doncaster retail study may 2010... · distinguish between primary and secondary frontages (annex...

www.gvagrimley.co.uk

DONCASTER METROPOLITAN BOROUGH COUNCIL

RETAIL STUDY MARCH 2010

Doncaster Metropolitan Borough Council

Retail Study – March 2010

Caroline Marginson / Tom Vernon

020 7911 2551 / 020 7911 2204

[email protected]

[email protected]

GVA Grimley Ltd

10 Stratton Street

London, W1J 8JR



Contents

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

2. POLICY FRAMEWORK ........................................................................................... 3

3. SUB-REGIONAL CONTEXT.................................................................................. 12

4. DONCASTER QUALITATIVE REVIEW ................................................................. 20

5. MEXBOROUGH QUALITATIVE REVIEW.............................................................. 35

6. THORNE QUALITATIVE REVIEW......................................................................... 48

7. QUALITATIVE OUT-OF-CENTRE PROVISION..................................................... 59

8. CAPACITY FORECASTS ...................................................................................... 65

9. CONCLUSIONS ..................................................................................................... 76



PLANS

Plan 1: Doncaster Retail Study Telephone Survey Area

Plan 2: Comparison Goods Expenditure Flows to Competing Centres

Plan 3: Retail Hierarchy (UDP 1998)

Plan 4: Existing Retail Frontage Designations: Doncaster, Thorne and Mexborough

Plan 5: Doncaster Town Centre Character Areas

Plan 6: Main Out of Centre Foodstore Provision

Plan 7: Doncaster Retail Warehouse Provision

Plan 8: Doncaster Comparison Goods Market Shares

Plan 9: Competing Centre Comparison Goods Market Shares



APPENDICES

Appendix 1: UDP (1998) Shopping Policy Extract

Appendix 2: National Retail and Leisure Trends

Appendix 3: Competing Centres

3a - Market Share and Trade Retention

3b – Retailer Representation

3c – Pipeline Schemes

3d – Key Indicators

Appendix 4: Netherhall Road / Copley Road Audit

Appendix 5: Convenience Goods Shopping Patterns

Appendix 6: Convenience Goods Capacity Projections

Appendix 7: Comparison Goods Shopping Patterns

Appendix 8: Comparison Goods Capacity Projections

Appendix 9: Telephone Survey Results



1

1. INTRODUCTION

1.1 GVA Grimley was instructed by Doncaster Metropolitan Borough Council to carry out a Retail and Town

Centres Study to inform retail planning in accordance with guidance set out in PPS4: ‘Planning for

Sustainable Economic Growth’ (December 2009). This study provides a robust and sound evidence

base to inform the Council’s Local Development Framework (LDF) and future Development Plan

Documents (DPD), particularly the Council’s Core Strategy. It is also intended to act as a tool for the

Council to make informed choices about the nature and extent of retail and leisure growth to be

accommodated in the future.

1.2 Our research and analysis identifies the performance of Doncaster town centre, Mexborough town

centre and Thorne town centre, and identifies the quantitative and qualitative need for new retail

(comparison and convenience) floorspace up to 2026. Plans and appendices referred to throughout this

report are provided in an accompanying document.

Scope

1.3 Doncaster is a Yorkshire Forward ‘Renaissance Town’ and is a major sub-regional shopping centre in

South Yorkshire which has experienced significant growth and inward investment over the last decade

including the extension of the Frenchgate Centre and the development of the Robin Hood International

Airport. Doncaster is the 15th largest population centre outside London and enjoys excellent transport

linkages via road (A1(M)), rail (east coast mainline) and air (Robin Hood Airport Doncaster Sheffield –

the UK’s newest international airport).

1.4 The borough is located at the south of Yorkshire and Humber region, and abuts Nottinghamshire to the

south. The borough also abuts urbanised conurbations of Rotherham, Barnsley, Wakefield and

Scunthorpe. North Lincolnshire adjoins the eastern boundary of the District, with Lincoln lying to the

southeast.

1.5 The scope of the study, as set out in the Council’s Brief, is to provide up to date advice on the need and

capacity for new retail development in the District to 2026, identify qualitative deficiencies in existing

provision, and advise the Council on how to meet any identified need. As per the Council’s brief, we

have focused our study on the main centre of Doncaster, whilst also considering Mexborough and

Thorne town centres.

1.6 We have undertaken a thorough audit of the current status of retail activities in Doncaster borough and

provide detailed information on the likely future demand for retail floorspace up to 2026. In addition, our

study considers the existing boundaries and frontages and provides recommendations to ensure that the

emerging Local Development Framework complies with national policy guidelines.



2

Approach

1.7 Our approach draws on the recommendations of the Good Practice Guidance on Need, Impact and the

Sequential Approach, produced by GVA Grimley in conjunction with the DCLG, to accompany PPS4.

We have adopted a transparent approach, where the key steps of our analysis, data inputs and

assumptions are clearly set out and justified. In accordance with the Good Practice Guidance, our

approach is also underpinned by the use of an up-to-date household telephone survey to establish

current shopping patterns, town centre catchments and market share estimates for both comparison and

convenience goods retailing.

1.8 This study provides an overview of the existing retail network and retail hierarchy in Doncaster

Metropolitan Borough including a detailed qualitative health check of Doncaster, Mexborough and

Thorne town centres. The study also provides an overview of the Borough’s out-of-centre retail

provision, as well as a broad overview of other town centre uses including commercial leisure, cultural,

entertainment, cafés, bars and restaurants, offices and hotels.

Report Structure

1.9 This report draws together the results of our research, incorporating the findings of the detailed survey-

based technical analysis and health check assessments. The report is structured as follows:-

�� Section 2 summarises the national, regional and local policy framework, relevant to retail planning in

Doncaster.

�� Section 3 reviews the sub regional context and in particular the influence of competing centres in the

wider sub region, and potential changes in influence in the future.

�� Sections 4, 5 and 6 presents our qualitative assessment of the role, attraction and performance of

Doncaster town centre. We also provide a qualitative assessment of the role of Mexborough and

Thorne town centres.

�� Section 7 provides a qualitative review of existing out of centre convenience and comparison

retailing in the borough.

�� Section 8 sets out our baseline capacity projections for convenience and comparison goods in the

Borough, focusing in particular on the capacity for further retail floorspace, with regard to identified

commitments.

�� Section 9 sets out our conclusions and recommendations.



3

2. POLICY FRAMEWORK

1.1 This section sets out the points of relevance from the national, regional and local policy framework,

focusing specifically on town centre strategy policy formulation and the management of growth and

change.

PPS4: Planning for Sustainable Economic Growth, December

2009

1.2 The central message of the guidance is the need for a more proactive approach to securing new

investment in centres, and achieving more sustainable patterns of development. The Government’s key

objective for town centres is to promote their vitality and viability by:

�� Focussing new economic growth and development of main town centre uses in existing centres and

remedying deficiencies in provision in areas with poor access to facilities;

�� Allowing competition between retailers and enhanced consumer choice through the provision of

innovative and efficient shopping, leisure, tourism and local services in town centres which allow

genuine choice to meet the needs of the entire community (particularly socially excluded groups).

1.3 The statement advises that local planning authorities (LPAs) should plan positively for growth and

development by assessing the need for further main town centre uses and ensure there is capacity to

accommodate them, taking account of the role of centres in the hierarchy; and to identify any

deficiencies in the provision of local convenience shopping and other facilities which serve people’s day-

to-day needs. In assessing need for retail and leisure development LPAs should take account of both

quantitative and qualitative need, giving additional weight to the latter in deprived areas.

1.4 In assessing quantitative need for retail and leisure development LPAs should have regard to relevant

market information and economic data, including a realistic assessment of population and future growth,

forecast expenditure and forecast improvements in retail sales density. In assessing qualitative need

LPAs should assess whether provision and distribution of shopping, leisure and local services allows

genuine choice to meet the needs of the whole community (particularly those in deprived areas), in light

of the objective to promote vitality and viability of town centres and the application of the sequential

approach. LPAs should also take into account the degree to which shops may be overtrading and

whether there is need to increase competition and retail mix.

1.5 PPS4 states that, in planning for centres, regional and local planning authorities should set out a strategy

for the management and growth of centres over the plan period, setting flexible policies allowing centres

to respond to changing economic circumstances. LPAs should define the network and hierarchy of



4

centres that is resilient to anticipated future economic changes to meet the needs of their catchments.

Choices should be made about which centres will accommodate any identified need for growth in town

centre uses, considering their expansion where necessary and the need to avoid an over concentration

of growth in centres.

1.6 Identified deficiencies in the network of centres should also be addressed, giving consideration to the

appropriateness of designating new centres; reclassifying existing centres; planning for extensions; or

scope for consolidation. The need for any new, expanded or redeveloped out-of-centre regional or sub-

regional shopping centre, or any significant change in the role or function of centres should be

considered at the regional level.

1.7 In addition to defining the extent of the primary shopping area for their centres, LPAs are encouraged to

distinguish between primary and secondary frontages (Annex B). Having regard to the need to

encourage diversification of uses in town centres as a whole, PPS4 states that primary frontages should

contain a high proportion of retail uses, while secondary frontages provide greater opportunities for a

diversity of uses. Where frontages are identified, the appropriate local development documents should

include policies that make clear which uses will be permitted in such locations.

1.8 PPS4 encourages LPAs to proactively plan to promote competitive town centre environments and

provide consumer choice by:

�� supporting a diverse range of uses (including complementary evening and night-time uses) which

appeal to a wide range of age and social groups;

�� planning for a strong retail mix so that the range and quality of the comparison and convenience retail

offer meets the requirements of the local catchment area, recognising that smaller shops can

significantly enhance the character and vibrancy of the area;

�� supporting shops, services and other important small scale economic uses in local centres and

villages;

�� identifying sites in the centre, or failing that on the edge of the centre, capable of accommodating

larger format developments where a need for such development has been identified;

�� retaining and enhancing existing markets and, where appropriate, re-introducing or creating new

ones, ensuring that markets remain attractive and competitive by investing in their improvement;

�� taking measures to conserve, where appropriate, and enhance the established character and

diversity of their town centres.

1.9 LPAs should identify an appropriate range of sites to accommodate at least the first five years identified

need. Sites for main town centre uses should be identified through a sequential approach to site

selection giving preference to locations in appropriate existing centres in the first instance, followed by



5

edge-of-centre locations and out-of-centre sites, with preference given to those that are more accessible

or have a higher likelihood of forming links with an existing centre.

1.10 The impact of proposed locations for development on existing centres will also need to be assessed by

the LPA, taking into account impact considerations set out in Policy EC16 which include impact on town

centre vitality and viability; in-centre trade/turnover; investment in centres; delivery of development on

allocated sites; and any locally important impacts on centres identified by the LPA.

1.11 In the determination of planning applications for main town centre uses that are not in a centre and not in

accordance with an up to date development plan, PPS4 requires applicants to demonstrate compliance

with the sequential approach and impact assessment taking into account the impact considerations set

out in Policy EC16. Assessments of impact should focus on the first 5 years after the implementation of

a proposal and should be proportionate to the scale, nature and detail of the proposed development.

1.12 Policy EC17.1 directs LPAs to refuse planning permission where an applicant fails to demonstrate

compliance with the sequential approach or the proposal is likely to lead to a significant impact.

Judgements about the extent and significance of any impacts should be informed by the development

plan (where this is up to date) or recent local assessments of the health of town centres and any other

published local information e.g. a town centre or retail strategy. Where there are no significant adverse

impacts identified, LPAs are encouraged to determine applications adopting a balanced approach,

having regard to any material considerations.

Good Practice Guide: Need, Impact and the Sequential

Approach, December 2009

1.13 The Good Practice Guide is a government document published alongside PPS4. It does not constitute a

statement of Government policy, but forms guidance to support the interpretation of town centre policies

set out in PPS4.

1.14 Of most relevance to this Study is the advice directed towards assisting LPAs in adopting a more

proactive approach to planning for town centres, and particularly the role of evidence in the plan making

process to identify the need for new development and inform the preparation of proactive town centre

strategies. Central to PPS4 Policy EC1 the guidance sets out alternative approaches to assessing and

identifying quantitative and qualitative needs for retail and other town centre uses. Building on the

assessment of needs, the practice guidance explains how LPAs can plan positively and promote new

retail-led and other town centre uses through their LDFs; setting out the ‘tools’ needed to prepare

effective town centre strategies, including how to identify appropriate locations, and how to assess the

effects of alternative policy options and specific proposals.

1.15 Having identified and evaluated the various policy options, LPAs should develop a clear vision and

strategy for the network of centres, and strategies for individual centres. In terms of the LDF, this is



6

likely to include clear guidance on the appropriate scale and form of new development involving main

town centre uses; allocation of sites to meet identified need; identification of the extent of key

development opportunities; a clear statement of the approach to be taken to bringing forward

development and the LPAs attitude to other competing developments.

1.16 It is added that strategies for individual centres can be prepared at any time but they should be

incorporated into the LDF at the earliest opportunity. This is likely to be important where key site

allocations are involved, either through strategic allocations in the Core Strategy, or through sites

allocated in an Area Action Plan or other document. Promoting town centre strategies through the LDF

process ensures that the evidence base which underpins the strategy will be properly tested. A strategy

which has been progressed through the LDF process, and been subject to effective public and

stakeholder consultation and tested through independent examination will ensure that proposals must be

determined in accordance with the plan unless material considerations indicate otherwise.

1.17 When preparing their LDF’s, LPAs should identify what they regard as the Primary Shopping Area (PSA)

to provide clarity to applicants about the policy status of different sites. In defining the PSA, it may be

appropriate to take into account the anticipated future role of the centre, and in particular the scope for

growth and expansion. In centres where major expansion is planned, it may be appropriate to indicate

where the PSA is likely to be extended to, having regard to the potential for achieving effectively

integrated new development.

1.18 LPAs should also identify an appropriate ‘town centre boundary’ within which it will seek to locate other

main town centre uses. It may also be appropriate to define other areas within the town centre but

outside the PSA where specific uses are encouraged e.g. specialist retail, offices bars/restaurants etc.

In addition to defining the PSA and town centre boundary, where LPAs identify a need for new

development to accommodate main town centre uses, they should allocate sites which are suitable,

viable and likely to be available within a reasonable timescale to accommodate such needs.

Regional Policy Context

Yorkshire and Humber Plan (May 2008)

2.1 The Yorkshire and Humber Plan (YHP) identifies the scale and distribution of provision for new housing,

as well as priorities for the environment, transport, infrastructure, economic development, agriculture,

energy, minerals and waste treatment and disposal within the region up to 2026.

2.2 The YHP identifies a regional settlement hierarchy with three tiers; ‘Regional Cities’, ‘Sub-Regional

Cities and Towns’ and ‘Principal Towns’. Within this hierarchy Doncaster is identified within the second-

tier as a Sub-Regional Town, along with other centres in the area such as Rotherham, Barnsley,

Wakefield, York and Scunthorpe. Policy YH4 directs that these centres, along with Regional Cities and

other second-tier centres, should provide the focus for housing, employment, retail, leisure, education,

health and cultural activity and facilities within the region. This policy also seeks to transform these



7

centres into attractive, cohesive and safe places where people want to live, work and invest and spend

time in.

2.3 Policy YH4 also encourages Local Planning Authorities (LPAs) to:

�� Achieve a more modern and wider range of housing and employment premises;

�� Develop a strong sense of place with a high quality of public realm and well designed buildings within

a clear framework of routes and spaces;

�� Create new and improve existing networks, corridors and areas of green space, including the urban

fringe to enhance biodiversity and recreation;

�� Strengthen the identity and roles of city and town centres as accessible and vibrant focal points for

high trip-generating uses, and;

�� Improve public transport systems and services and increase opportunities for walking and cycling.

2.4 The YHP identifies a number of third tier centres, which includes Mexborough and Thorne town centres.

Policy YH5 relates to these Principal Towns, and states that these centres should be the local focus for

housing, employment, shopping, leisure, education, health and cultural activities and facilities. A key

strand of this policy, to enhance these centres as accessible and vibrant places to live, work and invest,

is to enhance the vitality and viability of town centres.

2.5 The regional hierarchy is derived from the 2004 Regional Settlement Study and from the South

Yorkshire Settlement Study in 2005. The YHP states that this hierarchy provides a pattern of service

centres to meet the needs of rural areas and support a balanced pattern of development across the

Region. However, the Plan also recognises that at the local level it may be appropriate to identify

additional towns owing to differing settlement patterns in South and West Yorkshire Districts. For

instance, in the case of Doncaster, there are numerous medium-sized towns, relatively close to Regional

and Sub-Regional Cities and Towns, which don’t perform the same service centre role as towns in more

rural parts of the region.

2.6 Policy YH7 prioritises the allocation of suitable sites for development within a city or town. The re-use of

previously developed land and the more effective use of existing developed areas are the first priority,

with secondary priority given to infill opportunities within the city or town, followed by urban extensions.

In identifying development sites, LPAs are encouraged to adopt a transport-orientated approach to

ensure development makes best use of existing infrastructure, takes into account transport capacity,

complies with accessibility criteria and maximises the use of rail and water for the transport of large

volumes of freight. It is worth noting at this point that since the publication of the YHP PPS4 has been

published, which supersedes policy relative to the location and identification of development within town

centres, which should be regarded as the most up-to-date policy relative to this.

2.7 Policy E2 seeks to strengthen the role and performance of existing city and town centres within the

region, and states that the Regional and Sub-Regional Cities and Towns should be the focus for offices,



8

retail, leisure, entertainment, arts, culture, tourism and more intensive sport and recreation across the

region. This policy resists the development of new or large-scale extensions to existing out-of-centre

regional or sub-regional shopping centres, and directs that smaller scale expansions should be subject

to the provisions of PPS6 (PPS4 supersedes). Policy E2 focuses on existing centres, encouraging

development, environmental enhancements, accessibility improvements, and town centre management

and promotional activities to create a distinctive, attractive and vibrant sense of place and identity for

each centre. Those worst performing centres are promoted as the focus for these town centre

improvements.

2.8 The YHP sets housing priority locations within the region, and whilst priority growth areas are identified,

the annual new housing growth is likely to remain broadly consistent over the plan period (2008-2026).

The overall scale of provision across the South Yorkshire Sub-Region needs to reflect and support

‘Transform South Yorkshire’s Pathfinder Housing Market Renewal Strategy’ and programme. The key

focus for the sub-region is to increase economic activity rates, which is the central focus of the Region’s

Economic Strategy.

South Yorkshire Sub-Region

2.9 The Plan is divided into seven sub-regional areas comprising Vales and Tees Link, Remoter Rural,

Leeds City Region, York, Coast, Humber Estuary, and the South Yorkshire Sub-region within which

Doncaster is located.

2.10 Policy SY1 sets the sub-regional priorities for the South Yorkshire sub-region, and aims to transform the

sub-regional towns of Barnsley, Doncaster and Rotherham, with particular emphasis on these town

centres as vibrant, healthy, accessible, attractive and safe places where more people live, visit and

work, and residential areas through housing market renewal and increased housing development. A key

strand of the sub-region’s economic development is to develop Doncaster town centre so that it offers a

high standard and quality of retail and commercial variety and convenience, and to facilitate the growth

of storage / distribution uses elsewhere in the borough maximising the use of rail and water transport.

Doncaster and other Sub-Regional towns are identified foci for investment and the continued

regeneration of the Dearne Valley are identified as being some of the sub-region’s investment priorities.

Yorkshire Forward

2.11 In 2001 Doncaster became one of the first towns to be selected for the Renaissance Towns programme

by Yorkshire Forward (Regional Development Agency). In order to deliver on the aims of this

programme, Doncaster formed a unique partnership between the local authority and the private sector

called Doncaster Development Direction. Several key transformational projects are envisaged in

Doncaster to help to deliver the overall vision for the town:

�� Doncaster Waterfront;

�� The Cultural and Civic Quarter;



9

�� Lakeside;

�� The Digital Knowledge Exchange;

�� Town Moore Racecourse Re-development;

�� Lakeside Sports Complex.

2.12 The partnership aims to attract significant levels of private investment in Doncaster to facilitate a market-

led approach to regeneration to achieve the aim of the Regional Economic Strategy.

Local Policy Context

Doncaster Unitary Development Framework

2.13 Until the adoption of the Council’s Local Development Framework (LDF), the Council are relying on the

saved policies1 contained within the Doncaster Unitary Development Plan (UDP) in the determination of

planning applications. The UDP was adopted in 1998 and provides policy guidance relating to all

aspects of development within the borough.

2.14 UDP Policy Gen 1 promotes the development and enhancement of Doncaster town centre to maintain

the centre’s vitality and expand its role as a focus for commercial, social and cultural activity. Policy Gen

4 identifies the second tier of centres within the borough, referring to them as Small Town and District

Centres:

1 Saved from September 2007.

�� Adwick;

�� Armthorpe;

�� Askern;

�� Balby;

�� Bawtry;

�� Bentley;

�� Carcroft;

�� Conisbrough;

�� Dunscroft;

�� Edenthorpe;

�� Edlington;

�� Hatfield;

�� Intake;

�� Mexborough;

�� Moorends;

�� Stainforth;

�� Thorne;

�� Tickhill

2.15 The consolidation, enhancement and improvement will be encouraged, and special attention will be

given to the opportunities for the rationalisation of land uses, environmental improvements , community-

based initiative and economic regeneration.

2.16 Policy SSH1 seeks to secure and enhance the vitality and viability of existing small town and district

shopping centres as identified above. Measures to achieve this include the identification of specific sites

for retail development, as well as the identification of shopping policy areas within which proposals for



10

retail, service, and appropriate leisure uses are supported. In areas of large scale residential

development this policy provides scope for the introduction of new District Centres. The shopping policy

areas are identified across the borough, but are not necessarily located within existing centres as

defined by PPS4, and in some cases provide policy support for out of centre retailing.

2.17 The UDP policies contained in Chapter 8 ‘Shopping’ contain a range of policies relative to retail and

commercial development within the borough. These policies broadly seek to prioritise retail and

commercial development within the town and district centres, all of which are saved until the Council

publishes updated policies within their LDF. We consider that several of these policies are not compliant

with newly published PPS4: ‘Planning for Sustainable Economic Growth’, and as such may need to be

reviewed and updated within forthcoming guidance. The existing policies are provided at Appendix 1.

Local Development Framework

2.18 Unlike the UDP, the Doncaster LDF will comprise several documents, comprising the Local

Development Scheme (LDS), the Core Strategy, and several other Development Plan and

Supplementary Planning Documents (DPDs / SPDs) relative to a range of topics. The Council’s

Statement of Community Involvement (SCI) was adopted in November 2006. Following the Mayoral

elections in May 2009 the Council is currently reviewing its LDF, and is expected to publish a new LDS

in due course to reflect this review exercise.

