
centre of the town and its good road, bus and rail links.
Preferable to the recent tendency for all developments (retail and residential) to be
pushed out to the already cramped suburbs which do not have the infrastructure (in
particular, roads and public transport) to support them.
Town does not need more retail.
Cannon Park is allocated as an extension to
The best use of this land would be an extension of the existing housing area for first the town centre in the LDF. Evidence base for
time buyers and to support industry and commerce.
Local Development Framework shows
requirement for new superstore and for
additional bulky goods. WYG Middlesbrough
Retail Capacity Study was revised in 2013,
which identifies a need for a new superstore
and bulky goods retailing.
Good idea although it is questionable whether there will be sufficient demand for the The timescales for the proposals have been
addition retail space
extended and will only be brought forward
when market demand arises. Retail Impact
Assessments would be required as part of any
planning application.
28
Respondent
Support
/Object
Respondent Comment/
Suggested Change
Summary of response.
Marilyn Wood
Resident
May affect the successful present shopping facilities already in that area
Kathryn Cawood
Resident
Joan Olley
Resident
Wishes to be kept informed
Chris Scott
Resident
Mr Akbar
Resident
Object
Support
Support
Wonderful plan, beautifully executed and well thought out but sadly 20 years too late.
Suggested Change Accepted/Declined
The timescales for the proposals have been
extended and will only be brought forward
when market demand arises. Retail Impact
Assessments would be required as part of any
planning application.
Concerns regarding
 Impact on established town centre
 Sainsbury’s is an asset, particularly for parking.
The timescales for the proposals have been
extended and will only be brought forward
when market demand arises. Retail Impact
Assessments would be required as part of any
planning application.
All roads into the town should be made welcoming and attractive (as in the Cannon
Park plan)
Concerned about noise and disruption but willing to put with this for wider benefits.
Sainsbury’s approached
redevelopment plan.
No change required.
A very good investment to Middlesbrough as a whole, will create jobs and add value
to Middlesbrough
No change required.
Council
with
the first impression Cannon Park gives is that it is a deprived area with full of poverty
hence giving Middlesbrough a negative image
Joyce Conley
Resident
Ann Pybus
Resident
Support
Will attract more people coming into Middlesbrough increasing the revenue
generated and also enhance chances of renting or selling my property on Hartington
Road.
In favour of anything that will improve the town.
No change required.
Object
Proposals are not necessary.
Concern
 regarding impact on established town centre.
 the scheme will lead to an increase in council tax
The timescales for the proposals have been
extended and will only be brought forward
when market demand arises. Retail Impact
Assessments would be required as part of any
planning application.
The scheme costs will be met by developers.
29
Respondent
Gerard Finn
Support
/Object
Support??
Respondent Comment/
Suggested Change
Summary of response.
Suggested Change Accepted/Declined
Would like to see
 stores to be recruited that take money out of Middlesbrough
 top quality design and easy access
 Sainsbury’s remain in the town.
 Waitrose to be approached
 An arena for concerts
No change required.
Lack of quality of superstores and expensive parking mean Middlesbrough residents
travel elsewhere.
Sainsbury’s approached
redevelopment proposals.
High quality design is proposed.
Aiming to attract stores not
represented in Middlesbrough.
currently
Council
with
Concern about Tesco dominance.
Waqas Amin
Doncaster
Support
Shaazad Hussain
Support
Great opportunity for Middlesbrough to think big, rare a town / city has so much
space for continuous development.
Cannon Park is an unappealing part of the town which looks like a run down area. Revised proposals show Council tenants
contained within an Industrial Zone, with lease
The whole area looks awful and the area is unappealing.
renewal being offered until 2018, providing
businesses with more certainty. A programme
It is very dull, needs some colour to brighten up the area.
of improvement being implemented throughout
the estate.
Cannon Park needs to be improved in a manner that allows ‘Boro’ to grow Revised proposals show Council tenants
creating benefits for the local community. A prestige and quality contained within an Industrial Zone, with lease
redevelopment that makes Middlesbrough the capital of the north.
renewal being offered until 2018, providing
businesses with more certainty. A programme
Cannon Park creates a negative perception of Middlesbrough . The scheme will of improvement being implemented throughout
benefit the local surrounding areas and the local residents on a whole.
the estate.