2.19 The Council undertook Core Strategy Further Options consultation in August – September 2007,

following the Core Strategy Issues and Options in June 2005 and Core Strategy Preferred Options

consultation from December 2005 to March 2006. The Council are expected to undertake consultation

on a ‘Preferred Options’ Core Strategy once the LDF review is complete, although the timetable for this

is unclear at this stage.

Summary

• National planning policy guidance provides the framework for developing local shopping policies

tailored to the specific circumstances of Doncaster Borough. The overarching policy thrust is to

sustain and enhance the vitality and viability of existing centres, wherever possible, and to plan

positively for new development within them, having regard to the role and needs of their

catchments.

• The Yorkshire and Humber RSS sets the broad development strategy for the region up to 2026,

and splits the region into seven sub-regions. Doncaster lies within the South-Yorkshire Sub-Region,

and is identified by the Regional Development Agency within the Regional Economic Strategy as a

‘Renaissance Town’. The RSS seeks to locate retail development and town centre uses

predominately in or on the edge of town centres.

• Presently the adopted Unitary Development Plan (1998) represents the development plan for the

Borough. Doncaster sits at the top of this hierarchy, with 18 Small Towns and District Centres



11

representing second-tier centres in the borough. The UDP also identifies a number of Commercial

Policy Areas, which permit a range of commercial uses in a range of locations. These designations

should be reviewed against the newly published PPS4 through the LDF period to ensure the

Council’s emerging LDF is sound, robust and national policy compliant.



12

3. SUB-REGIONAL CONTEXT

3.1 This section examines the retail performance of Doncaster town centre in the context of the retail

network across the wider sub-region. We highlight those centres that Doncaster interacts and competes

with, with several of these centres’ retail catchments overlapping to create a competitive retail

environment, which is discussed within this section. The section also highlights those centres that will

influence retailing in Doncaster as well as the smaller centres of Mexborough and Thorne over the

forthcoming LDF period.

2007 Retail Study

3.2 The Council published the Doncaster Retail Capacity Study in 2001, which was subsequently updated in

2005 and 2007 to reflect additional retail floorspace in the borough and changes to national planning

guidance following the publication of PPS6: ‘Planning for Town Centres’. The 2007 concluded that

overall Doncaster town centre’s retail offer was broadly in line with the UK average, and a strong

demand from retailers to locate within the town centre existed, along with a strong rental performance.

This section examines the performance of Doncaster relative to other competing centres within the area

to inform recommendations for Doncaster, Mexborough and Thorne town centre.

Shopping Catchment Analysis

3.3 Our analysis draws extensively on the household telephone survey data, which underpins the entire

retail study. In addition, this section draws on a range of data sources including PROMIS, Javelin Retail

Rankings, the Focus Property Intelligence database, the Valuations Office Authority and EGi. Qualitative

research was also undertaken to establish major pipeline development proposals in competing centres.

3.4 Our assessment of each of the competing centres identifies the main retail offer and associated

floorspace provision, and the extent to which this is likely to change and influence shopping patterns in

the sub-region. The household telephone survey (Plan 1) highlights the most influential centres

competing with Doncaster in terms of spend, and includes Barnsley, Leeds, Meadowhall Shopping

Centre, Pontefract, Retford, Rotherham, Scunthorpe, Sheffield, Wakefield and York. Shopping patterns

are identified at Appendix 6.

3.5 Shopping patterns derived from the survey allow us to calculate the amount of comparison goods

expenditure that each competing centre draws from the survey area (see Plan 1). This indicator takes

into consideration the strength of the retail offer as well as the centre’s accessibility and distance from

Doncaster. The total expenditure flowing to these centres is set out in the table below, and illustrated on

Plan 2 appended.



13

Table 3.1: Study Area Comparison Goods Trade Draw: Key Competing Centres

Centre £(000s) Market Share (%)

Doncaster 510,294 31.4

Pontefract 86,906 5.4

Meadowhall Centre 77,755 4.8

Scunthorpe 55,287 3.4

Retford 42,325 2.6

Wakefield 36,240 2.2

Rotherham 27,871 1.7

Sheffield 35,449 2.2

Leeds 24,817 1.5

York 11,774 0.7

Barnsley 11,126 0.7

Source: GVA Grimley Household Telephone Survey, November 2009

3.6 It is evident that Doncaster draws a significant proportion of comparison goods expenditure from within

the study area (Zones 1-11) at approximately £597m representing nearly 38% of total market share.

What is clear from table 3.1 is that Doncaster attracts the highest proportion of available expenditure and

market share of those centres featuring within the survey results, with the second most dominant centre

being Pontefract, which attracts approximately £93m of comparison goods expenditure from the survey

area, enjoying nearly 6% of the total market share. Pontefract’s strong performance, relative to most

other competing centres, may potentially be as a result of the centre being located within the survey

area (Zone 5), and therefore performing well in Zones 5, 6 and 7.

3.7 Upon analysing the telephone survey results, the strong role of the Meadowhall Shopping Centre is

evident, with a greater market share (5.2%) and expenditure (£83m) than the combined performance of

the two neighbouring centres of Sheffield (2.1% / £33m) and Rotherham (2.4% / £38m). Relative to

Sheffield and Rotherham, clearly the shopping centre’s strong market share / expenditure is not linked to

its proximity to the survey area, but may most likely be due to other factors such as better parking

provision, opportunity for linked trips to higher order retailers, and better linkages to the transport

network such as the M1 and the national rail network.

3.8 Whilst Meadowhall only attracted above 10% market share of comparison spend in one Zone (16.9% in

Zone 11), a proportion of all the respondents in the remaining Zones choose to shop at Meadowhall for

their comparison shopping. Similarly, a proportion of all the Zones do their comparison shopping in

Sheffield City Centre, perhaps owing to the higher order role of Sheffield compared to most other

competing centres in the area.



14

3.9 The strong performance of Doncaster across the survey area suggests that potentially Doncaster’s retail

catchment extends beyond the survey area, into neighbouring retail catchments, potentially encroaching

into catchments to the west close to centres such as Barnsley and Rotherham.

3.10 The relatively weak performance of other Sub-Regional Centres such as York, Wakefield, Rotherham

and Barnsley suggests a strong performance by Doncaster, which is retaining a large proportion of

spend from within the study area.

Profile of Competing Centres

3.11 The vitality rank of each competing centre discussed above has been derived from Javelin Venuescore

(2007). Javelin Group’s Venuescore provides an up-to-date ranking of UK shopping venues across a

number of key indicators – scale, market positioning, fashionability, age and positioning of the retail

offer. The score attached to each operator is weighted to reflect their overall impact on shopping

patterns. For example, anchor stores such as John Lewis, Marks & Spencer and Debenhams receive a

higher score than unit store retailers to reflect their major influence on shopping patterns. The resulting

aggregate score for each venue is called its Venuescore.

Table 3.2: Javelin Retail Rankings of Key Competing Centres

Centre Rank (2009) Previous Rank Position 2008

Rank Position 2005

Leeds 5 7 (��) 6

York 22 21 (��) 27

Sheffield 38 32 (��) 26

Doncaster 45 41 (��) 60

Meadowhall 49 36 (��) 32

Wakefield 124 121 (��) 131

Barnsley 203 183 (��) 145

Scunthorpe 213 165 (��) 180

Rotherham 282 262 (��) 268

Pontefract 428 400 (��) 314

Retford 434 383 (��) 337

Source: Javelin Venue Score 2009

3.12 It is evident from table 3.2 that Leeds is the strongest performer in terms of the Javelin UK rank position

indicators in 5th, having improved on it’s 7th position in the 2008 rankings. York, Sheffield, Doncaster

and Meadowhall Centre also perform well in the rankings, with Doncaster placing 45th, a position which

has slipped over the past 12 months from 41st in 2008. This fall in position is characteristic of all the

competing centres, with the exception of Leeds as previously mentioned. Wakefield is ranked at 124th,

whilst Barnsley, Scunthorpe and Rotherham are ranked 203rd, 213th and 282nd respectively. Pontefract

and Retford feature significantly below the other centres in 428th and 434th respectively. It should be



15

noted that Doncaster improved its rank position from 60 in 2005 following the opening of the Frenchgate

Centre reflecting the relative success of the scheme at the national scale.

3.13 In terms of retail floorspace Leeds city centre accommodates 282,239 sq m gross, with the next closest

centre being Sheffield with 192,783 sq m. As Table 3.3 illustrates Doncaster has a strong level of total

and comparison goods floorspace compared to the major competing centres in the sub-region, offering a

greater scale than York, Meadowhall, Scunthorpe and Barnsley. Wakefield, Rotherham, Retford and

Pontefract feature the lowest level of retail floorspace within their respective centres.

Table 3.3: Retail Floorspace of Competing Centres

Centre Total Retail and Leisure Floorspace (sq m gross)

Comparison Floorspace

Leeds 282,239 97,790

Sheffield 192,820 71,245

Doncaster 180,436 83,062

York 166,566 74,534

Meadowhall 130,910 108,656

Scunthorpe 116,779 45,790

Barnsley 112,924 36,649

Wakefield 100,382 42,325

Rotherham 70,290 21,070

Retford 55,240 19,778

Pontefract 53,466 16,666

Source: Goad Town Centre Reports

3.14 Prime Zone A retail rents (Table 3.4) have either increased or remained static in those centres where

data is available. Pontefract is not monitored to the same extent as the other competing centres, and

therefore does not have comparable retail rental data thus reflecting their lower order scale compared to

Doncaster and the higher order centres.

3.15 Meadowhall attracts the highest prime rental rates per sq m at £4,300 per square metre with the next

nearest centres being Leeds and Sheffield commanding average rental rates of £2,797 and £2,153 per

square metre respectively. The three centres of York, Doncaster and Barnsley average between £1,000

– 2,000 per sq m, with the other centres of Wakefield, Retford, Rotherham and Scunthorpe averaging

between £500 - £900 per sq m. Meadowhall prime retail rents are nearly eight times that of the lower

order centres, and has remained constant between 2005 and 2009, whereas the retail rents for all other

centres, with the exception of Retford have fallen during this period.

3.16 The highest fall in retail rents have been in Scunthorpe, which has fallen by over 41% between 2005 and

2009, and in Wakefield where retail rents have fallen by 30% over the same period. Doncaster’s retail



16

rents have fallen by 3.79% over the period 2005 to 2009, however this fall is relatively minor considering

the falls experienced in centres such as Scunthorpe and Wakefield.

Table 3.4: Prime Retail Rents of Competing Centres

Centre

2005

2009

% Change

Meadowhall 4,306 4,306 0.00

Leeds 3,337 2,797 -16.18

Sheffield 2,260 2,153 -4.73

York 2,099 1,884 -10.24

Doncaster 1,399 1,346 -3.79

Barnsley 1,292 1,076 -16.72

Wakefield 1,238 861 -30.45

Retford 538 592 +10.04

Scunthorpe 915 538 -41.20

Rotherham 753 538 -28.55

Pontefract - - -

Source: Colliers In Town Retail Rents

3.17 Low retail yields are one indication of a good performing centre within their intended role in the retail

hierarchy, and enables comparison on a like for like basis. The yield on a property reflects the annual

rental income represented as a percentage of the value of the property; low yields therefore indicate

high property values and strong investor confidence in the future performance of the centre as a whole.

3.18 Table 3.5 illustrates that as with other key indicators of performance, Leeds, Meadowhall and Sheffield

have some of the lowest retail yields of those centres featured in the survey results. In July 2008 Leeds

had a retail yield of 4.75%, which is the lowest of the competing centres and represents an improvement

of 0.25% on the July 2005 yield figure of 5%. Meadowhall, Sheffield and Doncaster have the next

lowest retail yield levels at 5.5%, which we believe to be a sign of healthy investor confidence.

Table 3.5: Prime Retail Yields of Competing Centres

Centre

2005

2009

% Change

Leeds 5 4.75 -0.25

Sheffield 5.75 5.5 -0.25

Doncaster 6 5.5 -0.50

Meadowhall 5 5.5 0.50

York 5.5 5.75 0.25

Rotherham 9 6.5 -2.50

Scunthorpe 6.5 6.5 -

Wakefield 7 6.75 -0.25

Pontefract 7 6.75 -0.25

Barnsley 7.25 7 -0.25

East Retford 9 8 -1.00

Source: Valuation Office Agency – Property Market Report



17

3.19 Doncaster’s strong prime retail yields are comparable to that of Sheffield; a higher order centre in the

regional hierarchy than Doncaster, and also performs well against similar centres in the area, with York’s

retail yield being 5.75%, Wakefield’s at 6.75% and clearly out-performing Barnsley, which has a prime

retail yield of 7%. The general trend within all of the centres is improving retail yields between 2005 and

2008, most notable amongst these being Rotherham improving by 2.5% over the period. The

Meadowhall Centre is the only retail centre where retail yields have actually risen, albeit by just 0.5%.

3.20 The strong performance of Leeds is also evident when one considers the number of retailers looking for

new retail space in the centre, as provided at table 3.6 below. There are currently 160 retailer

requirements registered on the Focus database at January 2010, reflecting a high level of demand to

locate in the city. This high level of demand is nearly twice as high as in the next most popular centre for

retailers, with 87 retail requirements registered for Sheffield, and 66 requirements for York. In

comparison, Wakefield (29), Doncaster (28), Barnsley (23), Rotherham (23) and Meadowhall (22) all

have much lower levels of retailer demand, but the centres with the lowest levels are Scunthorpe with 14

requirements, Pontefract with 8 and Retford with 7.

Table 3.6: Retailer Requirements for Competing Centres

Centre No. of Requirements

Leeds 160

Sheffield 87

York 66

Wakefield 29

Doncaster 28

Barnsley 23

Rotherham 23

Meadowhall 22

Rotherham 14

Pontefract 8

Retford 7

Source: Focus, January 2010

Pipeline

3.21 The analysis of key indicators above reviews Doncaster’s current performance in the retail network. We

have taken this a stage further and also reviewed developments in the pipeline in competing centres to

assess the likely increase in attractiveness that may compound trade leakage and impact on

Doncaster’s retail performance over the forthcoming LDF period. Full details of the pipeline schemes

are set out in Appendix 3c.



18

3.22 Several major redevelopment schemes are proposed within Leeds, which will strengthen the role of the

city centre in the coming years. Several of these developments are currently subject to delays or are on

hold, but notable permissions recently granted include the Harewood and Eastgate Quarter scheme,

which was granted outline planning consent and will comprise 100 retail units amounting to over 100,00

gross sq m retail space. Confirmed retailers for the scheme include John Lewis and M&S; however this

is a scheme which is currently on hold. Trinity Leeds is also a scheme on hold, but which has full

planning consent to deliver a new shopping centre comprising 9,568 gross retail floorspace.

3.23 A number of permissions have been granted in Sheffield in recent years for additional retail and leisure

development, notably the Sevenstone development, which is due to commence in 2011 and comprises a

major retail scheme providing 40,226 sq m gross retail floorspace, 24,990 sq m of which is due to be

occupied by John Lewis. Full planning consent has also been granted for development on land between

Victoria Station and the River Don to deliver a 198 room Crown Plaza Hotel, 161 room Express by

Holiday Inn, 460 sq m retail floorspace and a health club. The West Bar development, which has

received outline planning consent, comprises 10,780 sq m A3/A4/A5/D2, including a foodstore and 240

bed hotel, along with residential units.

3.24 Wakefield aims to improve its town centre with the delivery of the Trinity Walk development, which

comprises a new shopping centre, including Debenhams, Sainsburys, Next and New Look with a total

retail floorspace of 43,756 sq m gross. The scheme was delayed when the original developers went into

administration, but the site has been sold to another developer, and works are now due to commence in

early 2010, with opening expected in April 2011.

3.25 Large scale redevelopment of Barnsley town centre proposals have outline planning permission, which if

delivered, will also see Barnsley’s retail offer improve and expand providing a total of 39,483 sq m gross

A1 retail space, as well as 4,645 sq m gross. Construction is due to start in 2010, but this is currently

under review. Once delivered this will see significant improvement of Barnsley’s retail offer, and attempt

to improve alongside other centres in the region benefiting from investment in their town centres.

3.26 Proposals for the new River Don District Centre on land adjoining land at Meadowhall have received

outline planning consent, which will comprise leisure, offices and residential accommodation. Several

smaller scale retail developments have recently been granted planning permission in other competing

centres, although Scunthorpe and Retford currently have no schemes in the pipeline.

3.27 The large scale development proposals for Leeds, Sheffield, Barnsley and Wakefield will increase the

attractiveness of these centres, and could potentially erode Doncaster’s market share of available

comparison retail expenditure within the survey area. Given the recent opening of Frenchgate in 2006,

and the recent outline approval for the town’s Cultural and Civic Quarter (CCQ)2 the town centre is well-

positioned in the short term, but further development opportunities may need to be encouraged through

2 The Cultural and Civic Quarter will deliver approximately 13,626 of retail floorspace (10,902 sq m net sales area) amongst other town centre uses.



19

the LDF to ensure that Doncaster retains its strong market share and remains competitive with other

centres in the area.

Summary

• In terms of the sub-regional context, the household telephone survey has identified Pontefract,

Meadowhall, Scunthorpe, Retford, Wakefield, Rotherham, Sheffield, Leeds, York and Barnsley as

Doncaster’s main competing centres. Our review of the key performance indicators confirm the

higher order shopping roles of Leeds, Sheffield and York, which are located outside the Zone 1-11

survey area. They have a superior retail offer and increasingly mobile shoppers and new retail

development have led to a continued influence on shopping patterns in Doncaster’s catchment

area; although this is minimal in quantitative terms demonstrating Doncaster’s strength in the

catchment – particularly following the opening of the Frenchgate Centre extension.

• Doncaster performs its role as a second tier shopping centre, as envisaged in the RSS and

Structure Plan, and retains a strong proportion of expenditure across the survey area, but

particularly well within Zones 1, 2, 3, 4, 6 and 8. Pontefract is a lower order centre but is located

within the Zone 1-11 survey area and therefore captures a relatively significant proportion of

available trade. Doncaster must plan to consolidate and improve its town centre function in order

maintain its position in the wider regional and sub-regional shopping hierarchy as envisaged in the

Core Strategy for the forthcoming LDF period. It is clear, however, that in the economic climate a

number of competing schemes have been shelved or postponed thus protecting Doncaster’s

market share position in the short-medium term.

• Policy does not require Doncaster to compete with the higher order centres nor to achieve a step

change to the same level in the hierarchy. Rather, policy supports development within the town

centre to ensure it offers a high standard and quality of retail and commercial variety and

convenience. The centre therefore needs to strike a balance over the forthcoming LDF period to

enhance the retail and leisure offer and wider mix of uses whist protecting the character of the built

environment and enhancing its physical environment and general visitor attraction.



20

4. DONCASTER QUALITATIVE REVIEW

4.1 We have undertaken a detailed and up-to-date assessment of the vitality and viability of Doncaster Town

Centre in accordance with the Key Town Centre Health Check Indicators set out in Annex D of PPS4

(2009). PPS4 confirms that in order to measure the vitality and viability and monitor the health of their

town centres over time and inform judgements about the impact of policies and development, local

authorities should also regularly collect market information and economic data on the key indicators.

4.2 This chapter draws comparisons with the findings of the 2007 Doncaster Health Check Update, utilising

the most recent data in order to identify changes and trends in the vitality and viability of specific

indicators. The research draws on the latest Experian Goad plan (November 2008), the Focus national

database, EGi shopping centre research, and other relevant sourced property databases; and also

supplemented by on-site assessments and observations undertaken during November 2009. The

analysis also draws on the results of the household telephone surveys to assess customer views and

behaviour.

Overview

4.3 Doncaster is defined as a Sub-Regional Centre in Yorkshire’s Regional Spatial Strategy (adopted May

2008), providing a prime focus for shopping, leisure, employment, education, health, and cultural

activities and facilities in the region. At the local level, Doncaster is the principle town centre at the head

of the retail hierarchy, providing a focus for commercial and retail activity in the Borough underpinned by

its South Yorkshire market town heritage.

4.4 Doncaster has a large number of retail and service uses, with the latest GOAD plan (November 2008)

indicating 727 retail and service units at a total of 182,946 sq m floorspace within the primary shopping

area, providing a scale of services and facilities of sub-regional significance. The centre provides an

important retail and service centre for residents within and beyond the Borough. As identified within the

household telephone survey (discussed in Section 3), Doncaster competes in terms of catchment and

shopper attraction with higher order centres including Barnsley, Rotherham, Sheffield, Meadowhall and

York.

4.5 Doncaster forms a reasonably compact town centre with distinguishable primary and secondary retail

areas. The Principal Shopping Area is defined on the proposals map, within which primary and

secondary shopping frontages are allocated (Policies TC6 and TC7). The Primary Shopping Frontages

are generally focused in the west of the town centre on St Sepulchre Gate, Frenchgate, High Street, and

Baxtergate leading to Market Place. Secondary Shopping Frontages are broadly located in the east and

south of the Primary Shopping Area, with some occupying more central and interconnecting locations.



21

Key Indicators

4.6 Doncaster town centre has improved its national rank position in the UK retailer demand rankings

despite requirements from retailers for space in the town centre declining considerably in recent years.

This demonstrates the fall in requirements for space across the UK, likely a consequence of the current

recession and economic credit crunch. In April 2005, for example, there were 58 requirements from

operators for space in the centre, but this has fallen to only 30 in April 2009. Retailers with a

requirement for space appear to be from the lower end of the market including Poundland, 99p Stores,

and TK Maxx, as well as The British Heart Foundation Charity Shop and Age Concern. Others include

Laura Ashley, Asda Living and Subway sandwich/café operator.

4.7 Doncaster has also slipped in the Javelin VenueScore Retail Rankings, which is based primarily on the

range and representation of retailers and multiple retailers in each respective town across the UK.

Doncaster was ranked 41st in 2007 with a Venue Score of 236, but this fell to 45

th in 2009 with a Venue

Score of only 206. Despite the Frenchgate extension, Doncaster has not improved its comparative

position in respect of the representation of multiple retailers and mix and choice. Nevertheless, it has

maintained a broadly similar position in the context of improving centres across the UK. We note,

however, that there are few vacant units within the prime pitch with which to attract new, higher quality

retailers to enable an enhanced rank position in the future.

4.8 Prime Zone A retail rents have remained static at £1,453 per sq m between 2006 and 2008, but have

fallen marginally to £1,345.50 in 2009. This is unsurprising and consistent with UK national trends in

light of difficult economic circumstances and the continuing recession. Such a trend and the position for

Doncaster should be monitored carefully to judge how the centre is faring up to rental expectations and

economic shifts; the level of rent that retailers are prepared to pay for space in a centre is an indication

of the perceived attractiveness of that centre, but also a marker as to wider economic trends.

4.9 Low and decreasing yields demonstrate strength in the level of investor confidence in a town centre.

Doncaster had a good yield of 6% in 2005, which has subsequently fallen to 5.5% in 2008 – the same

level as Sheffield and Meadowhall. This is a positive and strong position for Doncaster to be in at the

current time, reflecting an improvement in investor confidence in the town centre retail sector.

4.10 The number of vacant units has increased in recent years from 56 in October 2005 to 68 in June 2006,

107 in January 2007, and stood at 104 in November 2008. The 2007 Retail Study Update quoted the

Frenchgate Centre for being responsible for the significant increase in vacant units between June 2006

and January 2007, i.e. following the extension opening in 2006. The report stated that whilst a number

of the Frenchgate units remained un-let, a number of retailers in the town centre had relocated from their

existing premises to the Frenchgate Centre, leaving empty units elsewhere.

4.11 Since this time, however, the vacancy rate remained high and in November 2008 was still above the

national average for town centres and significantly higher than the June 2006 figure. There has clearly

been a shift in pedestrian activity since the opening of the Frenchgate Centre extension and the closure



22

of the southern bus station and college in the south/east of the town centre, and consistent with previous

findings the more peripheral areas continue to suffer from high concentrations of vacant floorspace.

Therefore, whilst the overall vacancy level has remained high since 2007 despite the Frenchgate Centre

becoming fully let, vacancy levels in prime areas are relatively low, suggesting an increase in vacant

units in the more secondary locations such as Waterdale.

4.12 The total vacancy rate in Doncaster has, nevertheless, increased substantially since previous surveys in

2005. The Local Data Company (LDC) produced their end of year report (2009) into vacancy rates

across the UK which identified an increase over the last two quarters, although at a lesser rate than

before. According to LDC’s survey of over 700 town centres, overall shop vacancy has very nearly

doubled in England and Wales since the end of 2008 with the northern regions being particularly badly

affected. Doncaster has the 5th highest vacancy rate in the country (within the ‘large centres’ ranking);

with a 19.5% vacancy rate, and a considerable jump in rank position from 23rd in mid 2009.

4.13 This reflects a further increase from the most recent Experian Goad Survey in November 2008, which

identified a vacancy rate of 14.3% (see below). Only Wolverhampton, Bradford, Sheffield and

Middlesbrough have a higher vacancy rate. This figure, and growth in the number of vacant units in

Doncaster town centre, is clearly a concern, although as we have identified this does not reflect the

imbalance across the centre. The vacancy rate in the prime retail area is low, and the increase in vacant

units is arising in the more secondary areas around Waterdale. The overall level, and the location of

vacant units, should be monitored carefully over the next twelve months.

Diversity of Uses

4.14 The most recent Experian Goad data for Doncaster Town Centre was produced in November 2008,

superseding information used within the 2007 Retail Study Update. Doncaster is identified as having a

total of 727 retail and service units at a total of 182,946 sq m floorspace. Table 4.1 illustrates the

composition of uses within the centre in comparison with national averages.

Table 4.1: Doncaster Retail Composition by Number of Units (November 2008)

Doncaster Town Centre

Retailer Composition: Unit Count by Use Category

Retail Category No. of Units % of Total UK Average (%) Variance

Comparison 245 33.70 34.41 -0.71

Convenience 51 7.02 8.81 -1.79

Retail Service 79 10.87 13.03 -2.16

Leisure Service 159 21.87 21.57 0.30

Financial Service 89 12.24 11.16 1.08

Vacant 104 14.31 10.84 3.47

Miscellaneous 0 0.00 0.18 -018

TOTAL 727 100 100

Source: Experian Goad Category Report (November 2008)



23

4.15 It is evident that the retail and town centre composition in Doncaster is broadly consistent with national

average trends across the UK. Marginal variations include a lower than average proportion of

comparison, convenience and retail service units, but higher than average representation of leisure

operators and financial services. A stronger variation is apparent in respect of the proportion of vacant

units, where the centre also a higher number compared to the national average (3.47%).

4.16 The detailed Goad Town Centre Category Reports allow a finer grain of analysis for each retail/town

centre category. It is evident, for example, that whilst the proportion of convenience goods units (%) has

increased since 2005, the overall percentage remains below the national average. Within this category,

there is an above average representation of bakers, CTN (convenience, tobacconist & newsagent),

frozen foods and markets. The proportion of supermarkets, grocers and convenience stores are,

however, considerably below national average levels. We discuss operator representation later in this

section.

4.17 Like convenience goods, the comparison goods sector is below national average in terms of number of

units. Our analysis demonstrates that there has been a decline in the number of units and overall

percentage of total since 2005, although we add that this does reflect national trends across the UK.

Consistent with its role as a Sub-Regional Centre, Doncaster has an above average provision of key

attractors including department and variety stores (improved by the opening of Debenhams in the

Frenchgate extension); children’s, ladies and mens-wear shops; footwear operators, and jewellery

shops, demonstrating a strong vitality indicator.

4.18 The proportion of retail services is below national average, with only opticians and photo studios being

above the national average. There is a below average representation of dry cleaners and laundrettes,

health and beauty operators and post offices. The proportion of financial services is marginally above

national average provision, with a strong representation of career and employment centres, building

societies and general financial and legal services. The number of banks is below national average,

although there are 15 units distributed throughout the centre, and we would not identify this as an area

of concern.

4.19 Leisure operators provide the daytime and evening eating/drinking and entertainment facilities, and it is

evident that Doncaster offers a range in line with the national average. Those uses with a particularly

strong representation include bars and wine bars, bingo and amusement operators, discos and

nightclubs and public houses; i.e. those targeted towards the night-time economy. The numbers of

cafes, restaurants and fast food take-aways are below average, and there are three hotels and one

sports facility recognised. In light of competition from the internet, and other centres, the leisure uses

perform an important role in completing the overall attraction and length of ‘shopper stay’ in a centre as

a daytime visitor/tourist destination.

4.20 Considering retail provision in terms of floorspace (Table 4.2), the figures reflect the implementation of

the Frenchgate Extension since the 2007 Update Study with the amount of comparison floorspace rising



24

from 71,926 sq m gross (2007 Study Update) to 83,065 sq m gross. The amount of comparison goods

floorspace is now considerably above the national average, likely a consequence of the additional

floorspace and bigger format stores comprising the new shopping centre extension. Consistent with the

number of units, the amount of convenience goods floorspace is below the national average; and the

proportion of floorspace occupied by service operators is also below average. Vacant floorspace is

above the national average.

Table 4.2: Retail and Service Provision in Doncaster by Floorspace


Retailer Composition: Unit Count by Floorspace

Retail Category Floorspace (sq m) % of Total UK Average (%) Variance

Comparison 83,065 45.40 37.81 7.59

Convenience 17,020 9.30 14.31 -5.01

Retail Service 9,262 5.06 6.99 -1.93

Leisure Service 36,790 20.11 22.83 -2.72

Financial Service 15,506 8.48 8.76 -0.28

Vacant 21,303 11.64 9.16 2.48

Miscellaneous 0 0.00 0.12 -0.12

TOTAL 182,946 100 100

Source: Experian Goad Category Report (November 2008)

Retailer Representation

4.21 The quality of the retail offer within a centre provides an indication of its vitality and viability. The

representation of national and regional multiples indicates the extent to which the centre is successful in

attracting both retailers and shoppers and developing itself as a comparison destination. The latest

Goad Category Report (November 2008) indicates that 281 of the 727 units in Doncaster town centre

are occupied by multiple retailers, accounting for 39% of retail and service operators.

4.22 In the comparison goods category the number of multiples (47.3%) is above the national average (42%),

which is strong vitality indicator and indicative of the good representation of key attractors in the town

centre. There is a below average provision of leisure services, i.e. eating/drinking; and consistent with

the overview of the diversity of uses, there is a below average representation of multiple convenience

goods stores.

4.23 In terms of floorspace, the overprovision of multiple comparison floorspace is even more marked with

63% occupied by such retailers compared to a national average of 47%. Likewise, the proportion of

convenience floorspace occupied by multiple retailers is significantly below the national average; 9%

compared to 20%. Whilst this is a significant under representation in convenience provision, this is

perhaps reflective of the important function that Doncaster Market makes to the diversity and vitality of

this retail category; something which is not identified within the multiple retailer analysis.



25

4.24 Doncaster’s prime pitch has traditionally been located on St Sepulchre Gate outside the entrance to

North Mall (ground floor) of the Frenchgate Centre. However, with the growing dominance of the

Frenchgate Centre within Doncaster, the prime pitch has shifted somewhat and is now considered to be

the pitch between Next and Debenhams on the Upper West Mall.

4.25 Doncaster has three department stores; the more dated House of Fraser (now an outlet format),

occupies four floors on Baxtergate, while TJ Hughes occupied a corner unit at the southern end of St

Sepulchre Gate near the south mall entrance to the Frenchgate Centre. The most recent addition is the

100,000 sq ft Debenhams, which anchors the Frenchgate Centre extension. Variety store operators Bhs

and Marks & Spencer are also represented in Doncaster town centre. Despite the increase in

floorspace, the range of fashion multiples in Doncaster remains very mainstream with a high number of

lower and middle market retailers and no higher order/quality fashion multiples.

4.26 Convenience goods provision is reasonably limited. Sainsbury’s is located within the Frenchgate Centre

and Farm Foods, Jack Fulton and Iceland are also represented, although in small units and unlikely to

act as key attractors. The largest foodstore in Doncaster is Tesco, which is located to the north west of

the centre, near to French Gate but on the opposite side of the ring road with its own store dedicated car

park. The market makes a significant contribution to Doncaster’s convenience goods retail offer, as

discussed and demonstrated later in this report. The facility adds to the diversity and range of goods

and produce on offer, forming an attraction in its own right.

Overview of Character Areas

4.27 It is possible to distinguish a number of different but interconnecting shopping areas within the town

centre. For the purpose of the Doncaster health check we have identified 7 different retail areas to

enable a more detailed understanding of the function and mix of retail provision. The general retail

areas are illustrated at Plan 5 and described in more detail below.

The Central Shopping Area

4.28 Market Place, High Street, St Sepulchre Gate, Frenchgate Street and Baxtergate form the prime retail

area within Doncaster Town Centre, and are designated Primary Shopping Frontages. It is

predominantly pedestrianised, creating safe and accessible pedestrian links which lead onto secondary

streets. Wide walkways and attractive planters and street furniture serve to provide a high quality retail

environment. As recognised in the previous healthcheck, St Sepulchre Gate has a number of large and

prominent historic buildings which provide attractive retail frontages.

4.29 In general this area is characterised by comparison retailing, national multiple retailers and key attractors

within a mixture of style and format units. High street banks are concentrated on High Street (including

Lloyds, Natwest, Abbey, Barclays and HSBC); and Co-operative Bank, Yorkshire Bank and RBS

represented on St Sepulchre Gate. The western side of St Sepulchre Gate comprises those retail units

fronting the Frenchgate Centre which again comprise mainly national multiple comparison retailers in a



26

mixture of small and large units. This extensive area of active frontage enables effective integration of

the Frenchgate Centre with the rest of the primary retail area.

4.30 The central shopping area is vibrant on each of the four primary streets with observed strong pedestrian

flows, particularly on Frenchgate and Baxtergate, with Debenhams, Primark and Doncaster Markets

acting as significant anchors along this route. Vacant units appear to increase in frequency along the

eastern side of Baxtergate in comparison to the rest of this retail area, although overall vacancy levels

are low, again indicative of the vitality and viability of these primary shopping streets.

4.31 Commercial agents marketing properties on Baxtergate cite several factors as being responsible for the

level of vacancies at the eastern end of Baxtergate. The development of the Frenchgate Centre has re-

focused the town centre, and high rental values in this area are affecting the ability of retailers to locate

to vacant units on Baxtergate, whilst some multiples prefer to wait for accommodate in or nearer

Frenchgate. We also understand that retailers currently located in more secondary streets (who would

like to take one of these units) are unable to leave their existing premises due to long lease

arrangements, and difficulties in finding businesses to take over their leases. They have no choice but

to stay in their unit.

4.32 The streets around Market Place are characterised by fewer multiple retailers and an increase in the

provision of convenience and service uses including a number of cafés, restaurants and bars to the

north of the town centre. Such uses support the vibrancy of the Market Place, although we have

identified three large vacant units within these frontages.

4.33 Elsewhere, Priory Place and Scot Lane comprise secondary retail streets providing north/south links

within this retail area. As you would expect, these streets are characterised by a greater proportion of

service uses, including financial, administration and leisure uses alongside more limited comparison

uses. Printing Office Street runs east/west to the south forming part of the Primary Shopping Frontage,

although with fewer comparison and national multiple retailers. There are limited vacancies in this area.

4.34 The main Tesco foodstore is located on the other side of the ring road, opposite the far end of

Frenchgate. The store opened in 1987 and comprises a total net sales are of 2,379 sq m the majority of

which is given over to the sale of convenience goods, although 384 sq m net sales area comprises

comparison goods sales area. The store operates 13 checkouts, and has an approximate parking

capacity of 333 bays provided in a range of formats. Pedestrian accessibility to the store is poor, being

segregated by Trafford Way/Church Way ring road and requiring pedestrians to cross three lanes of

heavy traffic as well as the customer car park. Linkages might improve if current proposals to provide an

‘at grade’ access to the store are implemented. The store currently falls within the Shopping Policy

Area, but outside Primary and Secondary Shopping Frontages.



27

The Frenchgate Centre

4.35 The original Frenchgate Shopping Centre dates from 1967, but a major extension was completed in

June 2006, transforming the centre and improving the overall retail offer of Doncaster. The extension

links the shopping centre to an integrated public transport exchange and includes a 100,000 sq ft

Debenhams department store, 40 unit shops and a food court. The Centre forms part of the Primary

Shopping Frontage and integrates well to the higher footfall found on St Sepulchre and Frenchgate.

4.36 Retailer representation within the Frenchgate Centre comprises mainly comparison retailers, most of

which are national multiples and therefore key attractors. These include BHS, Boots, Superdrug, Argos,

New Look, H&M, HMV, TopShop/TopMan, River Island, Faith Shoes, Monsoon, Next, Wilkinsons and

Republic Clothing. Whilst vacancy levels increase on the upper floors, the numbers are generally low

within the centre indicating good trading levels.

4.37 A large Sainsbury’s foodstore acts as a strong convenience anchor within the centre, which has been

located in the centre since 1974. The store comprises 1,569 sq m of predominantly convenience goods

with a limited range of comparison goods (approx. 10-15% total sales area). The store is located at the

southern end of the Frenchgate Centre and benefits from pedestrian footfall passing through Frenchgate

from the south.

Market Place

4.38 Market Place, located to the north of the pedestrianised prime pitch, falls within the Primary Shopping

Frontages and provides a focal point of activity within the town centre. With over 600 stalls in four

separate permanent markets (the Corn Exchange, Wool Market, Fish Market and General Market), the

market is fully functional 3 days a week (on Tuesdays, Fridays and Saturdays) although many of the

food stalls operate on other days of the week. The outdoor market also opens on Wednesdays, trading

in antiques and bric-a-brac goods.

4.39 Whilst the outdoor market stalls are of lower quality than those in the permanent markets, their presence

adds a great deal of vibrancy and vitality to this area of the town and forms a popular attraction for

visitors. Surrounding bars and cafés add to the sense of place and vibrancy. The Market Place

Conservation Area was designated in 1974, protecting the attractiveness and heritage of this area. The

Market Hall, Corn Exchange and Fish Market are all Grade II* Listed Buildings. The Wool Market is a

Grade II Listed Building.

Colonnades/Duke Street

4.40 The Colonnades is a smaller shopping centre adjacent to the Waterdale Centre, comprising mainly small

scale units. The area is pedestrianised and, in some parts, covered to provide a pleasant retail

environment. Anchored by TJ Hughes department store, this area is characterised by lower quality

comparison and convenience retail operators providing some low cost multiple retailers including Pound



28

World and Home Bargains. The scheme has entrances off Cleveland Street, Duke Street and Pells

Close, although all are narrow and dimly lit leading to a more central square. There are a number of

vacant units in the area.

4.41 Duke Street is characterised by a limited number of multiple retailers and both Duke Street and the

southern end of Cleveland Street are dominated by a number of large vacant buildings and poor quality

or vacant frontages. Spring Gardens is represented by secondary retail and service providers. This

area of the town, which is currently designated as Secondary Shopping Frontage, hosts a number of bus

stops leading to a cluttered appearance and poor retail environment.

Waterdale

4.42 Once a thriving part of the town centre, the Waterdale area has suffered a steady decline in recent years

following the closure of the southern bus station and the former college, as well as the opening of the

Frenchgate extension and a consequent shift in shopper activity. The Waterdale Centre, an open street

precinct currently designated as Secondary Shopping Frontage, appears tired and dated with few

multiple retailers of note, a high number of vacancies and low pedestrian footfall. The scheme is

anchored by Iceland and Farmfoods.

4.43 To the north of the centre are a number of administrative and local government buildings as well as

offices and professional services. A large health and fitness centre lies to the south. There are plans to

develop the Civic and Cultural Quarter to the south of Waterdale which will help to revitalise this area

through increased footfall and a superior profile and general environment. The intention is a quality built

environment and the creation of a clear identity to redefine this declining part of the town centre.

Hall Gate / Silver Street

4.44 Hall Gate (running east/west) and Silver Street (running north/south) form two key secondary retail

streets, connected to the primary retail circuit with direct links onto High Street and Market Place. The

lengthy streets are characterised by a concentration of bars, restaurants and takeaways interspersed

with lower quality retail and professional service provision (solicitors, estate agents).

4.45 Silver Street is characterised by a range of small scale and large format units but comprises low quality

buildings with few multiple retailers. The street is not pedestrianised and pavements are fairly narrow

with a number of bus stops. It is the main night-time leisure destination, characterised by large format

A4 units, with operators including Shooters Bar, Che Bar, VIP Bar, Coco Bar, Hogans, Tryst and Aruba.

It is understood that the street is closed to through traffic in the evenings (aside from taxis) to enable

both a pedestrianised environment and effective policing and maintenance of the area at night. La

Baracca is a large format A4 unit that has been vacant for some time, now detracting from the overall

environmental quality.



29

4.46 In comparison, Hall Gate comprises a more traditional and attractive streetscape with wider pavements

and is the focus for professional services within the town, including estate agents, employment agencies

and solicitors. There are few multiple retailers and a small number of independent retailers contribute to

the overall mix, as well as take-aways, charity shops and a further concentration of leisure uses

including public houses, bars and night-clubs. The vacant cinema, located out the outer periphery of

Hall Gate, has now been demolished. A small secondary shopping location, Bowers Fold, is located off

Silver Street, comprising vacant units, a coffee shop, take-away, charity shop, and a pawn brokers.

Nether Hall Road / Copley Road

4.47 Nether Hall Road and Copley Road are peripheral to the Primary Shopping Area, lying outside of the

Shopping Policy Area, but designated as a Commercial Fringe Policy Area in the Adopted UDP.

Forming at extension to the Primary Shopping Area, these streets extend from the Market Place in a

north west direction and are surrounded by a concentrated residential area of terraced housing. These

streets stretch beyond the Goad survey area, and a detailed retail audit has been undertaken as part of

the study (appendix 4).

4.48 It is evident that 60% of units on Nether Hall Road and Copley Road are occupied by retail service

operators, including a high concentration of restaurants, cafes and take-aways. The area has emerged

in recent years as an important part of the daytime and evening leisure offer in Doncaster, and whilst the

streets adjoin the Primary Shopping Area they have effectively formed their own sense of identity

separate to the Primary Shopping Area. We understand that linkages and linked trips between the town

centre and this area are, however, currently limited.

4.49 Both Copley Road and Nether Hall Road have a multi-cultural representation with convenience stores

including a number of Polish supermarkets, Ariana Food and Wine, an Asian convenience store, and the

Kiran Halal butchers. Nether Hall Road has a particularly strong representation of financial services,

including estate agents, property advisors, employment agencies and advice centres. Again, the retail

leisure operators contribute to the multi-cultural mix with Caribbean, Nepalese, Indian, Italian and Thai

restaurants; although retail services such as hairdressers, beauticians, laundrettes, and dry cleaners, for

example, are limited in representation.

4.50 Copley Road appears more vulnerable with a considerable number of vacant units compared to Nether

Hall Road. This has become apparent from our on-site surveys and demonstrates the closure of many

of these units since the 2008 Experian Survey, perhaps reflective of current economic conditions. Whilst

the environmental quality of the area is notably lower than that experienced in the primary retail area, the

streets are generally clean and well maintained with an absence of litter and graffiti. The presence of

parked cars on shop forecourts/driveways detracts from the quality of the overall environment, and

reflects the more local function of this area compared to the main town centre.

4.51 Overall, this area is characterised by office and financial services, with a good representation of evening

restaurants. There are few daytime coffee shops and cafes, no foodstore anchor, and a low



30

representation of independent comparison retailers and retail service operators which generally serve

local walk-in catchments for their day-to-day requirements. There is one Post Office on Nether Hall

Road.

Potential for Change

4.52 Drawing on previous observations and our up-to-date review, we have identified the following potential

development opportunities with which to enhance the town centre offer in Doncaster:

�� Market Car Park: This large short stay surface level car park lies at the northern end of the town

centre within the Primary Shopping Area; adjoining the market. It primarily serves the market traders

and their customers, and is short stay at their request in order to encourage higher trip generation.

Clearly, any redevelopment would require the retention of parking spaces, but some form of

retail/leisure development might be appropriate to contribute to the vitality and viability of this area

further. The retention of car parking would be strongly supported by the market traders;

�� Land at Frances Street and King Street (to the north of Hall Gate): This site lies on the northern

side of Hall Gate and comprises a large NCP car park as well as back offices and service yards.

Vehicular access to the site could be a constraint although use could be made of the vacant site

fronting onto Hall Gate or the creation of a route through from Silver Street or East Laith Gate. This

would effectively open the site up for development and more effectively link the site to primary and

secondary shopping streets. It would likely be suitable for a mixed use town centre scheme, perhaps

including some residential element. Any loss of car parking would have to be considered by the

council as part of their overall parking strategy.