30
Respondent
Support
/Object
Cllr R Arundale
Kader Ward
Teesside University
Respondent Comment/
Suggested Change
Summary of response.
Suggested Change Accepted/Declined
Supports job creation but retail development must not pull custom from established The timescales for the proposals have been
town centre.
extended and will only be brought forward
when market demand arises. Retail Impact
Concerns regarding Newport Road closure to bus only.
Assessments would be required as part of any
planning application.
Relocation of gasholders, questions where will they be re-sited and the cost.
Believes they should be viewed in the same light as the Transporter and Newport Newport Road to remain open to all traffic.
Bridges.
Aiming to attract stores not currently
represented in Middlesbrough.
Broadly
supportive
Endorse proposal as strategy to bring investment to the town
Shares Council’s desire to “create a high quality arrival point to the town”.
Funding secured by NGN (who own the site)
for removal of gasholders by 2020 as part of a
national programme. Nationally NGN are
decommissioning gasholders and not building
new ones. Gas storage will be provided
underground.
Newport Road to remain open to all traffic.
The timescales for the proposals have been
extended and will only be brought forward
Welcome desire to keep University Park and Ride in operation. Without equivalent when market demand arises. Retail Impact
space in Cannon Park or local streets the University will face a problem attracting Assessments would be required as part of any
students and visitors to the University.
planning application
Concern regarding
 Traffic restrictions along Newport Road.
 If development on existing Sainsbury’s site is successful at expense of
independent retailers on Linthorpe Road.
 Bulky good relaxation in future, but supportive of bulky goods provision as
currently lacking in the town.
31
Respondent
Support
/Object
Environment Agency
Highways Agency
Respondent Comment/
Suggested Change
Summary of response.
Suggested Change Accepted/Declined
Surface water disposal should utilise sustainable drainage solutions, and we No change required. To be dealt with at
recommend the redevelopment should seek opportunities for environmental planning application stage.
enhancement
in
preparing
their
proposals.
Support
The area within this proposal contains gasholders and may have been subject to
other potentially contaminative uses. Further information will be required during
redevelopment to assess the risks that land contamination may pose to the
Sherwood Sandstone principal aquifer which underlies the site
Welcomes opportunity to comment and has undertaken a review of the document in No change required
accordance with its responsibilities and aims.
Draft SPD conforms with LDF (Local Development Framework). Agency supports the
vision for the site and in particular the integration of the site with the town centre and
the sustainable benefits this would deliver in relation to accessibility. The Agency is
supportive of the masterplan’s objectives, particularly a high quality design with
regards to addressing the severance caused by vehicular traffic and improving
pedestrian connectivity.
The masterplan seeks to deliver a sustainable extension to the town centre and
could provide benefit to the SRN (Strategic Road Network) by clawing back retail
expenditure from out of town destinations such as Teesside Retail Park. Also
provides a more viable opportunity to improve public transport services, to better
serve the site and to improve links, access and the reliability of the public transport
network. The eastern and western accesses are considered unlikely to result in any
significant implications at the SRN.
The suggested parking balance between commercial requirements against the need
for encouraging sustainable modes is recognised, careful consideration of this will be
required at planning application stage.
Homes and Communities Support
Agency (HCA)
Natural England
Welcomes the intention to undertake further retail impact analysis post 2016 and
would wish to be involved.
support the proposals being put forward but have no specific comments to make at No change required
this stage of the consultation process
Consideration be given to suggesting the use of living walls, in conjunction with No change required
32
Respondent
Support
/Object
Suggested Change Accepted/Declined
green roofs.
Recommend the use of native species in landscaping the area and that consideration
be given to providing habitat for local BAP species
No objections to principle of retail development at Cannon Park.
Evidence base for Local Development
Framework shows requirement for new
Concerns that
superstore and for additional bulky goods.
 evidence base supporting the original allocations pre-dates the economic WYG Middlesbrough Retail Capacity Study
was revised in 2013, which identifies a need
downturn
 tenants to the development likely to be relocations, rather than new for a new superstore and bulky goods retailing.
operators. Could create significant viability issues for retail warehousing at
The timescales for the proposals have been
Portrack Lane and, to a lesser extent, Teesside Park
 if retail offer at Portrack Lane deteriorated, relaxation in consents may be extended and will only be brought forward
when market demand arises. Retail Impact
permitted by an Inspector
 significant concerns regarding the phasing of the development, in particular Assessments would be required as part of any
planning application.