�� The Waterdale Centre: This declining area continues to suffer from a high vacancy rate, low footfall

and a poor environmental quality. Redevelopment (including the multi storey car park) provides the

opportunity to develop a strong retail anchor at the southern end of the town, re-balancing the centre

and contributing further to the overall retail and leisure mix on offer. Alternatively, options could

include a commercial leisure development, restaurants, residential and some

convenience/comparison retailing offer, for example. Proposals should consider the CCQ in the

adjoining area of the centre, as well as the incorporation of land to the north adjoining Wood Street.

Any loss of car parking would have to be considered by the council as part of their overall parking

strategy.

4.53 There are also a number of smaller sites within the Primary Shopping Area including:

�� Land at Trafford Way and Cleveland Street: This site comprises a multi-storey car park on the

corner of Trafford Way and Cleveland Street to the south of the prime retail area. Building on this, a

wider opportunity could be considered within the wider Waterdale redevelopment area – discussed

later in this report;

�� Bowers Fold: The declining, small precinct has a number of vacant units and detracts from the

overall environment. Comprehensive redevelopment could open up the site and improve linkages



31

from Market Place through to Silver Street. A more comprehensive option could include a review of

the wider block north of Bower Fold, between Market Place and Silver Street;

�� 24-28 and 55-60 Silver Street: These units comprise of the vacant La Barraca Bar and Restaurant

and Hogan’s Bar. Whilst Hogan’s Bar is currently trading, both units are of a poor quality and La

Barraca (and the offices above) have been vacant for some time. Their redevelopment or

refurbishment would considerably enhance the environment compared to their current poor quality.

Accessibility

4.54 Doncaster is well connected to the motorway network, being located in close proximity to the A1(M) and

M18 as well as other major roads including the A19 and A630. These link the centre to surrounding

neighbourhoods, cities and towns including Barnsley, Mexborough, Rotherham and Scunthorpe.

Doncaster Town Centre benefits from much improved public transport links. Since 2006 Doncaster

Railway Station has been located within the newly extended Frenchgate Centre, also incorporating an

integrated bus station within a high quality and enclosed environment in close proximity to the prime

retail streets.

4.55 The centre benefits from extensive regular train services to major centres including Barnsley,

Rotherham, Sheffield, Meadowhall, Scunthorpe, Wakefield and Leeds as well as surrounding towns

including Mexborough and Thorne. Two services run every hour directly to London as well as direct

services to Edinburgh along the east coast mainline.

4.56 Regular bus services operate to/from Doncaster to surrounding towns, centres and residential

communities including services to Rotherham, Sheffield, Meadowhall, Robin Hood Airport, Goole,

Lakeside Shopping Centre, Mexborough and Thorne. In addition to the bus interchange, bus stops are

located around the town centre including a concentration at Duke Street, Hall Gate, Silver Street and

College Road. The location of bus stops in these key areas within the centre aids pedestrian movement

within and around the centre.

4.57 In terms of pedestrian movement, the primary shopping area, including High Street, St Sepulchre Gate,

Frenchgate and Market Place as well as the Frenchgate Centre, is pedestrianised, aiding connectivity

and allowing for easy pedestrian movement. Secondary retail areas are served by a number of

pedestrian crossings which are successful in prioritising pedestrians to provide a safe and high quality

shopping environment in both primary and secondary streets. As mentioned above, Silver Street

comprises narrow pavements which could inhibit pedestrian movement at peak times although it is

understood that this is pedestrianised at night. Accessibility along Nether Hall Road is reduced by the

presence of parked cars in retail forecourts.

4.58 The main town centre car parks are located within the Frenchgate Centre, the multi-storey car park at

the Southern Bus Station, Waterdale and the Tesco car park to the north. This, along with other areas

of town centre parking provides the centre with a significant supply of car parking and site visits

indicated that none of the car parks were operating at capacity at that time.



32

Strengths/Weaknesses

4.59 Drawing on the health check analysis set out in this section we summarise in Table 4.3 the key strengths

and weaknesses which demonstrate the opportunities and threats to Doncaster over the forthcoming

LDF period.

Table 4.3: SWOT Analysis: Vitality and Viability of Doncaster Town Centre

Strengths/Opportunities Weaknesses/Threats

o Benefits from a relatively compact town centre composition with good circulation routes;

o Doncaster has improved it’s national rank position in the UK retailer demand rankings despite requirements declining significantly – a sign of UK trends;

o Mix of town centre uses broadly consistent with UK national averages;

o Clear development opportunities focused around the south of the centre, which could incorporate Waterdale and/or The Colonnades to re-balance the centre and enhance the retail attraction in this part of the town centre;

o A strong evening and night-time economy offering a wide range of restaurants, bars, pubs and nightclubs;

o An above UK average representation of key attractors including department and variety stores, clothing and footwear shops;

o The recent extension of the Frenchgate Centre has considerably enhanced the town centre, offering a new 100,000 sq ft anchor Debenhams department store;

o The proportion of floorspace occupied by comparison goods retailers is significantly above the UK national average reflecting the bigger format units in the new Frenchgate centre and the good representation of department and variety stores;

o Retail yields have improved marginally since 2005 indicating a slightly stronger return on investments and consistently healthy investor confidence in the centre. This is a consistent trend in other major Yorkshire town/city centres;

o The proportion of national multiple retailers is above the national average (47.3% / 42%);

o The Market Place is a designated Conservation Area with a number of Listed Buildings;

o The market contributes substantially to the

o Centre is relatively unbalanced with primary retail focus and highest footfall in the west of the Primary Shopping Area, with more secondary and less attractive secondary areas to the east of the Primary Shopping Area;

o The Waterdale Centre is tired and outdated, with few key attractors, a high vacancy rate and a low pedestrian footfall. The area is in a cycle of decline;

o Retailers with a requirement for space in the centre area generally of low to mid value;

o Despite the Frenchgate extension, Doncaster has not improved it’s Javelin VenueScore UK rank position, based primarily on the representation of national multiples;

o Few vacant units in the prime pitch, and inappropriate units elsewhere to meet a need or generate interest from additional multiple retailers;

o Prime Zone A rents have fallen since 2008, but this is a widespread UK trend in light of economic circumstances;

o Vacant units 3.5% higher than the national average;

o Number of convenience outlets and floorspace is below the national average, with a notable lack of national multiples distributed throughout the centre. The largest store, Tesco, is beyond the ring road;

o Strong night-time economy comprising pubs, bars and nightclubs which can give rise to anti-social behaviour;

o There is a below average representation of daytime cafes and restaurants – the type of offer that creates a destination, increases visitor attraction and stay time;

o Nether Hall Road / Copley Road is separated from the Primary Shopping Area and linked trips are rare aside from local residents;

o Vacancy rates are above the national average, and have been for a number of years, but remain concentrated around the



33

overall retail offer, the visitor attraction, and the vibrancy of the town centre as a whole;

o Nether Hall Road / Copley Road provide an additional area of attraction adjacent to the Primary Shopping Area, contributing to the evening restaurant offer in particular;

o Vacant units are generally concentrated around Waterdale and the south east part of the town centre, and through re-development can be addressed;

o There are a number of development/growth opportunities to pursue including Market Car Park, Land at Frances Street and King Street, and The Waterdale Centre, as well as a number of smaller potential sites

Waterdale Centre;

Summary and Conclusions

• Our assessment of Doncaster has identified a generally healthy town centre performing in

accordance with it’s role as a Sub-Regional Shopping Centre, and is much enhanced following the

recent opening of the Frenchgate Shopping Centre extension. Nevertheless, there are signs of an

imbalance in activity across the centre with the primary area focused in the west around Frenchgate

and surrounding prime shopping streets, with a considerably lower level of activity in the east

around Waterdale and surrounding streets. The opening of the Frenchgate Centre and adjoining

new transport interchange, together with the closure of the bus station in the east beyond

Waterdale, has exacerbated this shift in activity and focus in the shopping centre.

• The town centre is performing well in a number of vitality indicators. Notably, the centre has

improved its national rank position in terms of the number of retailers wishing to locate there; there

is a strong range of variety and department store operators; yields show signs of improved investor

confidence; and a strong night-time economy offering a number of bars and clubs. The proportion

of comparison goods floorspace and number of major national multiple retailers are both above the

national average; the market contributes substantially to the overall retail offer, forming a strong

attractor in it’s own right; and the prime retail area, largely to the west, has a low vacancy rate.

• Nevertheless, there are signs of weaker health check indicators suggesting some vulnerability in

the overall health of the centre. The number of vacant units in the more secondary areas, generally

in the east of the centre, is particularly high; and rents have declined recently. The range and

quality of convenience floorspace is weak; there is a below average representation of eating and

drinking destinations; the high number of bars and clubs can give rise to an intimidating

environment with anti-social behaviour, and despite the Frenchgate Centre extension, Doncaster

has not improved it’s Javelin VenueScore UK rank position.

• There are evidently some clear weaknesses to address in the centre, primarily based on ‘missing’

town centre categories to enhance the overall ‘experience’, and the east/west imbalance of activity.



34

Fortunately, there are some clear identifiable development opportunities that the Council can

promote through policy to ensure the centre as a whole benefits from future enhancement following

recent investment at Frenchgate to the west of the town centre.



35

5. MEXBOROUGH QUALITATIVE REVIEW

5.1 Drawing on the Key Town Centre Health Check Indicators set out in Annex D of PPS4 (2009), this

chapter provides a detailed assessment of the form and function of Mexborough town centre. PPS4

confirms that in order to measure the vitality and viability and monitor the health of their town centres

over time and inform judgements about the impact of policies and development, local authorities should

also regularly collect market information and economic data on the key indicators. We examine the

performance of the town centre against key national and regional trends, and consider the impact of the

economic downturn on the town centre’s performance.

5.2 We have utilised the latest Experian Goad data from 2006, updated following site visits in November

2009 to enable comparisons of the centre over time. The analysis also draws on the qualitative

evidence from the household telephone survey to assess views, perceptions and behaviour of both

customers and businesses in the centre.

Function of the Centre

5.3 Located approximately 8 km west of Doncaster town centre, Mexborough is a designated small town

and district centre within Doncaster’s Unitary Development Plan (July 1998). Sitting below Doncaster

town centre in the overall retail hierarchy, Mexborough’s role is to provide an important centre for food

shopping alongside a retail market and some non-food shopping provision. Mexborough is a designated

principal town within the RSS (Yorkshire and the Humber, Adopted May 2008) defined as providing a

local focus for shopping, leisure and cultural activities as well as housing, employment, education and

health.

5.4 With a total of 152 retail and service units with a floorspace of 21,637 sq m (Goad 2006), the centre

provides a significant convenience offer and retail market together with comparison and service uses

commensurate with its role as a principal local town.

5.5 The centre comprises a linear structure, the majority of which is pedestrianised along High Street.

Additional retail and service units are also present at either end along Main Street and Bank Street as

well as near to the Somerfield supermarket on Swinton Road. The primary retail area (as indicated on

the Adopted UDP Proposals Map) corresponds with the majority of the pedestrianised area along High

Street and includes those retail units fronting the outdoor market around York Square. No secondary

frontages are defined. A plan indicating the current primary frontages is included in plan 4.

5.6 An outdoor and indoor market is also present within the centre, providing over 90 stalls offering a variety

of convenience and comparison goods. Full market days occur on Mondays, Fridays and Saturdays

with a second hand market held every Thursday, although many traders in the market hall are open 6

days a week (Monday to Saturday).



36

5.7 As identified within the household telephone survey, the centre has a relatively confined catchment,

largely attracting shoppers from within the Borough. Although the catchment is relatively confined to that

of Doncaster, the centre appears busy with relatively high pedestrian footfall along the main retail street

(High Street).

Diversity of Uses

5.8 The most recent Experian GOAD data (August 2006) identifies Mexborough as having a total of 152

retail and service units with a total floorspace of 21,637sq m. Table 5.1 illustrates the composition of

uses within the centre in comparison with national averages:

Table 5.1: Mexborough Retail Composition by Number of Units (August 2006)

Mexborough Town Centre



Comparison 54 35.53 34.41 1.12

Convenience 20 13.16 8.81 4.34

Retail Service 19 12.50 13.03 -0.53

Leisure Service 21 13.82 21.57 -7.76

Financial Service 19 12.50 11.16 1.34

Vacant 19 12.50 10.84 1.66


TOTAL 152 100 100

Source: Experian Goad Category Report (August 2006)

5.9 GVA Grimley’s on site survey updated the GOAD Category Report to provide an up to date retail audit

for the centre as well as a helpful comparison of retail composition in the centre over time:

Table 5.2: Mexborough Retail Composition by Number of Units (November 2009)




Comparison 46 30.67 34.41 -3.74

Convenience 14 9.33 8.81 0.52

Service 63 42.00 45.76 -3.76

Vacant 27 18.00 10.84 7.16


TOTAL 150 100 100

Source: GVA Grimley (November 2009) and GOAD 2009 (National Averages)



37

5.10 As illustrated in table 5.2, GVA Grimley’s most recent retail audit shows Mexborough to have a similar

pattern of uses to the national average. The centre has a lower representation of comparison units and

a slightly higher proportion of convenience units with a lower proportion of services. The centre has a

significantly higher than average number of vacant units.

5.11 Referring back to the 2006 GOAD count, the proportion of comparison and convenience units within the

centre have both significantly reduced, in the case of comparison goods from a proportion higher than

the national average in 2006. This corresponds to an increase in the proportion of services (retail,

leisure and financial) as well as a significant increase in the number of vacant units. Individual uses

within the centre are considered in more detail below.

5.12 Comparison retailing represents a significant proportion of units within the centre albeit at a lower

proportion of comparison units than the national average, with a variance of -3.74%. Comparison units

are distributed throughout the centre and whilst the majority comprise small, independent shops, there

are some national and regional multiples within the centre concentrated long the pedestrianised High

Street. The centre also contains a reasonable representation of charity shops, chemists, home

improvement, electrical stores and card shops, with a reasonable offer of footwear and ladies clothing

stores. Multiple retailers are considered in further detail below.

5.13 Table 5.1 indicates that the number of convenience uses in the centre is higher than the national

average at 13.16% (a variance of +4.34%). This is likely to be attributable to the town’s role as a small

town and district centre comprising a major food element to serve the convenience shopping needs of a

relatively large catchment area. Convenience provision within the centre includes two supermarkets

(Tesco and Somerfield), two frozen food stores (Heron and Jack Fulton) as well as a number of small

scale convenience retailers. Convenience provision is also supplemented by the indoor market which

sells a variety of fresh food including meat, cheese and fruit and vegetables. As referred to above, some

convenience traders in the market hall (butchers and greengrocers) are open 6 days a week (Monday to

Saturday).

5.14 The centre has a lower proportion of retail and leisure services, than the national average. This is not

unexpected given the centre’s role as a small town and district centre providing for mainly convenience

and some comparison shopping although the centre does offer a number of restaurants, cafés and

public houses as well as estate agents, a large post office and 4 high street banks. Services are evenly

distributed along the length of the centre with a concentration of pubs, restaurants and other leisure

facilities towards the eastern edge of the centre.

5.15 The 2006 Goad Category Report provides a breakdown of service uses within the town centre, and

states that the centre demonstrated a lower than average proportion of retail and leisure services but

higher than average representation in financial services. The most recent retail audit appears to suggest

retention of this pattern although the centre has seen a slight increase in the provision of bars and



38

restaurants, notably the development of Spice Library Indian Restaurant, Wetherspoons and Lunch Bar

at the eastern end of the centre.

5.16 Considering provision in terms of floorspace (table 5.3), in 2006 the centre provided a significantly above

average provision of comparison goods (with a variance of 10.29%) and significantly below average

provision of convenience floorspace (variance of -7.63%). The centre demonstrates a similar proportion

of service sector floorspace (for all sub sectors) and a below average proportion of vacant floorspace

with a variance of -2.34%.

Table 5.3: Retail and Service Provision in Mexborough by Floorspace (2006)



Retail Category Floorspace (sq m) % of Total UK Average (%)

Variance

Comparison 6531.09 30.18 37.81 -7.63

Convenience 5323.35 24.60 14.31 10.29

Retail Service 1393.55 6.44 6.99 -0.55

Leisure Service 4821.67 22.28 22.83 -0.55

Financial Service 2090.32 9.66 8.76 0.90

Vacant 1477.16 6.83 9.16 -2.34

Miscellaneous 0.00 0.00 0.12 -0.12

TOTAL 21,637.14 100.00 100.00



5.17 The quality of the retail offer within a centre provides an indication of its vitality and viability, particularly

in terms of the representation of national and regional multiples which indicate the extent to which the

centre is successful in attracting such retailers and developing itself as a comparison destination for the

surrounding population.

5.18 With the exception of the supermarkets and a select number of comparison multiple retailers, the

general retail quality represented in the centre is low. According to the latest GOAD Category Report

(August 2006), 45 of the 152 units in the centre were occupied by multiple retailers, accounting for 29%

of retail units which is not inconsistent with it’s role as a lower order centre. Whilst multiple retailers

occupy a total floorspace of 9,755 sq m, at 45.08% of total floorspace within the centre, the majority of

this is occupied by multiple retailers was for the sale of convenience goods (39.43%).

5.19 GVA Grimley’s most recent audit identified 39 multiple retailers indicating a reduction in the number of

quality retailers in the centre. This could be indicative of falling demand within the centre although may

be more reflective of current economic conditions.



39

5.20 GVA Grimley identified 2 ‘Key Attractors’ according to GOAD’s classification (Tesco and Superdrug).

Whilst this has increased from 1 major retailer (Tesco) at the time of their latest survey in August 2006,

the number of major retailers is very low and there is a notable absence of any major retailers within the

clothing sector as an indication of the secondary nature of Mexborough as a retail centre. Whilst this is

to be expected given Mexborough’s role beneath Doncaster in the retail hierarchy, and the importance of

independent retailers should not be underestimated or understated, particular for such a service centre

as Mexborough, there is scope to improve the retail offer within the centre in order to enable a greater

proportion of retail needs to be met at the local level.

5.21 The town centre benefits from a number of small independent retailers, including a deli, butchers and

greengrocers, which add interest and variety to the town centre, complementing the larger multiples and

standard retail offer provided by retailers such as Tesco and Superdrug. Major and multiple retailers are

concentrated along the pedestrianised High Street corresponding with the primary retail area and

observed highest level of pedestrian footfall and environmental quality. The quality of retail provision

reduces past this point with the few multiple retailers present to the west of the centre comprising mainly

financial service providers.

5.22 An assessment has also been carried out on Mexborough’s position within the national hierarchy of

centres with reference to Javelin VenueScore which provides an index of retail centres on the basis of a

weighted score for multiple retailers represented:

Table 5.4: 2009 Ranking According to National Multiples:

Venue Profile Centre Venue-score

Rank Previous Rank

Move-ment Fashion

Orientation Index

Foodservice Orientation Index

Tourist Orientation Index


236 45 41 � 103 89 153

Mexborough 17 1,330 953 � 31 - 70

Thorne 12 1,754 1,826 � - - -

Armthorpe 12 1,754 1,727 � - - -

Balby 18 1,256 1,540 � 29 - 33

Carr I E 33 722 2,248 � 182 - 107

Danum R P 12 1,754 1,947 � - - -

Edenthorpe 16 1,390 1,826 � 33 57 -

Rossington 13 1,654 1,727 � - - -

Wheatley 31 769 697 � 101 - 57

Woodlands 10 1,992 2,428 � - 92 -

Yorkshire Outlet Centre

10 1,992 677 � 131 275 177

Source: Javelin VenueScore 2009

5.23 As identified in Table 5.4, according to Javelin VenueScore 2009, Mexborough fell from a rank of 953 to

1,330 between 2008 and 2009. Whilst it could be argued that a low rank in terms of multiple retailers is

to be expected in a town centre of this nature functioning beneath Doncaster as the Principal Town

Centre, this fall in rank could be indicative of the decline of the centre in terms of vitality and viability both



40

as multiple retailers choose to leave the centre and as other centres demonstrate higher levels of retailer

demand, commercial viability and retention.

Retailer Requirements

5.24 Retailer demand to locate in a town centre provides a good indication of the health and viability of a

centre. Appendix 3D details the ranking of retail requirements according to Focus whilst table 5.5 below

highlights the current requirements for Mexborough:

Table 5.5: Summary of Retailer Requirements in Mexborough, 2009

Retailer

Minimum Floorspace

Requirement (sq ft)

Total Maximum Floorspace

Requirement (sq ft)

Date

Status

Superdrug 2,000 6,000 May 2009 Satisfied

Peacocks 4,500 7,500 Jun 2009 Live

Brighthouse 2,250 3,500 Sept 2009 Live

Total (Live) 6,750 11,000

Source: Focus Retailer Requirement data base 2009

5.25 Appendix 3D clearly shows that the number of requirements has increased slightly over the last 6

months. This has led to a significant increase in rank (from 721 to 469) following a sustained period of

reducing retailer requirements over the previous 5 years since April 2004 indicative of improving demand

in the centre in comparison to other centres.

5.26 Requirements from multiple comparison retailers are also indicative of commercial demand within the

centre. As referred to in Table 5.5, a requirement from Superdrug in May 2009 has been satisfied as

evidence of letting activity within the centre. There are currently no live requirements for convenience

and service provision within the centre. Comparison requirements may help to address the centre’s

relative under-provision of comparison units and floorspace in the future.

Vacant Retail Property

5.27 As indicated in Table 5.6 below, the latest Experian GOAD Category Report identified a total of 19

vacant units equating to a vacancy rate of 12.5%. This is higher than the national average of 10.84%

which could be suggestive of a low demand for units within the centre. However, in terms of the

proportion of vacant floorspace, this is significantly below the national average of 9.16% with a variance

of -2.34% as an indication of the health and viability of the centre in 2006.



41

Table 5.6: Vacant Units, Mexborough Town Centre

Vacant Units

Percentage of Total Unit

(%)

% National Average (Variation)

Vacant Floorspace (sq m)

Percentage of Total Floorspace

(%)


19 12.50 10.84 (1.66) 1477.16 6.83 9.16 (-2.34)


5.28 Since then, the vacancy rate appears to have increased, with GVA Grimley’s on site survey indicating a

total of 27 vacant units in November 2009. This represents a 30% increase in the number of vacant

units within the centre as potential indication of the decline of the centre, and its reducing popularity

amongst retailers, in the three years since the GOAD survey was undertaken. The 2009 survey

identified a concentration of vacant units surrounding the outdoor market place (on York Square),

undermining the vitality and viability of this part of the centre, particularly when the outdoor market is not

in operation when the blank frontages and empty market stalls give the impression of significant decline.