the part of phase 1 that is located adjacent to the A66 Newport junction
 possibility the development will become fragmented by the significant site
constraints and adverse market conditions is a major concern. Could delay Revised proposals show Council tenants
or prevent the delivery of the central part (phase two) of the scheme and contained within an Industrial Zone, with lease
would lead to the creation of a retail park which is dislocated from the renewal being offered until 2018, providing
businesses with more certainty. A programme
existing centre, and is an out-of-centre development in all but name.
of improvement being implemented throughout
the estate. Retail zone at far east of site. This
Stockton Council suggest:
reduces the available space for development
1. Revise the phasing of the development so that Cannon Park Sector is rolled out
from the east-to-west; or
Stockton Council
North Yorkshire
Council
English Heritage
Respondent Comment/
Suggested Change
Summary of response.
County
2. Clearly explain the phasing strategy and justify why this is the only way the
development can be delivered.
No strategic policy comments on proposals.
No change required
Interest lies in the impact of the proposals upon the town centre: its buildings,
townscape and vitality.
Concerns that
 Eastern part of the site would harm the vitality of the town centre. Believe
33
Respondent
Support
/Object
Respondent Comment/
Suggested Change
Summary of response.


the Core Strategy (2008) should be reviewed.
Connectivity with town centre
Traffic management of town centre as a whole needs to be addressed to
allow site to function as an extension to the town centre.
Accept western end of site would not compete with town centre.
Urban Design of the site and its surroundings must be such that the development
creates a new piece of townscape.
34
Suggested Change Accepted/Declined
Appendix 2 - Summary of responses to WYG Middlesbrough Retail Capacity Update January 2013
Respondent
Support
/Object
Pendragon
Renault Dealership
PPG Industries
Charles Fowler
Resident
Revd Dominic Black
Vicar of North Ormesby
&
Rural
Dean
Middlesbrough
Object
Respondent Comment/
Suggested Change
Summary of response.
 Further comments in addition to earlier comments on Masterplan

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of
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Homes and Communities
Agency
Redcar
and
Cleveland
Borough Council
N\A
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No comments in respect of WYG Study, but would like to be kept informed of any further updates
Concern over cost of consultants in current financial climate
High Street shops are closing due to liquidation, the importance of internet and cost of car parking
Redevelopment is too late to save the town centre and will be a waste of money.
Present out of town centres such as Teesside Park, Cleveland Park, Coulby Newham, Dalton Park and Metro centre all perform
well, with a good variety of retail and leisure.
Well established stores and firms at Cannon Park will have to relocate, which is not acceptable.
Western Gateway proposal should be abandoned immediately.
Agree Middlesbrough needs to claw back some retail leakage from the immediate surrounding area, both for income purposes and
to avoid the development of a hollow town centre. Part of the problem is that the municipal boundaries are badly drawn, Teesside
Park and Southbank Morrisons should probably be within Middlesbrough.
Does not use the town centre as ample free parking at retail parks. The town centre is grotty compared to the out of town retail
parks. In particular the Cleveland Centre looks like the old East Berlin parliament building.
The notion of continuous growth both in terms of population and consumer spending may be misplaced. Middlesbrough has some
of highest density of deprived communities in England. Concerns about Welfare Reform.
Without significant new employment Middlesbrough is likely to continue to decline.
Beginnings of a surge in the use of the Foodbank in East Middlesbrough. Because of this, and the fact that fewer people have
access to a car we may see a continued increase in the prospects of smaller Tesco local type convenience stores
no comments to make at this time
Convenience retailing – support approach to reduce the leakage of convenience expenditure as it would result in more
sustainable shopping patterns.
Comparison retailing - comfortable with proposal to retain retail spend generated from within Primary Catchment Area,
concerned that deriving a larger share from wider Secondary Catchment Area by between 2.5 and 5% would have a significant
impact upon the centres within Redcar and Cleveland, and encourage longer trips. R+C could not, therefore, support any retail
development that is likely to increase the amount of expenditure derived from within our borough away from centres within Redcar
& Cleveland. Any proposals justified on this basis are likely to attract an objection.
Concerns over assumptions in Retail Study. For comparison retail, assumption that Middlesbrough Centre is currently trading at
equilibrium with the amount of floorspace provided satisfying the amount of comparison spend within the centre. No clear
justification for adopting such an approach other than a limited amount of data being available for floorspace and benchmark
turnover.