5.29 There are more vacant units to the east of the centre than to the west with a notable number of

vacancies along Bank Street compared to other parts of the centre. Additionally, all of the units within

the Montague Shopping Arcade to the east of High Street are vacant other than the two units with

frontage onto Bank Street. However, the arcade is currently under refurbishment and, given the small

scale of the units, could have skewed the vacancy figures to make them appear more significant than

they are.

5.30 The distribution of vacant units is different from that identified by GOAD in 2006. Whilst there is a new

cluster of vacancies around the market place, other vacancies, notably at the edges of the centre and

along Main Street, appear to have been filled. The filling of vacant units to the west have come mainly

from the financial service sector whilst recent development of retail and leisure services (including Lunch

Bar (currently vacant), Spice Library (development of a former vacant unit) and redevelopment of the

Wetherspoons’ public house) have contributed to the filling of vacant units to the east.

5.31 Additionally, the turnover of the former Woolworths unit (to B&M Bargains) and fulfilment of Superdrug’s

requirements (see above), as well as the filling of many previously vacant units by shops specialising in

low cost goods and cash conversion, demonstrates the rapid letting of vacant units as evidence of the

vitality and commercial viability of the centre. This suggests the high vacancy rates experienced to be

more reflective of current economic conditions rather than the overall vitality and viability of the centre.

Physical Environment

5.32 Whilst the quality of the retail environment varies within the centre, the quality of the built environment is

generally high. The primary shopping area along High Street is pedestrianised and well maintained,

allowing for easy pedestrian movement and adequate street furniture and planting provide some interest



42

and raise the quality of the built environment in this area. The centre is clean and well maintained with a

general absence of litter and graffiti.

5.33 Within the non-pedestrianised areas of the centre, adequate off street parking prevents creation of a car-

dominated environment, particularly to the east of the centre, and whilst pavements are narrower and

less well maintained in this area with a notable absence of pedestrian crossings, this does not appear to

pose a problem to pedestrian movement. Non-pedestrianised areas of the town appear to attract

significantly less footfall potentially as a result of the reduced frequency and quality of retail provision.

5.34 In terms of the quality of retail facilities, this again varies throughout the length of the centre and whilst

the centre could not be described as providing a modern retail environment, the majority of the units

along the primary shopping area are of acceptable quality and provide a pleasant shopping environment.

Exceptions to this are experienced to the west of the centre where the quality of the retail units reduces,

notably the Somerfield supermarket and adjoining retail units, and the presence of larger, more

dispersed retail units has the effect of reducing the quality of the environment in this area.

5.35 The free multi-storey car park which adjoins high street is of particularly poor quality. Inadequate lighting

and a lack of marked pedestrian routes contributes to a poor feeling of safety in and around this area

although there was no evidence to suggest that this has any impact on its use.

5.36 Furthermore, whilst Mexborough Railway station and bus interchange is in easy walking distance of High

Street (see below), the layout of the centre is such that the retail units turn their back to the station,

secluding the main retail street and the prevalence of surface car parks around the main retail area gives

the impression of a poor environment on the approach to the centre. This is echoed within the views of a

large proportion of the household survey respondents, with 36.4% of respondents who visited the town

centre considering that the town does not benefit from a quality built environment.

Accessibility

5.37 Mexborough is well connected to the local road network, being located off the A6023 connecting to the

A630 and ultimately Doncaster Town Centre. The centre is in close proximity to the M18 and A1M and

provides effective road links to the nearby centres of Barnsley, Rotherham and Sheffield. The centre

benefits from good public transport. Mexborough Railway Station is a short walk from the centre, being

connected to the primary retail area by Station Road. Two local train services operate from this station,

providing two services every hour (Monday to Saturday) to Doncaster, Conisbrough, Swinton,

Rotherham and Meadowhall. Hourly services are also provided to Adwick-le-Street, Bentley,

Nottingham, Scunthorpe, Althorpe, Crowle, Thorne, Hatfield and Stainforth, Kirk Sandal and Sheffield.

5.38 Seven bus services provide regular access to, and from, Doncaster, Barnsley and Rotherham as well as

Scunthorpe, Wath Upon Dearne, West Melton, Adwick Le Street and Conisbrough (services 1, 200, 203,

218, 222, 224 and 439). As mentioned above, the primary shopping area is pedestrianised allowing for

ease of pedestrian movement. Areas either side of this, however, are characterised by narrow



43

pavements and few pedestrian crossings. The three roads surrounding Somerfield to the west of the

centre, as well as a marked difference in levels, acts as a barrier within this part of the centre to inhibit

pedestrian movement.

5.39 The latest GOAD plan for Mexborough identified over 500 (524) parking spaces within eight car parks

throughout the centre. The majority of car parking is provided on the south side of the centre with the

multi-storey car park (backing onto the Tesco) providing the main focus for parking within the centre.

Other car parks are provided on Bank Street, Market Place, John Street, Swinton Road and Garden

Street. The majority of parking within the centre is free and unrestricted, providing more than adequate

provision for those accessing the centre by car.

5.40 Given the high number of free, long stay parking, parking is not a problem within the centre and retail

and residential streets are not congested with shoppers’ cars. Having said this, many of the surface car

parks are operating well under capacity; rationalisation of parking in the centre could provide potential

development opportunities to increase and improve retail and service provision within the centre whilst

promoting the objectives of sustainability.

Customer Views and Behaviour

5.41 An in-centre shopper survey was not undertaken as part of this study, but customer views and behaviour

have been assessed through the household telephone survey. Of those surveyed, over 14% of all

respondents visited Mexborough for either shopping, eating, drinking or other services, the majority of

whom visited for their non-food shopping (66%). The majority of those who responded saying that they

did visit Mexborough, visited once every week to four weeks (70.8%) and almost exclusively travelled by

car (83.8%), with just 6.5% travelling by bus and 2.9% arriving by train.

5.42 Within the survey results, opinion was split with regard to the quality of the town centre’s built

environment. When asked whether or not the town centre benefited from a quality built environment,

41.9% of respondents said yes, and 36.4% said no with top reaons for not visiting the town centre being:

• Inconvenient / too far from home - 39.5%;

• Don’t know the area (never been) – 8.4%;

• Don’t know the area / better facilities closer to home – 2.5%

5.43 These results suggest that the main reason for people not visiting the town centre is not related to the

quality of the town centre, but is more to do with the proximity of the town centre from the main

catchment, which is to be expected with a smaller centre as it is intended to serve a localised catchment.

Therefore, if one looks at the survey Zone within which Mexborough falls within, Zone 4, the results are

potentially more useful:

• Inconvenient (too far from home) – 38.3%;



44

• Lack of non-food stores – 10.6%;

• Poor shopping environment – 4.3%;

• Poor bus services – 4.3%;

• Don’t know the area / better facilities closer – 4.3%

5.44 Whilst this more focused analysis still largely relates to the convenience / proximity of the centre, 10.6%

of respondents cited a lack of non-food stores as reason not to visit the centre for their non-food

shopping, 4.3% cited a poor shopping environment, and 4.3% gave poor bus services as reason not to

visit, perhaps reflected in the low proportion of people choosing to travel by bus to the centre. Town

centre safety can deter shoppers from visiting a centre; however whilst a small minority of 7.4% of

visitors did not think that the town centre was safe during the day, particularly the High Street, the large

majority of respondents (88.2%) felt safe in the town centre during the day.

5.45 Whilst the majority of the overall respondents stated that nothing would make them visit the town more

often (perhaps linked to the convenience / proximity point), 21.9% of respondents suggested that a

better mix and quality of retail offer would encourage visits to the centre, and 8.9% suggested that a

better quality environment would make more people visit the town more often.

5.46 Of those who visit Mexborough town centre, 54% shop in the market, with the most popular goods

bought including fruit and veg (41.7%), meat (36.9%) and fish (14.6%), with clothing and footwear also

being popular goods (26.4%). The importance of the market to Mexborough’s overall shopping offer is

evident when one considers that of those who visited the market, 41% only visit Mexborough on market

days.

5.47 The household survey results are largely encouraging for Mexborough town centre, although there are

weaknesses that have been identified. Within Zone 4, only 53% of respondents said that they visited the

town centre for shopping, eating, drinking or other services, and 17.9% of respondents from within Zone

4 chose to visit the town centre for pubs or nightclubs and 12.7% of Zone 4 respondents visited

Mexborough for restaurants suggesting that whilst Mexborough’s appeal is limited across the whole

survey area, a large proportion from within the local survey Zone choose not to visit.



and weaknesses which demonstrate the opportunities and threats to Mexborough over the forthcoming

LDF period.



45

Table 5.7: SWOT Analysis: Vitality and Viability of Mexborough Town Centre


o Defined as a Principal Town within the RSS, and a focus for local shopping, leisure and cultural activities, as well as housing, employment and health;

o Pedestrianised High Street assisting pedestrian movement throughout the town;

o The proportion of units occupied by comparison retailers (Number of units) is marginally above the national average;

o Reasonable representation of charity shops, chemists, ladies clothing, home improvement and electrical stores, card shops and footwear retailers;

o The proportion of convenience retailers (Number of Units) is considerably above the national average;

o Representation from Tesco, Somerfield, Heron and Jack Fulton, as well as the indoor market offering a variety of food products 6 days a week;

o Leisure operators have improved recently with an Indian restaurant, Wetherspoons and Lunch Bar, although daytime cafes/coffee shops remain limited;

o Although overall retail services appear limited, in terms of everyday services there is a Post Office, a selection of Hair/Beauty Studios; opticians and a number of travel agents;

o Mexborough has a good representation of financial services with a number of building societies, financial services, property services and high street banks;

o Signs of investment: Montagu Shopping Arcade is under refurbishment and likely to re-open with fewer, larger units;

o Previously vacant units (2006 Survey) have largely been filled. Reasonable turnover of vacant units with the introduction of new businesses;

o Retailer requirements remain low but steady, with Peacocks and Brighthouse looking for space in the centre. The requirement from Superdrug has been satisfied since the 2006 survey;

o Plentiful supply of free and unrestricted town centre car parking. More than 80% of shoppers arrive by car. Potential opportunities for rationalisation of car parks;

o A number of people stated that would visit Mexborough more often if there was a better quality environment (9%), if there was a

o The proportion of retail services (Number of Units), such as dry cleaners, opticians, post offices, travel agents, health & beauty/hairdressers, is marginally below the national average;

o The proportion of leisure services (Number of Units), offering eating, drinking and commercial entertainment facilities is significantly below the national average;

o The proportion of vacant units (Number of Units) was marginally above the national average in 2006, but this has risen in the past few years (GVA 2009);

o Concentration of vacant units around the outdoor market place (on York Square). A deteriorating environment and reduced activity;

o 40% of total retail floorspace occupied by multiple retailers is accounted for by convenience retailers, and only 21% by comparison retailers – this figure will have changed following the closure of Woolworths and the opening of Superdrug;

o General quality of multiple comparison goods retailers is low, and the number of multiples has fallen since the 2006 survey;

o Mexborough has fallen considerably from rank position 953 in 2008 to 1,330 in 2009 in the Javelin VenueScore Retail Rankings based primarily on the quality of the retail offer/multiple retailers;

o Given the function and composition of the centre, there are no available units suitable to meet the requirements of national multiple retailers. The role of independents cannot be under-estimated, but multiples do provide key attractors and assist visitation rates and footfall;

o Evidence of a declining environment around York Square – the central part of the Primary Shopping Frontage;

o Overall environment is good, but a general lack of consistency with some deterioration on the periphery in more secondary retail locations;

o 36.4% do not thing the town centre benefits from a quality built environment;

o When asked ‘do you ever visit Mexborough town centre for shopping, eating/drinking, or other services’, only 53% from Core Zone 4 said yes;

o Only 2.4% of shoppers walk to the centre,



46

better mix and quality of retail operator (21.9%), and if there were more independent shops (2.3%);

o Shoppers appear satisfied with the convenience goods offer, with no-one stating they would visit more often if there was a better offer;

o Of those who visit Mexborough town centre, 54% shop in the market; and most purchase fruit and veg (41.7%) meat (37%), fish (14.6%) and clothing/footwear (26.4%);

o Of those who shop in the market, 41% only visit Mexborough on market days, i.e. the importance of the market to their shopping trip is evident;

o 88.2% of visitors feel safe in the town centre during the day.

6.5% arrive by bus and 2.9% by train;

o Of those who visit Mexborough town centre, 46% do not shop in the market;

o 7.4% of visitors do not feel safe in the town centre during the day, with the High Street area being the most common response for safety fears;

o Only 2.6% of respondents from the survey area visit Mexborough for pubs and nightclubs for an evening out. Within the core Zone (4), only 17.9% use the centre for this purpose;

o Only 2.1% of respondents from the survey area visit Mexborough for restaurants / eating out. Within the Core Zone (4), only 12.7% use the centre for this purpose.


• Mexborough is a reasonable size centre with over 150 units and our analysis has identified a

number of positive health check indicators. Notably, the number of comparison units is in line with

the national average offering a good range of charity shops, chemists, ladies clothing/footwear,

home improvement/electrical stores and card shops; there is a strong convenience goods offer; and

there has been some improvement in the evening eating/drinking offer through the introduction of

Wetherspoons and an Indian Restaurant.

• There are a number of useful everyday services including a Post Office, banks, building societies,

hair salons, and opticians; vacant units appear to re-let swiftly; there are signs of investment

(Montagu Precinct); a plentiful supply of free parking; and there is a general feeling of safety in the

town centre. The importance of the market is evident, with 41% only visiting on market day, and of

those who do shop in Mexborough, 54% shop in the market with a strong response rate for fruit and

veg, meat and clothing. The centre does offer a small representation of high quality fruit and veg

shops (Smiths Greengrocers) and a delicatessen (Pickles Farm), as well as some specialist shops

including a music/instrument shop.

• There are some areas of concern, however, which we consider to be a threat to the future vitality

and viability of Mexborough. Notably, these include the above average number of vacant units with

a notable concentration around the outdoor market place on York Square. The number and

proportion of comparison multiple retailers is low and the quality of comparison businesses is

generally weak; the centre has fallen considerably in the UK retail rankings database; there are no

appropriately sized units to attract a better quality and range of retailer; and there is evidence of a

declining environment, particularly around York Square. Around 7% of visitors do not feel safe

when visiting the town centre during the day.



47

• Overall, usage of Mexborough within the Core Catchment (Zone 4) is low, with 47% never visiting

Mexborough for any reason; and usage of the centre for evening restaurant eating is particularly

low, attracting only 12.7% within Core Zone 4. Mexborough does not appear to benefit from a good

walk-in catchment with only 2.4% of respondents walking to the centre, perhaps not surprising

given its geographical location on a steep hill and bound on one side by a main road, river and

railway line. Bus and train usage is also very low. Overall, the mix of retailers, declining

environment, low usage, limited walk-in catchment, and increase in vacant units reflects a declining

centre which requires policy intervention. There are, however, some strengths to build on at the

current time.



48

6. THORNE QUALITATIVE REVIEW

6.1 As with Doncaster and Mexborough, we examine the performance of the town centre against key

national and regional trends, and consider the impact of the economic downturn on the town centre’s

performance. We have utilised the latest Experian Goad data from 2007, updated following site visits in

November 2009 to enable comparisons of the centre over time. The analysis also draws on the

qualitative evidence from the household telephone survey to assess views, perceptions and behaviour of

both customers and businesses in the centre.

Function of the Centre

6.2 Thorne comprises an historic market town located approximately 14km (11 miles) north east of

Doncaster town centre. It is referred to as a small town and district centre within Doncaster’s Unitary

Development Plan (July 1998) providing a main food and non-food shopping centre comprising a major

food element and large retail market. Thorne is defined as a principal town within the adopted RSS

(Yorkshire and the Humber, May 2008) defined as providing the main local focus for shopping, leisure

and cultural activities as well as housing, employment, education and health.

6.3 With a total of 136 retail and service units with a floorspace of 15,961 sq m (Goad 2007), the centre

provides a significant convenience offer and retail market together with comparison and service uses

commensurate with its role as a principal local town. Retail provision within the centre is split along two

main streets, King Street and Finkle Street, the latter of which is pedestrianised. Units are also present

at either end of the centre along Silver Street and Market Place. There are also additional retail and

service uses along The Green and Market Place. An historic market place is present within the centre

and some market traders operate from the centre throughout the week. A farmers’ market is held in the

centre on the first Sunday of every month 9am - 1pm.

6.4 The primary retail area is defined on the Adopted UDP Proposals Map as the retail frontage along King

Street, The Green, Finkle Street and Market Place. During GVA Grimley’s site visit in November 2009,

the majority of pedestrian footfall within the centre appeared to be along Finkle Street (pedestrianised)

with high levels of footfall also detected along The Green and Market Place. Lower levels of footfall

were identified along King Street. No secondary frontages are defined on the UDP. A plan indicating

the current primary frontages is included at Plan 4C.

6.5 Thorne is an historic and attractive market town which forms an established and essential shopping

destination for residents in the surrounding rural area. The centre appears busy with strong pedestrian

footfall particularly in and around the pedestrianised Finkle Street.



49

Diversity of Uses / Retailer Representation

6.6 The most recent Experian GOAD data for Thorne Town Centre (July 2007) identifies Thorne as having a

total of 136 retail and service units at a total of 15,961sq m floorspace. Table 6.1 illustrates the

composition of uses within the centre in comparison with national averages:

Table 6.1: Thorne Retail Composition by Number of Units (July 2007)

Thorne Town Centre



Comparison 42 30.88 34.41 -3.52

Convenience 16 11.76 8.81 2.95

Retail Service 25 18.38 13.03 5.35

Leisure Service 18 13.24 21.57 -8.34

Financial Service 14 10.29 11.16 -0.86

Vacant 21 15.44 10.84 4.60


TOTAL 136 100 100

Source: Experian Goad Category Report (July 2007)

6.7 GVA Grimley’s on site survey effectively updated the GOAD Category Report to provide an updated

picture of retail composition in the centre as well as comparative data over the last 12 months:

Table 6.2: Thorne Retail Composition by Number of Units (November 2009)

Thorne Town Centre



Comparison 39 28.68 34.41 -5.73

Convenience 20 14.71 8.81 5.89

Service 67 49.26 45.76 3.50

Vacant 10 7.35 10.84 -3.48


TOTAL 136 100 100

Source: GVA Grimley (November 2009)

6.8 As effectively illustrated in table 6.2, according to GVA Grimley’s most recent retail audit, Thorne has a

higher representation of comparison units but a significantly lower proportion of convenience provision

alongside a lower proportion of services. The centre has a higher than average number of vacant units

and no miscellaneous units.



50

6.9 Referring back to the 2007 GOAD count, the number of comparison units within the centre has reduced

in the last year, whilst the number of convenience units has increased to above the national average.

There has been a significant jump in the number of service uses in the centre and a significant reduction

in the number of vacant units as an indication of both the evolution and the health of the centre.

Individual uses within the centre are considered in more detail below.

6.10 As indicated in Table 6.2, Thorne has a lower proportion of comparison units than the national average,

with a variance of -5.73%. Comparison units are distributed throughout the centre but are concentrated

along the pedestrianised Finkle Street. A further cluster of comparison units is found at the edge of the

centre on Fieldside as well as around The Green. The vast majority of comparison provision comprise of

small, high quality independent shops.

6.11 Table 6.2 indicates that the number of convenience uses in the centre is significantly higher than the

national average with a variance of +5.89%. At the time of GVA Grimley’s site visit the Co-op unit was

undergoing redevelopment, due to re-open in early 2010 as a Sainsbury’s supermarket. Other

convenience provision includes a Somerfield supermarket and Heron and Fultons frozen food as well as

a good selection of independent butchers, bakers and greengrocers.

6.12 Convenience provision is also supplemented, albeit infrequently, by the market stalls and operating

farmers’ market. Convenience uses are distributed throughout the centre but are clustered around The

Green and along Finkle Street. Convenience provision is also provided through a small Somerfield unit

as part of the PSF at the south eastern end of the centre, the redevelopment of which has contributed to

the increased number of convenience units within the centre. Increased investment in Thorne Markets

could bring added vibrancy to the streets as well as supplement retail provision of benefit to the vitality

and viability of the centre.

6.13 Table 6.2 illustrates that a significant proportion of uses within the Thorne Town Centre comprise service

uses, which exceed the national average by 3.50%. Five high street banks and a Post Office are

present within the centre alongside a number of public houses, cafés, restaurants and takeaways. As

clearly seen from table 6.2, whilst the centre boasts a much higher than average proportion of retail

services and a similar proportion of financial services to the national average, leisure services are

significantly under-represented within the centre.

6.14 Whilst there appears to have been a slight change in the number of cafés and takeaways in the centre,

and extension of Bar None on King Street, GVA Grimley’s site visit confirmed that similar patterns are

experienced in the centre today. Services are evenly distributed along the length of the centre with a

concentration of banks and building societies around Market Place and an increased representation of

services along King Street, outside the primary retail area.

6.15 Considering retail provision in terms of floorspace (Table 6.3), in 2007 the centre provided a significantly

above average provision of convenience goods (with a variance of 8.27%) and significantly below

average provision of comparison floorspace (variance of -7.72%). As with the number of units, the

centre demonstrates above average representation of retail service floorspace, similar levels of financial



51

service floorspace but significantly below average floorspace for leisure service as further indication of

the potential to attract such uses to the centre in the future. The centre demonstrates an above average

proportion of vacant floorspace with a variance of 2.59%:

Table 6.3: Retail and Service Provision in Thorne by Floorspace (2007)

Thorne Town Centre


Retail Category Floorspace (sq m) % of Total UK Average (%)

Variance

Comparison 4803.09 30.09 37.81 -7.72

Convenience 3604.64 22.58 14.31 8.27

Retail Service 1811.61 11.35 6.99 4.36

Leisure Service 2359.74 14.78 22.83 -8.05

Financial Service 1505.03 9.43 8.76 0.67

Vacant 1876.64 11.76 9.16 2.59

Miscellaneous 0.00 0.00 0.12 -0.12

TOTAL 15960.76 100.00 100.00



6.16 The quality of the retail offer within a centre provides an indication of its vitality and viability, particularly

in terms of the representation of national and regional multiples which indicate the extent to which the

centre is successful in attracting such retailers and developing itself as a comparison destination for the

surrounding population who require the quality and choice of retail to prevent them from travelling to

larger and more diverse centres and out of centre provision.

6.17 With the exception of the supermarkets and high street banks, the vast majority of retail units comprise

independent retailers. In 2007, GOAD identified 27 multiple retailers within the centre (defined as being

part of a network of nine or more outlets) with a total floorspace of 5,964 sq m. This accounts for 19.9%

and 37.4% of the total units and floorspace within the centre respectively. Whilst this is lower than might

be expected for a town and catchment as large as Thorne, the importance of independent retailers

should not be underestimated, particularly for an historic market town such as Thorne and in general the

retail quality in the centre is considered to be high, comprising of good quality local, independent shops

and services.

6.18 There are very few low cost or budget retailers for a town of this size and few charity shops as an

indication of the quality of retail provision. The vast majority of floorspace occupied by multiple retailers

(47.0%) was occupied by convenience retailers, reflective of the centre’s role as serving the main

convenience needs of a large catchment and rural population. Such provision also reflects Thorne’s

position below Doncaster in the retail hierarchy which offers a different retail and service offer more

focused on multiple retailers and brands.



52

6.19 GVA Grimley’s most recent audit identified 22 multiple retailers, indicating a reduction in the number of

quality retailers in the centre. This could be indicative of falling demand within the centre although may

be more reflective of current economic conditions. Whilst the number of comparison ‘Major Retailers’

has not increased since the time of GOAD’s latest survey in July 2007, the redevelopment of the former

Co-op as a Sainsbury’s supermarket will add another major retailer (alongside Boots and Superdrug) to

the centre’s retail offer with the potential to increase the centre’s vitality and viability.

6.20 As with Mexborough, the number of major retailers is low consistent with a town at this position in the

retail hierarchy. Whilst this is to be expected given Thorne’s role as a small market town below

Doncaster in the retail hierarchy, there is scope to improve the retail offer within the centre in order to

enable a greater proportion of retail needs to be met at the local level.

6.21 With the exception of the convenience retailers and high street banks, all other major and multiple

retailers are concentrated along the pedestrianised Finkle Street corresponding with the primary retail

area and observed highest level of pedestrian footfall and environmental quality. Despite being

identified as a primary shopping street on the UDP Proposals Map (July 1998), there is a notable

absence of major and multiple retailers along King Street.

6.22 An assessment has been carried out on Thorne’s position within the overall hierarchy of centres with

reference to Javelin VenueScore, which provides an index of retail centres on the basis of a weighted

score for multiple retailers represented:

Table 6.4: 2009 Ranking According to National Multiples:

Venue Profile Centre Venue-score

Rank Previous Rank

Move-ment

Fashion Orientation Index

Foodservice Orientation Index

Tourist Orientation Index


236 45 41 � 103 89 153

Mexborough 17 1,330 953 � 31 - 70

Thorne 12 1,754 1,826 � - - -

Armthorpe 12 1,754 1,727 � - - -

Balby 18 1,256 1,540 � 29 - 33

Carr I E 33 722 2,248 � 182 - 107

Danum R P 12 1,754 1,947 � - - -

Edenthorpe 16 1,390 1,826 � 33 57 -

Rossington 13 1,654 1,727 � - - -

Wheatley 31 769 697 � 101 - 57

Woodlands 10 1,992 2,428 � - 92 -

Yorkshire Outlet Centre

10 1,992 677 � 131 275 177

Source: Javelin VenueScore 2009



53

6.23 Despite rising from a rank of 1,826 to 1,754 between 2008 and 2009, Thorne still demonstrates a very

low rank in terms of multiple retailers, considered lower than what would be expected within a town

centre of this nature. Having said this, however, the slight rise in rank experienced in recent years is

indicative of increasing comparative vitality and viability within the centre as multiple retailers choose to

locate within the centre.

Retailer Requirements

6.24 Retailer demand to locate in a town centre provides a good indication of the health and viability of a

centre. Appendix 3D details the ranking of retail requirements according to Focus whilst Table 6.5 below

highlights the current requirements for Thorne:

Table 6.5: Ranking of Retailer Requirements in Thorne, 2009

Date Number of Requirements Ranking (Highest 1st)

Apr-09 3 547

Jan-09 3 814

Apr-07 3 950

Apr-05 1 1175

Apr-04 2 1010

Apr-03 1 1098

Apr-02 2 913

Apr-01 1 1005

Apr-99 1 917

Table 6.6: Summary of Retailer Requirements in Thorne, 2009

Retailer

Minimum Floorspace

Requirement (sq ft)

Total Maximum Floorspace

Requirement (sq ft)

Date

Status

McDonalds Restaurants

700 1,991 May 2009 Live

McDonalds Restaurants

2,000 2,200 August 2009 Live

Total (Live) 2,700 4,191

Source: Focus Retailer Requirement data base 2009

6.25 Table 6.5 shows that the number of requirements has increased slightly in recent years, reflected in an

increasing rank of retailer requirements following a period of very low demand from retailers to locate

within the area. A minor increase in the number of requirements over the last 6 months has led to a

significant increase in rank (from 1,175 to 547) suggestive of increasing comparative vitality and

commercial viability within the centre as retailers choose to locate here over other, less viable, centres.



54

6.26 The requirements from multiple operators (McDonalds) are also indicative of commercial demand to

locate within the centre as further evidence of comparative vitality and viability. There are currently no

live requirements for convenience and service provision within the centre. This may suggest that market

forces will help to bring retail composition within the centre into line with national averages in the future.

Vacant Retail Property

6.27 As indicated in Table 6.7 below, the latest Experian GOAD Category Report identified a total of 21

vacant units equating to a vacancy rate of 15.44%. This is higher than the national average of 10.84%

at a variance of 4.60%. The proportion of vacant floorspace is similarly above the national average by

2.59% and could be suggestive of a low demand for units within the centre:

Table 6.7: Vacant Units, Thorne Town Centre

Vacant Units

Percentage of Total Unit

(%)


Vacant Floorspace (sq m)

Percentage of Total Floorspace

(%)


21 15.44 10.84 1,876 11.76 9.16


6.28 Since 2007, however, the vacancy rate within the centre has decreased, with GVA Grimley’s on site

survey indicating a total of 10 vacant units in November 2009. This equates to a vacancy rate of 7.35%,

3.48% below the national average in 2009, and represents a 52% decrease in the number of vacant

units within the centre as a significant indication of the increasing vitality and viability of the town centre

and its popularity with retailers in the two years since the GOAD survey was undertaken. This is all the

more significant given the current financial downturn and the evidence of other, similar, centres

struggling in the face of the credit crunch.

6.29 Vacancies are spread, albeit thinly, throughout the centre, although a cluster of vacant units was

identified on corner of Market Place/Silver Street. These properties are adjacent to a cleared

development site and were also vacant at the time of Goad’s survey in 2007 as evidence of some

persistence vacancies in the town. The properties are in a state of disrepair, undermining the vitality and

viability of this part of the centre, although it is unclear whether the site forms part of a future

development opportunity or forthcoming development scheme.

6.30 Other vacancies, notably along King Street, have been filled, mainly with comparison retailers, and many

shops along this street have changed fascia since the 2007 survey was undertaken as evidence of the

centre’s vitality and commercial viability and it should be acknowledged that vacancies are a feature of

even the strongest centres and can be indicative of a healthy turnover of units to enhance retailer

representation.



55

Physical Environment

6.31 Whilst the quality of the retail environment varies within the centre, the quality of the built environment is

generally high. The primary shopping area along High Street is pedestrianised and well maintained,

allowing for uninhibited pedestrian movement and attractive street furniture and planting raise the quality

of the built environment in this area. The centre is clean with an absence of litter and graffiti and

provides a pleasant shopping environment.

6.32 In stark comparison to this attractive and accessible shopping street, King Street, as the other

designated primary retail area within the centre, is characterised by narrow pavements and roads along

a primary transport route through the centre, forcing pedestrians to walk in close proximity to sometimes

heavy traffic and compromising pedestrian accessibility and safety in this area. Few crossing points are

available across King Street with poor linkages with the rest of the primary retail area along Finkle

Street. This has a notable impact on pedestrian footfall in the area with significantly lower levels of

activity present than would be expected for an area of primary retail frontage.

6.33 Whilst the centre could not be described as providing a modern retail environment, the majority of the

quality of retail facilities throughout the centre is generally high. The quality of the retail units reduces

away from the primary retail area towards the north western edge of the centre although development of

the new Sainsbury’s foodstore provides a purpose built and modern building to provide a high quality

foodstore in this area of the centre. As noted above, a number of persistent vacancies around Market

Place/Silver Street has the effect of reducing the quality of the environment in this area.

6.34 On-street parking on The Green contributes towards a car dominated environment in this area of the

centre and the location of parked cars in front of retail frontages reduces both shopper accessibility and

the quality of the environment. Increased investment in the area around Market Place could bring added

vibrancy and environmental quality to this area of the centre.

Accessibility

6.35 Thorne is well connected to the strategic highway network, being located in close proximity to the M18

and M180, as well as the M62 to the north. In terms of the local network, Thorne is located off the A614

leading to Doncaster via the A18.

6.36 The centre benefits from good public transport. Thorne Railway Station is a short walk from the centre,

being connected to the primary retail area by Station Road. Two local train services operate from this

station, providing two services every hour (Monday to Saturday) to Doncaster, Conisbrough, Swinton,

Rotherham and Meadowhall. Hourly services are also provided to Adwick-le-Street, Bentley,

Nottingham, Scunthorpe, Althorpe, Crowle, Thorne, Hatfield and Stainforth, Kirk Sandal and Sheffield.

6.37 Seven bus services provide regular access to, and from, Doncaster, Barnsley and Rotherham as well as

Scunthorpe, Wath Upon Dearne, West Melton, Adwick Le Street and Conisbrough (services 1, 200, 203,



56

218, 222, 224 and 439). A high number of cyclists were identified in the centre during GVA Grimley’s

site visit (November 2009) with a notable absence of dedicated cycle lanes and routes or cycle parking

provision.

6.38 As mentioned above, the primary shopping area along Finkle Street is pedestrianised allowing for

uninhibited pedestrian movement. Primary retail frontages along King Street, however, are

characterised by narrow pavements and few pedestrian crossings along the main transport route

through the centre, reducing pedestrian, and cyclist, accessibility and safety along this route.

6.39 The latest GOAD plan for Thorne (July 2008) identified the main parking provision in the centre as

approximately 200 parking spaces within the centre in the former Co-op car park to the north of the

centre and the Pay and Display car park accessed off Bridge Street. However, car parking is also

provided at a variety of locations throughout the centre including car parks to the rear of Finkle Street

(off Market Place and Queen Street) and on street parking at The Green. Informal parking is also

provided on vacant sites along King Street and Church Street.

6.40 The majority of parking within the centre is free and unrestricted and there appears to be adequate

parking for those accessing the centre by car. Given the provision of off street parking, retail and

residential streets are not congested with shoppers’ cars. Having said this, it is unclear what impact

development of sites off King Street and Church Street would have on the availability of parking and

removal of parked cars from The Green and Market Place could help to raise the quality of the

environment in the centre.



and weaknesses which demonstrate the opportunities and threats to Thorne over the forthcoming LDF

period.

Table 6.8: SWOT Analysis: Vitality and Viability of Thorne Town Centre


o A small town and district centre in the Borough, and a principal town in the RSS;

o An historic and attractive market town, with a market trading throughout the week, and a farmers market on the first Sunday of every month;

o Number of convenience goods operators is above the national average (11.76% compared to 8.81%);

o The proportion of Retail Services is significantly above the national average

o The highest category representation in the centre is comparison goods, but this does fall below the national average (30.88% compared to 34.41%);

o The number of leisure services is significantly below the national average (13.24% compared to 21.57%);

o There is a particularly low representation of cafes and restaurants, i.e. the type of uses that add to the overall visitor experience and contributes to dwell time;

o Although the proportion of Retail



57

(18.38% compared to 13.03%);

o The number of Financial Services is in line with the national average;

o The number of vacant units has fallen considerably from 21 in July 2007 to only 10 in November 2009;

o Finkle Street - which is pedestrianised - has the highest concentration of comparison retailing and the highest observed footfall;

o A good mix of comparison retailers including carpets/flooring, chemists, crafts and gifts, florists, furniture, limited clothing, books and hardware/DIY;

o Comparison category includes a number of higher quality independent retailers;

o Convenience operators include Somerfield, Heron and Fultons frozen food;

o Current investment: previous Co-Op under refurbishment to open as Sainsbury’s. Might help with the shopper activity on King Street via linked trips;

o Thorne has a Post Office, 5 High Street banks and a number of employment and financial services;

o Good quality environment, particularly on Finkle Street;

o Plentiful, free car parks in the town centre. Potential opportunities to rationalise on-street parking;

o Some potential to enhance the role of the markets within the town centre which act as a considerably strong attractor for centres of this type and scale.

Services is above national average, a particularly high number (14 out of 25) are occupied by hairdressers and health/beauty salons;

o King Street falls within the Primary Shopping Area, but has lower levels of pedestrian activity, few national multiples, narrow pavements and heavier vehicular movement;

o GVA Grimley on-site survey identified a fall in the number of national multiple retailers from 27 in July 2007 to 22 in November 2009;

o Low retailer requirements (3 in April 2009) to locate in the town centre. This has remained consistent in recent years, and is normal for a centre of this size;

o Concentration of vacant units on the junction of Silver Street/Market Place. These units adjoined a cleared brownfield site although potential for future development is unclear;

o On-street parking on Green Street detracts from the general environment, although might be important for the health of the centre and visitor attraction.


• Thorne is marginally smaller than Mexborough with around 135 units and is performing well as a

small town centre within the borough, whilst benefiting also from investment currently being

implemented. The centre is an historic market town creating a pleasant shopping environment; the

number of vacant units has fallen between 2007 and 2009; and there is a reasonable mix of

comparison retailers with a seemingly niche offer in the carpets, flooring, furniture and

DIY/hardware goods categories. The convenience goods offer is reasonable but small in scale at

the current time, but this is set to be substantially enhanced following the opening of Sainsbury’s in

the old Co-Op unit on King Street. There is plentiful free car parking in the town centre, and the

role of the daily market and monthly farmers market appears to be crucial to the overall attraction of

the centre.



58

• Thorne is functioning well offering a range of retail and leisure services, and the mix of retailing is

set to improve following the opening of Sainsbury’s; but there are some weaker health check

indicators although these do not give rise to serious concern at the current time – although they

should be monitored. There is a particularly low representation of daytime eating/drinking facilities,

and although there is a good range of retail services these are dominated by hairdressers and

beauty salons. An improved offer would assist in the attraction of the centre and dwell time.

• There is also a clear split in activity levels with Finkle Street acting as the prime retail area, with the

highest concentration of retail activity and footfall, and King Street comprising a more dispersed

pattern of units and a lower pedestrian footfall. Clearly the Sainsbury’s on King Street will assist in

underpinning the attraction and footfall on King Street in the future, but physically the pavements

are narrow and pedestrian environment poor. On-Street parking on Green Street has been

identified as detracting from the environment and further consideration should be given to it’s

necessity in the context of the clear availability of off-street car parking elsewhere. Connectivity

throughout the centre, particularly following the opening of Sainsbury’s should be a priority

consideration over the LDF period.



59

7. QUALITATIVE OUT-OF-CENTRE PROVISION

7.1 This section sets out our qualitative review of out-of-centre convenience and comparison goods

floorspace in the borough, including foodstore and retail warehouse operators and the Lakeside Outlet

Village.

Foodstores

7.2 There are several large out-of-centre foodstores located within the Borough, offering a range of both

convenience and comparison retail goods. As illustrated in plan 6, these are focused in Doncaster’s

wider urban area, located on main arterial routes into and out of the town centre. In several cases,

these stores are located within established settlements, but are not considered to occupy ‘in-centre’

locations, as defined within Annex B of PPS4. A number of smaller ‘top-up’ convenience stores are

situated throughout the Borough, performing a key ‘walk-to’ role to meet convenience requirements

within the Borough. We review the six dominant out-of-centre foodstores below.

Asda, Dome Leisure Park

7.3 This large superstore opened in 1990 on the same site as the Doncaster Leisure Park (including sport

and leisure facilities and cinema). The store has a net sales area of 5,782 sq m with a comprehensive

food offer including a bakery, fishmonger, delicatessen and hot food counter as well as a pharmacy and

customer café. The store has an extensive non-food offer, with approximately 50% floorspace devoted

to the sale of comparison goods.

7.4 The store provides a modern and pleasant shopping environment with wide aisles and adequate

circulation space The store also offers a petrol filling station and cash point facilities and a large surface

car park. The store is located approximately 2.1 miles east of the town centre, directly accessible via the

A638/A18. The site falls within a mixed use regeneration designation RP2 for the wider site referred as

Doncaster Leisure Park. The site is designated for the coordinated, large scale development comprising

leisure and recreation, tourism, employment and employment uses, and housing and appropriate

specialist or ancillary service and retail uses. Other adjacent uses include the Doncaster football and

rugby stadium.

Asda, Carcroft

7.5 Asda in Carcroft contains a net sales area of 3,734 sq m with provision including a bakery, fishmonger,

delicatessen and hot food counter, as well as a photo processing kiosk, cobbler, pharmacy and a

customer café. Having opened in 1974, the store provides a dated shopping environment with relatively

narrow aisles and limited circulation space. Approximately 40% of the floorspace is dedicated to the



60

sale of non-food goods. The store provides cash point facilities but no petrol filling station and the

surface car park appears busy and cramped.

7.6 The store is located approximately 5.7 miles north of Doncaster in a predominantly residential area,

accessible to the surrounding residential streets and the town centre via the B1220 and A638. The store

is located within a Commercial Policy Area, the policies relative to these are provided at appendix 1.

When considered against the provisions of Annex B of PPS4, the site is considered to be located in an

out-of-centre location.

Morrisons, York Road

7.7 Opened in 1995, Morrisons on York Road provides a modern and spacious retail environment. The

store has a net floorspace of 3,669 sq m and offers a limited comparison offer (approximately 25% of the

total floorspace) but includes a bakery, butcher, fish monger, delicatessen and hot food counter as well

as a customer café and cash point facilities. The store is located less than 0.75 miles north west of

Doncaster with access via the A638. It is located in close proximity to the Centurion Retail Park off York

Road and is located within a Commercial Policy Area. The store is located in an out of centre location,

as defined in Annex B of PPS4.

Sainsbury’s, Thorne Road

7.8 The Sainsbury’s store comprises a net sales area of 4,486 sq m net. With approximately 40% of this

dedicated to the sale of comparison goods, the store includes a significant non-food offer alongside a

butchers, fish monger, bakery, delicatessen and hot food counter as well as a customer pharmacy and

café. The store includes a surface car park, which appeared busy at the time of survey, as well as a

petrol filling station and cash point facilities. Opened in 1993, the store offers a modern, pleasant and

spacious shopping environment with wide aisles and adequate circulation space.

7.9 Located approximately 3.4 miles north east of Doncaster town centre, the store has good accessibility

along the A630 (Wheatley Hall Road). This store is also located within a Commercial Policy Area as

designated within the UDP, but occupies an out-of-centre location.

Tesco, Woodfield Plantation

7.10 Tesco Extra at Balby is a large scale superstore comprising 5,180 sq m net sales area. The store offers

a comprehensive food offer including a bakery, fishmonger, delicatessen and hot food counter as well as

an extensive non-food offer with approximately 45% of the store’s floorspace devoted to the sale of

comparison goods. In addition the store provides a pharmacy, opticians, photo processing unit and

customer café as well as cash point facilities and a petrol filling station. Four small scale, independently

accessed units to the front of the store broaden the retail offer (although one unit is currently vacant).

7.11 The store provides a modern and spacious retail environment with wide aisles and adequate circulation

space and provides adequate car parking in a large surface car park to the front of the store. The store



61

is located approximately 4.0 miles to the south of Doncaster town centre in Balby with access via the

A60 (Tickhill Road). This store is located in a designated Commercial Policy Area, but is similarly

located within an out of centre store location, as described in Annex B of PPS4.

Tesco, Thorne Road (Edenthorpe)

7.12 Having opened in 1987, Tesco at Edenthorpe provides a lower quality retail store than the majority of the

other out of centre provision. The store has a net floorspace of 2,756 sq m and comprises a bakery,

delicatessen and fishmonger. The Tesco also offers a petrol filling station and a pharmacy has recently

opened in store. A dry cleaners unit is also adjacent to the store. The store is located approximately 3.9

miles north east of Doncaster, being accessible to surrounding residential streets as well as the town

centre via the A18 (Thorne Road).

Lakeside Village Outlet Centre

7.13 The Lakeside Village Outlet Centre is located to the south of Doncaster town centre off White Rose Way

(A6128) and is situated in close proximity to Toys ‘R’ Us and a Premier Inn hotel. The outlet centre is

located within the wider Lakeside complex along with Doncaster Rovers Football Club’s Keepmoat

Stadium Complex and the Vue Cinema. The outlet village is served by a number of bus services (72,

72A, 75 and 75A), which link the centre to the town centre and adjacent areas, and the car is readily

accessible from the motorway network with Junction 3 of the M18 situated approximately 1km to the

south.

7.14 The Centre comprises 10,760 sq m net of retail sales floorspace and is open between 10am and 6pm

from Monday to Friday, 9.30am to 6pm on Saturdays and 10.30am to 5pm on Sundays, with late night

shopping every Thursday until 8pm. Anchored by Next Clearance, Marks and Spencer Outlet and

Clarks, the outlet centre has over 45 stores offering leading brands at up to 60% off High Street prices.

The retail outlet is complemented by a good mix of retail leisure units such as KFC, McDonalds, Pizza

Hut and a Beefeater bar and restaurant.

7.15 The centre benefits from a modern shopping environment, and whilst there is limited soft landscaping

around the centre, there is ample pedestrian circulation space, a compact layout, and a large surface

level car park serving the centre.

Retail Warehouse Parks

7.16 A full list of out of centre retail parks and stand alone units is included in Appendix 6. These are

considered in more detail below.



62

Thorne Road Retail Park

7.17 Thorne Retail Park is located off the A18 to the north east of Doncaster town centre and comprises 6

retail units including Dunelm Mill, B&M Bargains and McDonalds. John Peters (clearance) has now

closed. The retail park provides adequate car parking provision but limited landscaping and the

presence of two boarded up units (previously Factory Shack and Suite Success) reduces the quality of

the environment which, despite opening in 1999, appears dated. Landscaping and environmental

quality improves around the McDonalds unit. The retail park enjoys good access to the town centre

(either via the A18 or A630 Wheatley Hall Road).