Vacant floorspace available would appear to indicate that there may be an oversupply of floorspace at present
Concern regarding growth figures, whilst consistent with adopted LDF Core Strategy, is this consistent with the revised Preferred
Options which proposed population stabilisation.
35
Respondent
Cllr Ron Arundale
Councillor
Alan
Conroy
Stainton & Thornton Parish
Council
Environment Agency
Natural England
DPP on behalf of Tesco
Support
/Object
Respondent Comment/
Suggested Change
Summary of response.
 Yet to receive a reply to comments made in relation to draft SPD
 Concerns regarding the gasholders and implications if they are demolished.
 The town centre is 'dying' with more and more residential properties being demolished and retail units becoming empty or handed
over to charity shops.
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Signet Planning on behalf of
Jomast Development Ltd
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David Stovell and Millwater on
behalf of
F&C REIT
(Cleveland Centre), Ignis (Hill
Street Centre), La Salle
(Capt Cook Square) and
Henry Lax (Dundas Arcade).
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No comments to make
The consultation offered the opportunity to comment on is of a low risk for Natural England.
The lack of further comment from Natural England should not be interpreted as a statement that there are no impacts on the
natural environment. Other bodies and individuals may be able to make comments that will help the Local Planning Authority (LPA)
to fully take account of the environmental value of areas affected by this plan in the decision making process.
Confirm have no further comments to make regarding the updated Retail Capacity Information and the associated Western
Gateway(Cannon Park) Draft Supplementary Planning Document (SPD).
Would like to reiterate our original comments from the previous Western Gateway (Cannon Park) Draft Supplementary Planning
Document (SPD) consultation
Suggest Council does not adopt conclusions of the report for policy purposes as it would not represent a ‘sound’ basis for policy
formation.
WYG commissioned as a result of draft SPD consultation but no mention of this in report.
Capacity data from 2007 is out of date, which is not in line with NPPF policy of having an up to date evidence base.
It is not clear to what extent population figures reflect the 2011 Census and whether the methodology for the population projects is
as credible and robust as the ONS SNPP. Levels of population growth assumed by WYG fall well short of the Middlesbrough ONS
SNPP, if up to date 2011 figures are used, floor space requirements would increase.
Experian and Pitney Bowes have a difference of opinion on detailed consumer expenditure forecasts. Using a mid way point
between these would result generate additional floorspace capacity.
WYG suggests increasing retention rate to 70%, 75% would be more realistic.
Questions over Cannon Park site’s ability to clawback from residents in Zones 8 and 9, consideration should be given for a greater
scale of retail development to ensure this uplift.
supplements and needs to be read in association with the statements of objection already made against the Western Gateway
Masterplan (draft SPD)
evidence base remains flawed and out of date. Do not accept that the MRCU addresses any concerns of the shopping centres
regarding the reliability of the evidence base for the SPD. The base data is not new, the primary catchment area used has no retail
or planning context on which to base any conclusions and there is still no justification for the significant increase in floorspace from
that proposed in the Core Strategy (CS13).
The MRCU survey base does not in its conclusion take into account the major impact of the economic recession, changing retail
patterns, the internet and multichannel shopping.
incumbent on the local authority to carry out an up-to-date retail survey and to make future predictions taking account of these
changes for the entire town centre.
Inconsistent with development plan and Policy uncertainty
Harmful effect on the existing primary shopping centre.
36
Respondent
Support
/Object
URS on behalf of House of
Fraser
Qualified
support
Respondent Comment/
Suggested Change
Summary of response.
 Support general aspirations of SPD to reinvigorate Middlesbrough’s town centre’s status in the retail hierarchy, clawback leakage
of retail expenditure, improve public realm and public transport links and attract new investment.
 Concerns raised previously remain.
 Retail and Evidence Base Policy Requirements. Retail uses set out for Cannon Park West and Central in SPD are not
compliant with LDF. This area should also be subject to an impact assessment. No evidence of sequential assessment.
 Middlesbrough Retail Capacity Update 2013. Policy and preferred option has been formulated before work on the evidence
base commenced.
 Commentary. Shopping survey is over 5 years old and does not take into account new store openings- this limits validity of Retail
Capacity update.