Leger Retail Park

7.18 Leger Retail Park comprises a small group of retail units accessed off the A18 (Thorne Road) to the

north east of the town centre in close proximity to Thorne Road Retail Park. Including a Lidl, Miller Bros,

Littlewoods, KFC and Motor World as well as a Yorkshire Bank, retail provision at the site is not typical of

the kind of bulky goods provision that would be expected to be sold from an out of centre location.

7.19 The retail park is served by adequate parking, although some of this is provided to the rear of the retail

units, and despite limited landscaping and a high density of development the retail park provides a high

quality and modern shopping environment. As referred to above, access to the town centre is via the

A18 or A630 (Wheatley Hall Road).

Wheatley Hall Road Retail Park

7.20 Wheatley Hall Road Retail Park constitutes a modern retail park with purpose built, large scale retail

units and an extensive surface car park to the front of units. Retail provision includes 15 multiple

retailers and service provides, the majority of which trade in non-bulky goods. The park provides a

modern retail park with adequate parking and associated landscaping, lighting and pedestrian walkways.

The park appeared busy and popular with shoppers. The park is located to the north east of Doncaster

with excellent access to the town centre via the A630 (Wheatley Hall Road).

Danum Retail Park

7.21 Danum Retail Park comprises a traditional bulky goods retail park with representatives from mainly

multiple electrical and furniture retailers including Currys, Comet, Harveys and Dreams. The park

provides a high quality retail environment with adequate car parking and associated landscaping. One

of the units was under redevelopment at the time of the survey. The park is located to the north west of

the town centre with good access via the A638 and A19.

7.22 A Magnet unit is located behind the main retail park (off Telford Road) in what forms a back site to the

retail park. As such the unit does not benefit from a prominent retail frontage and is characterised by

more limited landscaping and environmental quality. Whilst limited parking is available at the Magnet

unit, adequate parking throughout the rest of the retail park ensures that capacity is sufficient.



63

7.23 The western side of the Danum Retail Park is characterised by lower quality retail provision of a variety

of scales including both bulky and non-bulky goods as well as a number of trade units. The quality of

the environment within this area markedly reduces from that of the main retail park, with an absence of

landscaping and minimal parking. Vehicular access to the site is good via the A638 and A19.

Centurion Retail Park

7.24 Centurion Retail Park provides a modern retail park approximately 0.5miles North West of the town

centre comprising a mixture of bulky and non-bulky goods including (amongst others) John Peters, SCS,

JJB Sports and Wynsors World of Shoes. The Morrisons store on York Road is situated on the adjacent

site to the west, increasing the potential for linked trips between the two retail destinations. The park

provides a high quality environment with adequate car parking and associated landscaping. The park

benefits from good access from the A19 leading to the town centre.

North Bridge Road

7.25 North Bridge Road is an area just north of Doncaster town centre containing two retail units; Halfords

and Dolland and Aitchison opticians. As such the area does not form a significant retail destination with

the potential to generate linked trips with other facilities. Parking at the units is relatively limited and the

environment is of low quality with an absence of landscaping and poor pedestrian permeability. Access

to the units is on North Bridge Road off the A19.

Other Provision

7.26 Other out of centre provision includes four stand alone retail units as follows;

• Toys ‘r’ Us (White Rose Way) – Located off the A6182 (White Rose Way) to the south of the town

centre, this unit is immediately adjacent to the Lakeside Factory Outlet. As such the unit is likely to

operate as part of this shopping centre, forming linked trips with shops in the retail village. The

environment is typical of that of a retail park with extensive car parking (linking with parking

provision for the retail village) and associated landscaping.

• Homebase (Church Way) – This bulky goods unit and garden centre comprises over 2,973 sq m

open A1 (non-food) to the north of the town centre. A surface car park to the front of the store

provides fairly limited parking for a store of this size and landscaping is limited to the site

boundaries. Located within an area of predominantly industrial development, there are a number of

large scale trade units adjacent to the store with access taken from the A630 (Church Way).

• Wickes (Leger Way) – With a floorspace of just under 2,787 sq m (open A1), this stand alone retail

unit is located on the corner of Leger Way and Leicester Avenue. To the front of the unit is a large

surface car park with some landscaping. Whilst not the most modern retail development, the

environment is adequate. Development surrounding the unit is predominantly residential with some

industrial uses. Vehicular access is via the A18.



64

• B&Q (White Rose Way) – This large scale unit is situated within a modern retail environment with

extensive parking and associated landscaping in a developing area to the south of the town centre

with access from the A6182 (White Rose Way). The store comprises approximately 9,290 sq m of

bulky goods floorspace and includes a customer coffee shop. Ongoing nearby development

includes a petrol filling station and pub/restaurant.

Summary / Conclusions

• Doncaster has six major out-of-centre foodstores with representation from Tesco, Asda, Morrisons

and Sainsbury’s. The Borough’s out of centre retail warehousing is generally focused in

Doncaster’s wider urban area along the major arterial routes. They provide a significant

comparison retail offer, in several cases adjacent to large foodstores thereby creating large drive-to

retail destinations. Considered as a whole, the retail warehousing in the borough represents

significant retail provision, offering a range of bulky and non-bulky goods.

• The largest destination in the Borough is the Lakeside Village Outlet Shopping Centre, which is

located in close proximity to a large Vue Cinema, football stadium and a sports centre. The centre

is served by good transport linkages and represents a retail and leisure destination to the south

east of the town centre.



65

8. CAPACITY FORECASTS

8.1 In this section we estimate the current performance of Doncaster Town Centre together with

Mexborough, Thorne and the out of centre retail provision, as the basis for forecasting the need for

additional retail floorspace to the period 2026, incorporating interim year of 2015, 2020 and 2025. The

capacity tables accompanying this assessment are attached in Appendix 6 and 8.

8.2 We have used a conventional and widely accepted step by step methodology, consistent with best

practice, which draws upon the results of the household telephone survey of existing shopping patterns

to model the existing flow of available expenditure to Doncaster Town Centre and out of centre retail

provision. In order to develop the baseline position, we have:

• Calculated the total amount of convenience and comparison goods expenditure which is available

within the postcode areas comprising the Doncaster catchment area;

• Allocated the available expenditure to the convenience and comparison goods shopping

destinations, on the basis that the household telephone survey of shopping patterns, so as to

provide estimates of current sales and forecasts of future sales;

• Compared to the total expenditure attracted to each shopping destination with current retail

floorspace to assess sales densities in each shopping destination.

8.3 Building on the baseline position, we have explored the capacity for further convenience and comparison

goods retail floorspace within the town centre.

Data Inputs

Survey Area and Household Survey

8.4 In order to provide detailed factual information on shopping patterns in the town, we commissioned a

new household telephone survey covering 1,000 households. GVA Grimley designed the survey

questionnaire in consultation with Doncaster Metropolitan Borough Council and NEMS Market Research

Company – who undertook interviewing and data processing. The survey area is shown on Plan 1.

8.5 The survey results identify shopping habits of households for both convenience and comparison goods.

Where necessary, the survey results have been re-based to remove certain responses, such as

“internet/mail order shopping”, to ensure consistency with categories excluded in the expenditure

projections. For convenience goods, the household telephone survey included questions on main foods

and top up foods shopping. The results of the two types of food expenditure were then merged through



66

the application of a weight, which reflects the estimated proportion of expenditure accounted for by each

type.

8.6 For food we used a 75%/25% food top up weighting. This forms a compensate pattern of convenience

spending, expressed as a market share for each destination centre of foodstore for each survey Zone.

The survey also includes seven questions on specific comparison goods types, which coincided with

Experian Business Strategies definitions of comparison goods expenditure. The retail and needs

modelling exercise uses the weighted averages of the household survey responses for each goods type

based on the proportion of per capita spend on that goods type. This process establishes pattern of

spending of residents for each Zone in terms of the following types of goods:

• clothing and footwear;

• furniture, floor coverings and household textiles;

• DIY and decorating supplies;

• domestic and small electrical appliances (tv, hi-fi, radio, etc);

• personal goods (jewellery, glassware, books, stationary, gardening and pet related products);

• recreational and sporting goods.

Estimates of Population in the Survey Area

8.7 Population estimates and forecasts were prepared from the Experian e-marketer in-house system. This

provides estimates of population based on trendline projections and the 2001 census for small, localised

areas. Overall, the population of the survey area within Zones 1-11 is currently 627,611. It is forecast to

grow to 650,937 by 2015, 676,901 by 2020, 703,113 by 2025, and 712,607 by 2026 (Table 1, Appendix

6). Overall, the population is forecast to grow by 14% between 2010 and 2026 within the whole survey

area.

Available Expenditure in the Survey Area

8.8 The Experian e-marketer system provides estimates of the per capita expenditure for convenience and

comparison goods in 2008 prices. We have made deductions for special forms of trading (SFT) which

represent expenditure not available to spend in the shops, i.e. internet and catalogue shopping. We

have applied individual per capita expenditure figures across each survey Zone to provide a more

detailed understanding of available expenditure in different parts of the catchment area.

8.9 As explained in detailed in Section 3, we now use growth rates for comparison goods of 1.1% for the

period 2008 – 2009; -0.1% for the period 2009 to 2010; 2.3% from 2010 to 2015; 3% from 2015 to 2020;

and 4% from 2020 onwards. For convenience goods we use growth rates of -0.5% per annum between

2008 and 2009; 0.1% between 2009 and 2010; 1% for the period 2010 to 2015; and 1.1% per annum



67

from 2015 onwards. These figures indicated that more growth will take place on comparison goods as

opposed to convenience goods; the scope to purchase more food is more limited than the scope to

purchase non-food goods. They take into account current economic circumstances and the recession

and demonstrate the levels of growth expected as a consequence over the forthcoming LDF period.

8.10 Taking these considerations into account, we have generated expenditure by Zone to highlight variations

across the survey area and grown them accordingly to 2015, 2020, 2025 and 2026, the required PPS for

5 year forecasting periods. Table 2, Appendix 6, applies per capita expenditure within each Zone to

population forecasts, which indicates that total available convenience goods expenditure within the

survey area is currently £1,083m. This is forecast to grown to £1,178m by 2015; £1,291m by 2020;

£1,415m by 2025 and finally to £1,450m by 2026. This equates to an overall growth of £367m (34%)

between 2010 and 2026 (Table 3, Appendix 6).

8.11 Table 3, Appendix 6, sets out the total available comparison goods expenditure within the survey area

by again applying per capita expenditure within each Zone to population forecasts. This indicates that

total available expenditure within the survey area is currently £1,623m. This is forecast to grow to

£1,853m by 2015; £2,232m by 2020; £2,821m by 2025 and finally to £2,974m by 2026. This equates to

an overall growth of £1,351m (83%).

Floorspace Data

8.12 The comparison and convenience floorspace data used in our modelling, and verified by the Council,

has been drawn from a range of data sources including the Institute of Grocery Distribution (IGD),

Doncaster Metropolitan Borough Council, the Trevor Woods retail warehouse database and Experian

Goad town centre category reports. Our floorspace assumptions for the foodstores include, where

appropriate, an adjustment to identify the proportion of purely convenience goods floorspace. Most

superstores include a proportion of non-food floorspace; we have adjusted the net floorspace to identify

the proportion of sales space allocated for convenience goods. This accords with the expenditure data

and the expenditure assumptions used.

Convenience Goods Shopping Patterns

8.13 Key foodstore provision in the borough includes the town centre Tesco, Church View, the Sainsbury’s

store in the French Gate Centre and the M&S Food Hall on Baxter Gate. Appendix 5 sets out our review

of the shopping patterns of those residents living in the Zones largely falling within the metropolitan

borough boundary (Zones 1, 2, 3, 4, 6 and 8). This enables us to review the main flows of food

shopping trips and the competitions arising between town centre and out of centre foodstores both within

and beyond the borough.

8.14 For main food it is evident that the six major out of centre foodstores in the borough have a significant

influence to varying degrees within the six core Zones, but there is also some competition from the



68

Morrisons in Retford, the Co-op in Harworth, the Asda in Rotherham, the Tesco Extra in Wath-Upon-

Dearn (nr Rotherham), the Morrisons in Pontefract, the Tesco in Goole and the Tesco Extra in

Scunthorpe. For top-up food shopping there are a range of smaller centres and local shops that are

used by those living within the six core Zones and this list can be reviewed in Appendix 5.

Convenience Goods Performance


8.15 Our methodology estimates the trade draw of Doncaster Town Centre for convenience goods (Table 4,

Appendix 6). This comprises an examination of the trade drawn to the main foodstore operated in the

town centre, as well as ‘other local stores in Doncaster’ which includes any butchers, grocers, bakers,

convenience stores or news agents. We estimate that the Tesco on Church View currently has a

convenience goods turnover in the region of £21m, the Sainsbury’s is turning over around £17.9m, the

M&S Foodhall £3.7m and ‘other’ £19.2m.

8.16 Based on a net convenience floorspace figure of 1,845 sq m we estimate that the Tesco store has an

average convenience goods sales density of £11,575 per sq m net which is marginally below the Tesco

company average sales density figure of £12,883 per sq m net. The survey results suggests that the

Sainsbury’s store is trading at £12,671 per sq m net which is above their company average expectations

of £9,990 per sq m net suggesting that this store is trading well.

8.17 The M&S Foodhall, which arguably benefits more from passing trade, combined with other foodstores in

the town centre, have a combined turnover of £22.9m. Based on a total net convenience floorspace of

1,971 sq m the survey results suggest that the floorspace is trading at £11,605 per sq m net which is

higher than expected levels in the region of £7,873 per sq m net. Overall, the town centre convenience

goods floorspace is trading adequately and broadly inline with expected levels.


8.18 We estimate that the Tesco Metro on the high street in Mexborough currently has a convenience goods

turnover of only £6m. Based on a net convenience floorspace figure of 1,494 sq m we estimate that the

Tesco store has an average convenience goods sales density of £4,068 per sq m net. Clearly, this is

significantly below expected company sales densities for Tesco of £12,883 per sq m net. Whilst these

survey results may have underestimated somewhat the role of the Tesco in Mexborough town centre it

is clear that the store is likely to be underperforming and is certainly not on the ‘radar’ of the catchment

for their food shopping requirements.

8.19 The Somerfield store on Hartley Street is smaller than the Tesco Metro and combined with the ‘other’

foodstores in Mexborough town centre, we estimate this floorspace currently has a turnover of only

£4.1m, which is significantly below expectations at £10.4m. Again, whilst the survey results may have



69

underestimated the performance of this floorspace, it is clear that there are concerns in terms of this

trading performance. Overall, this quantitative exercise indicates that the convenience goods floorspace

in Mexborough town centre appears to be underperforming quite significantly.

Thorne Town Centre

8.20 Our methodology estimates the trade draw of Thorne town centre for convenience goods (Table 8,

Appendix 6). This includes an examination of the trade drawn to Somerfield, the Green and other local

and independent shops in the town centre; and a total town centre convenience goods trade draw. We

estimate that the Somerfield store on the Green currently has a convenience goods turnover of £3.4m.

Based on a net convenience floorspace figure of 392 sq m we estimate that the Somerfield store has an

average convenience goods sales density of £8,747 per sq m net which is higher than the company

average sales density for Somerfield of £8,058 per sq m net. This indicates that the Somerfield store is

performing well in Thorne town centre at the current time.

8.21 The previous Co-op store is currently under refurbishment and will shortly open trading as Sainsbury’s.

We have not, therefore assessed the performance of this unit at this time. Nevertheless, it is evident

that ‘other’ local shops are currently achieving a turnover in the region of £7.2m, considerably above

expectations of around £1.8m. These figures may have been distorted somewhat by the established

trading patterns of the previous Co-op store and the trade draw and performance of Thorne town centre

as a convenience goods shopping destination must be monitored following the opening of the new

Sainsbury’s foodstore. Nevertheless, the quantitative exercise indicates that on the whole Thorne town

centre is performing well as a convenience goods shopping destination, and is only set to improve.

Doncaster Out-of-Centre

8.22 Our analysis of the household telephone survey have identified the trade draw and catchment areas of

the six principle out of centre foodstores in the borough:

• Asda, Dome Leisure Park, Doncaster

• Asda, High Street, Car Croft

• Morrisons, York Road, Doncaster

• Sainsbury’s, Thorne Road, Edenthorpe

• Tesco Woodfield Plantation, Doncaster

• Tesco, Thorne Road, Edenthorpe.

8.23 The Asda foodstore at the Dome Leisure Park is the second largest foodstore in the borough, and we

estimate it currently has a turnover of approximately £72.2m. Based on this turnover, and with a net

convenience goods sales area of 3,469 sq m, the sales density of the store is approximately £20,812 per

sq m net. This sales density is significantly higher than the level based on Asda’s company average

sales density (£14,352 per sq m net) and indicates that the store is performing very well.



70

8.24 The Asda foodstore in Carcroft is amongst the smaller of the out of centre foodstores and we estimate it

has a turnover of circa £43.8m. Based on this turnover, and with a net convenience goods sales area of

2,240 sq m, the sales density of the store is approximately £19,558 per sq m net. This sales density is

higher than the level based on Asda’s company average sales density (£14,352 per sq m net), and

indicates that the store is performing very well.

8.25 The Morrisons foodstore on York Road in Doncaster is the third largest foodstore in the borough and we

estimate it has a turnover of circa £57.7m; i.e. the second largest turnover of a foodstore in the borough.

Based on this turnover, and with a net convenience goods sales area of 3,302 sq m, the sales density of

the store is approximately £17,474 per sq m net. This sales density is again considerably higher than

the level based on Morrisons company average sales density (£11,555 per sq m net), and indicates that

the store is trading well.

8.26 The Sainsbury’s store on Thorne Road at Edenthorpe is the largest foodstore in the borough, but has

the lowest turnover when compared to the five other major out of centre foodstores. Based on a

turnover of £23m and a net convenience goods sales area of 3,589 sq m net, the sales density of the

store is approximately £6,422 per sq m net. This sales density is lower than the level based on

Sainsbury’s average sales density (£9,990 per sq m net), and indicates that the store is underperforming

compared to both company expectations and the performance of the competing out of centre foodstores

in the borough.

8.27 The Tesco foodstore at Woodfield Plantation is the fourth largest foodstore in the borough and has the

third highest turnover for convenience goods. Based on the turnover of £56.9m and a net convenience

goods sales area of 3,108 per sq m, the sales density of the store is approximately £18,316 per sq m

net. This sales density is considerably higher than the level based on Tesco’s company average sales

density (£12,883 per sq m net), and indicates that the store is performing well.

8.28 The Tesco store on Thorne Road in Edenthorpe is the smallest of the six out of centre foodstores in the

borough but has the fifth highest turnover of approximately £36.3m. Based on this turnover, and with a

net convenience goods sales area of 2,205 sq m, the sales density of the store is £16,461 per sq m net.

This sales density is higher than the level based on Tesco’s company average sales density (£12,883

per sq m net), and indicates that the store is performing well.

8.29 Overall, the out of centre foodstores in the borough have a combined turnover of £290m compared to

the combined turnover of Doncaster, Mexborough and Thorne of £82.9m. The best performing stores in

the borough are the Asda at the Dome Leisure Park, the Morrisons on York Road, and the Tesco at

Woodfield Way.

Convenience Goods Capacity

8.30 Based on population and expenditure growth, and the detailed performance analysis of existing

floorspace, we consider there will be residual capacity to support additional convenience goods



71

floorspace in the borough between 2010 and 2026. Our projections are summarised in Table 17,

Appendix 6, which indicates that by 2015 there will be capacity to support an additional 6,838 sq m net

of convenience goods floorspace growing to 9,497 sq m net by 2020, 12,343 sq m net by 2025 and

12,308 sq m net by 2026.

8.31 It should be noted that projections beyond 2015/2020 should be treated with caution given that margins

are increase over longer time periods, and the economy is going through a significant period of change

with future uncertainty. These figures also take into account the existing commitment for an extension to

the Tesco store on Church View and Doncaster town centre (Table 16, Appendix 6). Based on a net

convenience floorspace of 1,251 sq m, and an average sales density of £12,883 per sq m net, we

estimate the store to achieve a turnover of £16.1m by 2010, growing to £16.3m by 2015.

8.32 There is clearly capacity to support additional convenience goods floorspace in the borough over the

forthcoming LDF period but our analysis demonstrates that this is a consequence of a strong trading

performance of the six major out of centre foodstores. The capacity for additional convenience goods

floorspace by centre is substantially more conservative. In Doncaster for example, and taking into

account the identified commitment, we identify no residual expenditure by 2015, with residual

expenditure sufficient to support 101 sq m net by 2020, growing to 573 sq m net by 2025 and 597 sq m

net by 2026.

8.33 We have also identified the poor performance of convenience goods floorspace in Mexborough leading

to an extremely weak market share. In this context there is a deficiency in residual spending and no

capacity to support additional convenience goods floorspace over the LDF period. Nevertheless, as we

explain again later, this is based on current market share and the centre has the ability to support

additional floorspace through the claw-back of expenditure and an overall increase in market share. The

capacity figures are not, therefore, the ‘final answer’ and indicate the amount of floorspace supportable if

shopping patterns do not change. New proposals will need to demonstrate and test such assumptions.

8.34 In Thorne, however, we have identified that the convenience goods floorspace is performing well, above

expected levels and we have identified capacity for 635 sq m net by 2015, 709 sq m net by 2020 and

787 sq m net by 2025. We note that this is based on current market share and excludes the imminent

opening of a new Sainsbury’s foodstore in the town centre which will undoubtedly increase market share

and enhance the qualitative and quantitative performance of Thorne town centre as a convenience

goods shopping destination. The performance on trade draw will need to be analysed following the

opening of Sainsbury’s to access the impact on the town centre and trade draw within the catchment

area, although we believe an increase in trade retention will be inevitable.

8.35 This does not, however, justify the extension of further out-of-centre floorspace, and new development

should be directed to the town centres first.



72

Comparison Goods Assessment


8.36 Table 4, Appendix 8 indicates the trade draw of Doncaster town centre and Plan 8 indicates the extent of

the town centres influence throughout the defined survey area highlighting variations in market share.

Within the whole survey area, Doncaster town centre draws 31.4% of total available comparison goods

expenditure. Within the core Zones 1, 2, 3, 4 and 6, which broadly equates to the metropolitan borough

boundary, the trade retention level is higher at 46% of retained total available comparison goods

expenditure.

8.37 On the basis of current market shares, we estimate that Doncaster town centre has a trade draw of

£510.2m (Table 5, Appendix 8). With an existing shop floorspace of 53,992 sq m net we estimate that

the town centre has a sales density of approximately £9,451 per sq m net. Based on our experience

elsewhere this is a strong trading level given expected sales densities in the region of £7,000 to £9,000

per sq m net for a centre at this level in the retail hierarchy.