 Believe the potential for clawback is reduced in areas such as Hartlepool, Guisborough and Redcar.
 An up to date full health check has not been undertaken.
 Capacity based on assumption that turnover is at equilibrium. This is not a common approach undertaken in such exercises.
 Would like another round of consultation.
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Respondent
NLP on behalf of Sainsbury’s
Highways Agency
Support
/Object
Respondent Comment/
Suggested Change
Summary of response.
Number of concerns in relation to the basis upon which the Study has been prepared
 Household surveys- evidence on which capacity assessment is based. Survey results are 6 years old and limited reliance
can be placed on them for shaping planning policy in the area. A number of changes have occurred in this period, new Tesco
at Low Grange Farm, completion of Thornaby town centre, changing of Teesside Park and Cleveland Retail Park towards a
more open comparison offer.
 Country is yet to emerge from economic recession that began in 2008.
 Expenditure capacity projections provided are derived from rate of expenditure retail within the area and potential levels that
could be achieved, which are derived from the 2007 household surveys. Out of date household surveys will therefore lead to
incorrect assumptions.
 Commercial demand- Unclear on basis conclusions of vacant premises are formed – are these backed up with evidence
from commercial agents or retailers?
 Agree there is likely to be growth in retail expenditure which would support the new development for the area, also needs to
be commercial demand.
 Gateway Middlehaven Commitment – noted an error in relation to the comparison goods assessment. WYG assume both
extant permissions cannot be implemented. The comparison goods capacity assessment needs to account for additional
committed floorspace. In addition, the turnover for these developments is too low. £23.3m (2009) according to Retail
Statement submitted with applications compared to £9.7m (2011) in WYG. Capacity assumptions should be amended to
reflect this.
 Proposed Strategy – agree with recommendation that Middlesbrough should plan for new development, which will increase
retained expenditure locally, reduce leakage and encourage more sustainable travel patterns.
 WYG approach of expenditure retention of 70% is too cautious, should plan for 80%. Overtrading at all main food shopping
stores in the town (with exception of Sainsbury’s) is evidence to support significant new development.
 Retail study should be revised
 WYG too much emphasis on delivering a store at Cannon Park, which has a number of constraints, including highways
capacity and infrastructure, site assembly and availability and commercial viability. Regeneration DPD should look at this site
over the long term.
 No evidence to support WYG assumption that “further provision elsewhere could clearly prejudice the delivery of a new
foodstore at Cannon Park”. On contrary there is evidence to support more than one store. Unless it can be demonstrated that
Cannon Park is commercially deliverable the Council should plan for development elsewhere.
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The Highways Agency has reviewed the information produced by White Young Green regarding retail capacity used to support the
draft SPD for the Western Gateway (Cannon Park). At this time we do not offer any substantive comments on this consultation or
suggested changes to the report.
38
Respondent
Support
/Object
NECC
Qualified
support
Respondent Comment/
Suggested Change
Summary of response.
 Phase 1 is viable and support foodstore and development at Newport Roundabout end of site. Would like assurances that
supermarket is still going ahead, as without it, whole scheme is thrown into doubt.
 Oppose Newport Road closure
WYG
 conclusions are flawed as based on 2007 shopping survey, prior to the financial crisis. 6 years of online shopping since 2007.
 Study is based on 2005 Middlesbrough Retail Study which predated the Tesco developments as Coulby Newham, Low Grange
Farm and Cleveland Retail Park.
 Report does not recognise flexibility of more modern space available in shopping centres. Do acknowledge that some of empty
retail in Middlesbrough is unlikely to attract large retailers.
 Hard to ascertain where demand for the site will come from. Lack of appetite amongst developers to build such schemes. This
suggests a delay in construction adding to uncertainty for businesses on site.
 Study does not look at Tees Valley as a single conurbation and comparison shopping patterns in the area. Teesside Park,
Cleveland Retail Park and Portrack Lane have a large representation of national chains and it is unlikely these stores would seek
supplementary stores such a short distance away. A scheme at Cannon Park which seeks to replicate this offer would be difficult to
justify in the current economic climate.
 There is already a successful retail and trade offer on site which could be developed. Expanding the offer should be looked at to
attract new retailers in that sector (Screwfix) with general improvements made to the overall site.
 Current proposals and timescales provide no certainty to existing businesses on Cannon Park, which has enjoyed mainly full
occupancy. Many businesses wish to invest / develop but are prevented from doing so due to the uncertainty. Some businesses
are leaving / trying to find alternative accommodation.
 NECC members are emphatic that they wish the Council to make a decision on the future of Cannon Park, develop the site over a
short timescale or abandon the project.
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Appendix 3: Impact Assessment Level 1: Initial screening assessment
Western Gateway (Cannon Park) – masterplan
Subject of assessment:
Coverage:
Service specific
Strategy
This is a decision relating
to:
Policy
Service
Function
Process/procedure
Programme
Project
Review
Organisational change
Other (please state)
It is a:
New approach:
Revision of an existing approach:
It is driven by:
Legislation:
Local or corporate requirements:
Key aims, objectives and activities
The aim of the masterplan is to facilitate the development of a sustainable extension to the town centre that will reinvigorate
Middlesbrough town centre’s status as a sub regional centre in the retail hierarchy and as the principal retail centre for the Tees
Valley City Region.
Statutory drivers
In keeping with adopted Local Development Framework Policy, a masterplan is required to guide development at the Western
Gateway (Cannon Park).
Description:
Differences from any previous approach
Since the publication of the draft SPD a number of factors have changed, hence the Council is seeking to revise its approach to
Western Gateway (Cannon Park)
Key stakeholders and intended beneficiaries (internal and external as appropriate)
The main external stakeholders are landowners, developers, existing industrial unit tenants, town centre retailers, businesses and
the public. Residents and businesses of Middlesbrough are the intended beneficiaries.
Intended outcomes.
To ensure that the redevelopment of Western Gateway occurs as dictated by the market and to support Council tenants in their
businesses.
Live date:
Exec date 21st May
Lifespan:
Date of next review:
N/ A
40
Response
Screening questions
Evidence
No
Yes
Uncertain
The proposed revised Western Gateway masterplan is seeking to support local
businesses and provide an area to meet the requirement for a new superstore
and bulky goods retailing. It does not have any Equality implications. If any
unforeseen issues arise with the revised masterplan and the proposed
communications strategy, this impact assessment will be revisited.
Human Rights
Could the decision impact negatively on individual
Human Rights as enshrined in UK legislation? *
Equality
Could the decision result in adverse differential
impacts on groups or individuals with characteristics
protected in UK equality law? Could the decision
impact differently on other commonly disadvantaged
groups? *
The proposed revised Western Gateway masterplan is seeking to support local
businesses and provide an area to meet the requirement for a new superstore
and bulky goods retailing. It does not have any Equality implications . If any
unforeseen issues arise with the revised masterplan and the proposed
communications strategy, this impact assessment will be revisited.
The proposed revised Western Gateway masterplan is seeking to support local
businesses and provide an area to meet the requirement for a new superstore
and bulky goods retailing. It does not have any Equality implications . If any
unforeseen issues arise with the revised masterplan and the proposed
communications strategy, this impact assessment will be revisited.
Community cohesion
Could the decision impact negatively on relationships
between different groups, communities of interest or
neighbourhoods within the town? *
The proposed revised Western Gateway masterplan is seeking to support local
businesses and provide an area to meet the requirement for a new superstore
and bulky goods retailing. It does not have any Equality implications . If any
unforeseen issues arise with the revised masterplan and the proposed
communications strategy, this impact assessment will be revisited.
Sustainable Community Strategy objectives
Could the decision impact negatively on the
achievement of the vision for Middlesbrough? Does
the decision impact on statutory duties associated with
these key objectives? *
The proposed revised Western Gateway masterplan is seeking to support local
businesses and provide an area to meet the requirement for a new superstore
and bulky goods retailing. It does not have any Equality implications . If any
unforeseen issues arise with the revised masterplan and the proposed
communications strategy, this impact assessment will be revisited.
Organisational management / transformation
Could the decision impact negatively on organisational
management or the transformation of the Council’s
services as set out in its transformation programme? *
Next steps:
 If the answer to all of the above screening questions is No then the process is completed.
 If the answer of any of the questions is Yes or Uncertain, then a Level 2 Full Impact Assessment must be completed.
*
Consult the Impact Assessment further guidance appendix for details on the issues covered by each of theses broad questions prior to completion.
41
Assessment completed by:
Sophie White
Head of Service:
Date:
23/4/13
Date:
42
Sharon Thomas