8.38 Table 6, Appendix 8 indicates the trade draw of Mexborough town centre from within the defined survey

area. On the basis of current market share, we estimate that Mexborough has a turnover of around

£15m (Table 7, Appendix 8). With an existing shop floorspace of 4,572 sq m net we estimate that the

town centre has a sales density of approximately £3,272 per sq m net. We would expect a centre at this

level in the hierarchy to achieve a sales density of at least £3,000 per sq m net, which suggests that the

town centre is performing well in terms of its comparison goods retail floorspace.

8.39 Table 8, Appendix 8 sets out the trade draw of Thorne town centre within the defined survey area. On

the basis of current market shares, we estimate that Thorne town centre has a turnover in the region of

£6.5m (Table 9, Appendix 8). With an existing shop floorspace of 3,362 sq m net we estimate that the

town centre has a sales density of approximately £1,941 per sq m net. This trading level is somewhat

below expectations for a centre at this level in the hierarchy and we recommend this is monitored given

potential vulnerabilities. The investment from Sainsbury’s foodstore operator is likely to enhance the

overall retail attraction – of both convenience and comparison goods – of Thorne town centre.

Retail Warehousing

8.40 Doncaster has a significant amount of retail warehousing within the borough, with the combined out of

centre net retail floorspace provision amounting to 69,448 sq m, i.e. larger than that in Doncaster town

centre (53,992 sq m). The trade draw performance of the out of centre retail floorspace in the borough

is set out in Tables 10 and 12 with a combined market share of all illustrated in Table 14, Appendix 8.



73

8.41 It is evident that the Wheatley Hall Road Retail Park and the Danum Retail Park are the best performing

retail warehouse destinations in the borough with a trade draw from within the survey area of £24.6m

and £75m respectively. The influence of the B&Q superstore on White Rose Way is also considerable,

achieving a trade draw from Zones 1 to 11 of £42m. The performance of the Wheatley Hall Road and

Danum Retail Parks is strong given the range and choice of retailer present at both, with Wheatley

offering a greater high street type offer, and Danum providing the more bulky traditional retail park offer.

8.42 In total, the out of centre comparison goods floorspace achieves a turnover from within the survey area

of £147m. Based on a total net retail floorspace of 69,448 sq m this equates to a sales density on

average across the full extent of the floorspace of £2,123 per sq m net. This compares reasonably well

with company average expectations on average set at £2,967 per sq m net, indicating that on average

the retail warehouse floorspace provision is broadly performing in line with expectations, although clearly

there is some variations with the survey results favouring the larger dominant destinations.

Comparison Goods Global Capacity

8.43 In assessing capacity for future capacity floorspace we have assumed that the efficiency with which

existing floorspace is being used will increase over time, and we have assumed an annual growth in

existing sales per sq m net of 0.75% between 2010 and 2015, 1.9% between 2015 and 2020, and 2%

between 2020 and 2026. Based on the performance of existing floorspace – both town centre and out of

centre combined – (£4,993 per sq m net) we factor in a sales density of around £5,000 per sq m net, and

have translated residual expenditure into floorspace on this basis. This assessment has assumed that

Doncaster town centre will maintain its existing market share and we have forecast the capacity for new

floorspace in the years 2015, 2020, 2025 and 2026.

8.44 By virtue of growth in population and expenditure we have projected that increases in available

comparison expenditure will create a residual expenditure of £6.1m in 2015, £90.8m in 2020, £254m in

2025 and £298.8m in 2026. This translates to capacity of 1,178 sq m net by 2015, 15,916 sq m net by

2020, 40,397sq m net by 2025 and 46,532 sq m net by 2026 (see Table 23, Appendix 8).

8.45 These conclusions have assumed that Doncaster maintains market share, and the centre has positioned

itself well to do so following the implementation of the French Gate centre extension. Given the current

economic climate a number of competing schemes in the wider sub-region have been put on hold or

been shelved but there are evident development opportunities that may come forward as we emerge

from the recession and investor confidence returns over the LDF period. Doncaster may therefore face

increasing competition as competing centres have the opportunities to improve and extend their retail

offer.

8.46 The challenge for Doncaster will be to consolidate the shopping offer and enhance the quality of the mix

of not only retailing but also wider town centre and other leisure uses in order to maintain existing market

share and its position in the regional retail hierarchy. A pro-active approach and strategy is required in



74

the short and longer term to achieve this objective, and to facilitate development opportunities and town

centre enhancements following the French Gate centre achievement.

8.47 It should be noted that any capacity generated does not justify the development of further out of centre

comparison goods floorspace. In line with Government policy it will be necessary to direct global

capacity into the town centres in the first instance. Our assessment has identified sufficient physical site

opportunities within town centres to accommodate the levels of comparison goods capacity identified

and the implementation of these should be prioritised in accordance with the recommendations in PPS4.

Summary

• Capacity forecasts are underpinned by robust survey evidence identifying existing shopping

patterns in the market share and catchment area of Doncaster town centre. Capacity projections

indicate that the total population of the survey area is forecast to grown from 627,611 in 2010 to

712,607 in 2026 – an increase of 14%.

• When forecasting expenditure growth, recent commentary published by Experian Business

Strategies has warned of the extremely rapid deterioration in the UK’s economic performance, and

have recommended significantly lower growth rates with a slow recovery. Based on these

assumptions, our assessment estimates that convenience goods expenditure is expected to

increase from £1,083m in 2010 to £1,450m in 2026 (34% increase). In the comparison sector,

higher growth rates illustrate that spending will increase from £1,623m in 2010 to £2,974m by 2026

(83% increase).

• Our assessment has identified substantial capacity for additional convenience goods floorspace

over the LDF period even after taking into consideration the commitment to extend the Tesco

foodstore on Church View. This is, however, driven by the trading performance of the six major out

of centre foodstores in the borough; all but one are substantially overtrading at the current time.

Doncaster, Mexborough and Thorne town centre all have a very low market share relative to the

out-of-centre foodstores, and any capacity should be directed to town centre opportunities in the

first instance.

• This level of capacity does not justify further out-of-centre floorspace. Indeed it demonstrates the

ability of the existing centres to accommodate additional convenience goods floorspace, to claw-

back expenditure to support such growth; i.e. to increase their market share. This will lead to an

enhanced vitality and viability in accordance with policy.

• In respect of comparison goods, we have identified that Doncaster is trading particularly well with a

strong sales density for a centre of this size and position in the hierarchy. Thorne and Mexborough

have a weaker comparison goods trading performance but this is perhaps expected given their

lower order role and predominantly convenience/service functions. The borough has a significant

level of out of centre comparison goods retailing which is currently trading in line with expectations

and does not appear to be having a detrimental impact on the performance of Doncaster town



75

centre at the current time. We have identified capacity for an additional 1,178 sq m net comparison

goods floorspace by 2015 growing to 40,397 sq m net by 2025.



76

9. CONCLUSIONS

9.1 Drawing on previous sections, including our qualitative and quantitative analysis, this section sets out

the key conclusions arising from our analysis; reviews potential development opportunity sites;

recommends a retail/town centre strategy to 2026; and puts forward a series of policy recommendations

to be considered within documents coming forward as part of the LDF process.

Policy Priorities

9.2 PPS4 requires local authorities to be particularly pro-active in planning for their town centres and

remedying deficiencies in provision in areas with poor access to facilities. In particular, local authorities

are required to provide consumer choice through the promotion of competitive town centres, ensure their

centres can meet the need arising over the LDF period and identify edge/out of centre sites if required;

review the appropriateness of the hierarchy and any changes required to manage decline or respond to

deficiencies, particularly in deprived areas; and review defined shopping boundaries and frontages.

9.3 Within the Yorkshire and Humber RSS (May 2008) Doncaster is identified as a second tier Sub-Regional

Town. Along with other such centres, Doncaster is encouraged to provide the focus for housing,

employment, retail, leisure, education, health and cultural activity and facilities within the region. More

specifically, Doncaster is to strengthen it’s identity and role as an accessible and vibrant focal point for

high trip-generating uses. Mexborough and Thorne are designated as third tier Principal Towns,

performing the role as a local focus for housing, employment, shopping, leisure, education, health and

cultural activities and facilities. The document resists the development of new or large-scale extensions

to regional and sub-regional shopping centres.

9.4 Until the adoption of the Council’s LDF, the UDP continues to be the statutory policy framework with

which to assess planning applications against, although being published in 1998 it is considerably out of

date. Doncaster is identified as the key major centre in the borough, and Mexborough and Thorne are

amongst a number of second tier ‘small town and district centres’; and overall policy structure is broadly

consistent with the current national policy position of town centres first.

9.5 Nevertheless, there is confusion in respect of the allocation of ‘Commercial Policy Areas’ and ‘Town

Centres’, and we strongly recommend this is addressed moving forwards. The adopted policy

framework and allocations on the proposals map do not sufficiently define between the status of

Commercial Policy Areas and Town Centres, giving rise to ‘grey areas’ in policy terms. Given our

findings in respect of the dominance of out of centre retail provision it is crucial to ensure the town centre

retail hierarchy benefits from a separate policy framework in accordance with the requirements of PPS4.

This will ensure the Council has absolute control in future development control decisions for proposals

on the edge of or outside town centres.



77

9.6 In terms of the LDF the Council undertook further options consultation in 2007, but are currently

reviewing the LDF with a revised timetable to be confirmed. In due course the Council will consult again

on the Core Strategy.

Sub-Regional Positioning

9.7 In terms of the sub-regional context, the household telephone survey has identified Pontefract,

Meadowhall, Scunthorpe, Retford, Wakefield, and Rotherham as Doncaster’s main competing centres.

Our review of the key performance indicators confirm the higher order shopping roles of Leeds, Sheffield

and York which are located some distance from Doncaster (33miles; 22miles and 35miles respectively)

but do have some influence in terms of leakage from Doncaster’s catchment given their attraction and

quality and mix of retailing. Nevertheless, this is minimal (1.5%, 2.2% and 0.7% respectively).

9.8 Doncaster is clearly performing a strong role within it’s position as a second tier Sub-Regional Centre in

the Yorkshire and Humber Plan. Pontefract, Scunthorpe and Retford Sub-Regional Centres are all

located around the edge of the survey area explaining their higher trade draw levels, and whilst

Meadowhall is located a further distance beyond, its retail attraction is clear given the similar levels of

trade draw. Wakefield and Rotherham occupy the same position to Doncaster in the RSS hierarchy but

are located further from the survey area and hence draw a lower level of trade than Pontefract,

Scunthorpe and Retford.

9.9 Within the whole survey area, Doncaster town centre draws 31.4% of total available comparison goods

expenditure from Zones 1-11 (£510,294m). The strongest market share Zones are 2 (58.4%), 1

(57.8%), 6 (51.7%), 3 (53.5%) and 8 (49.6%). We consider this to be a strong consolidated core

catchment area reflecting Doncaster as a first choice shopping destination for a larger number of people.

Doncaster also has a reasonably good market share in Zones 4 (23.8%), 7 (20.6%) and 11 (10.4%); and

a lower market share in Zones 5 (2.5%), 9 (8.3%) and 10 (9.5%). Nevertheless, the centre’s catchment

extends across the full survey area.

9.10 Policy does not require Doncaster to take a step change upwards in the retail hierarchy to compete with

centres like Leeds, Sheffield or York; but rather requires the centre to consolidate it’s position as a Sub-

Regional Centre. Locally, Doncaster should aim to retain and enhance market share over the LDF

period. Fortunately, Doncaster benefited from the Frenchgate extension in advance of the recession

which has substantially enhanced it’s retail performance. The results of the Household Survey reflect

the strong role of Doncaster in the catchment and the importance of the Frenchgate Centre in

maintaining and improving the attraction of the centre in recent years.

9.11 During the strong economy and growth years, such a study would usually warn of market share erosion

in a ‘do nothing’ scenario in the context of new and competing schemes in the surrounding network of

centres. Today, however, our analysis has identified the growing number of shelved and delayed

schemes, with developers struggling to maintain scheme viability and funding agreements. There



78

appears no immediate threat in the short to medium term of increasing competition for Doncaster, and

this appears to be an opportune period for Doncaster to pro-actively plan for the next stage of town

centre enhancement.

Current Performance


9.12 Our assessment of Doncaster identified a generally healthy town centre performing in accordance with

it’s role as a Sub-Regional Shopping Centre, and is much enhanced following the recent opening of the

Frenchgate Shopping Centre extension. Nevertheless, there are signs of an imbalance in activity across

the centre with the primary area focused in the west around Frenchgate and surrounding prime shopping

streets, with a considerably lower level of activity in the east around Waterdale and surrounding streets.

The opening of the Frenchgate Centre and adjoining new transport interchange, together with the

closure of the bus station in the east beyond Waterdale, has exacerbated this shift in activity and focus

in the shopping centre.

9.13 Nevertheless, the town centre is performing well in a number of vitality indicators. Notably, the centre

has improved its national rank position in terms of the number of retailers wishing to locate there; there

is a strong range of variety and department store operators; and a strong night-time economy offering a

number of bars and clubs. The proportion of comparison goods floorspace and number of major

national multiple retailers are both above the national average; the market contributes substantially to

the overall retail offer, forming a strong attractor in it’s own right; and the prime retail area, largely to the

west, has a low vacancy rate.

9.14 Nevertheless, there are signs of weaker health check indicators suggesting some vulnerability in the

overall health of the centre. The number of vacant units in the more secondary areas, generally in the

east of the centre, is particularly high; and rents have declined recently. The range and quality of

convenience floorspace is weak; there is a below average representation of eating and drinking

destinations; the high number of bars and clubs can give rise to an intimidating environment with anti-

social behaviour, and despite the Frenchgate Centre extension, Doncaster has not improved it’s Javelin

VenueScore UK rank position.

9.15 There are evidently some clear weaknesses to address in the centre, primarily based on ‘missing’ town

centre categories to enhance the overall ‘experience’, and the east/west imbalance of activity.

Fortunately, there are some clear identifiable development opportunities that the Council can promote

through policy to ensure the centre as a whole benefits from future enhancement following recent

investment at Frenchgate to the west of the town centre.



79


9.16 Mexborough is a reasonable size centre with over 150 units and our analysis has identified a number of

positive health check indicators. Notably, the number of comparison units is in line with the national

average offering a good range of charity shops, chemists, ladies clothing/footwear, home

improvement/electrical stores and card shops; there is a strong convenience goods offer; and there has

been some improvement in the evening eating/drinking offer through the introduction of Wetherspoons

and an Indian Restaurant.

9.17 There are a number of useful everyday services including a Post Office, banks, building societies, hair

salons, and opticians; vacant units appear to re-let swiftly; there are signs of investment (Montagu

Precinct); a plentiful supply of free parking; and there is a general feeling of safety in the town centre.

The importance of the market is evident, with 36.3% only visiting on market day, and of those who do

shop in Mexborough, 57.6% shop in the market with a strong response rate for fruit and veg, meat and

clothing. The centre does offer a small representation of high quality fruit and veg shops (Smiths

Greengrocers) and a delicatessen (Pickles Farm), as well as some specialist shops including a

music/instrument shop.

9.18 There are some areas of concern, however, which we consider to be a threat to the future vitality and

viability of Mexborough. Notably, these include the above average number of vacant units with a

notable concentration around the outdoor market place on York Square. The number and proportion of

comparison multiple retailers is low and the quality of comparison businesses is generally weak; the

centre has fallen considerably in the UK retail rankings database; there are no appropriately sized units

to attract a better quality and range of retailer; and there is evidence of a declining environment,

particularly around York Square. Around 7% of visitors do not feel safe when visiting the town centre

during the day.

9.19 Overall, usage of Mexborough within the Core Catchment (Zone 4) is low, with 39% never visiting

Mexborough for any reason; and usage of the centre for evening restaurant eating is particularly low,

attracting only 12.1% within Core Zone 4. Mexborough does not appear to benefit from a good walk-in

catchment with only 9.4% of respondents walking to the centre, perhaps not surprising given its

geographical location on a steep hill and bound on one side by a main road, river and railway line. Bus

and train usage is also very low. Overall, the mix of retailers, declining environment, low usage, limited

walk-in catchment, and increase in vacant units reflects a declining centre which requires policy

intervention. There are, however, some strengths to build on at the current time.

Thorne Town Centre

9.20 Thorne is marginally smaller than Mexborough with around 135 units and is performing well as a small

town centre within the borough, whilst benefiting also from investment currently being implemented. The

centre is an historic market town creating a pleasant shopping environment; the number of vacant units



80

has fallen between 2007 and 2009; and there is a reasonable mix of comparison retailers with a

seemingly niche offer in the carpets, flooring, furniture and DIY/hardware goods categories. The

convenience goods offer is reasonable but small in scale at the current time, but this is set to be

substantially enhanced following the opening of Sainsbury’s in the old Co-Op unit on King Street. There

is plentiful free car parking in the town centre, and the role of the daily market and monthly farmers

market appears to be crucial to the overall attraction of the centre.

9.21 Thorne is functioning well offering a range of retail and leisure services, and the mix of retailing is set to

improve following the opening of Sainsbury’s; but there are some weaker health check indicators

although these do not give rise to serious concern at the current time – although they should be

monitored. There is a particularly low representation of daytime eating/drinking facilities, and although

there is a good range of retail services these are dominated by hairdressers and beauty salons. An

improved offer would assist in the attraction of the centre and dwell time.

9.22 There is also a clear split in activity levels with Finkle Street acting as the prime retail area, with the

highest concentration of retail activity and footfall, and King Street comprising a more dispersed pattern

of units and a lower pedestrian footfall. Clearly the Sainsbury’s on King Street will assist in underpinning

the attraction and footfall on King Street in the future, but physically the pavements are narrow and

pedestrian environment poor. On-Street parking on Green Street has been identified as detracting from

the environment and further consideration should be given to it’s necessity in the context of the clear

availability of off-street car parking elsewhere. Connectivity throughout the centre, particularly following

the opening of Sainsbury’s should be a priority consideration over the LDF period.

Convenience Goods

9.23 Doncaster town centre has a marginally below average provision of convenience goods retailers,

although this is skewed towards a larger than average number of bakers, frozen foods, markets and

newsagents. The number of supermarkets, grocers and convenience stores is, however, under-

represented compared to the national average. The offer does include Sainsbury’s (1,569 sq m net) in

the Frenchgate Centre, Farmfoods, Iceland and Jack Fulton in and around Waterdale, and the largest

foodstore, Tesco (2,306 sq m net) on Church View - the opposite side of the ring-road with dedicated

store parking.

9.24 There are few smaller convenience goods foodstore businesses throughout the town centre, and whilst

Doncaster performs primarily as a comparison goods shopping destination, convenience goods

floorspace does add to the mix and choice of retailing for shoppers, visitors and employees.

Nevertheless, the market in Doncaster is a key attractor for the town centre, providing a range of food

products. The survey analysis demonstrates that a significant 50.4% of total respondents in the survey

area shop in the market, with a strong influence on shopping patterns in all 11 Zones. Of these

shoppers, 58% buy fruit and vegetables, 43% buy meat, 37% buy fish and 16% buy clothing and

footwear.



81

9.25 In terms of performance, the Tesco on Church View is marginally under performing, whilst the

Sainsbury’s store and ‘other’ convenience goods floorspace is over-trading; this includes the

performance of the market although can’t be separated out from ‘other local’ as an individual shopping

destination and the performance must therefore be reviewed together. There are no major causes for

concern in terms of performance, although from experience elsewhere in the UK the Tesco store of this

scale in this location, with adjoining car parking, would normally be achieving a greater turnover.

9.26 Mexborough has both a Tesco (1,573 sq m net) and Somerfield (954 sq m net) foodstore, and an indoor

and outdoor market. The Tesco store is located centrally next to the market, and the Somerfield is

located to one end of the main retail area; both appeared quieter with top-up basket shoppers. There

are a number of smaller independent foodstore retailers, some offering higher quality goods in attractive

units. The convenience goods offer in Mexborough is dominant with the number of units significantly

above the national average demonstrating the key role and function of the centre compared to

comparison and even service uses.

9.27 The market has over 90 stalls with many in the indoor market operating six days a week. Although this

has a run-down feel and environment, it remains popular with shoppers; 58% of those who visit

Mexborough shop in the market and of those shoppers, 36% only visit on market days, i.e.

demonstrating the importance of the market to their shopping choices and trips.

9.28 However, in terms of convenience goods performance, the results of the telephone survey indicate that

Mexborough is performing particularly badly, with both the Tesco and Somerfield significantly under-

trading. The results of the telephone survey may have under-estimated this performance somewhat, but

it is clear that the foodstore provision in Mexborough is not performing well or meeting the needs of the

local catchment area. Within Core Zone 4, residents are mostly travelling to the Morrison store on York

Road with others going to the Asda in Rotherham and the Tesco at Woodfield Way amongst others

(Appendix 5). Our assessment highlighted the low walk-in figures (only 9.4%), and the car is clearly the

chosen transport choice in the immediate catchment – allowing ease of access to the major out-of-

centre foodstores.

9.29 Thorne currently has a very small Somerfield foodstore (413 sq m net); and the previous Co-Op unit on

King Street (871 sq m net) is currently being redeveloped and is due to open shortly occupied by

Sainsbury’s. Other convenience offer includes Heron and Fultons frozen food, as well as a good range

of quality independent butchers, bakers, greengrocers and delicatessens. The market is smaller and

less frequent than the offer in Mexborough, but it is crucial to the overall vitality and viability of Thorne

town centre; and the Farmers Market is a particular draw once a month. The performance of the centre

following the opening of Sainsbury’s should be monitored.

9.30 Unlike Mexborough, convenience goods floorspace in Thorne is performing well, with the Somerfield is

exceeding performance expectations. There appears to have been some confusion amongst survey

respondents following the closure of the Co-Op store, with people responding instead ‘Thorne Town

Centre’ rather than being able to specifically state the Co-Op store. This may partly explain the



82

particularly high market share for ‘Local Shops, Thorne’ in Core Zone 8 (48.1% for top-up food

shopping), although does also reflect the good quality smaller independent retailers and market.

Following the opening of Sainsbury’s an updated survey is likely to highlight an enhanced overall town

centre market share.

9.31 Doncaster has a particularly strong network of major out of centre food superstores; comprising two

Asda’s, two Tesco’s, one Sainsbury’s and one Morrisons (total 25,607 sq m net). Overall, these

foodstores have a combined turnover of approximately £290m compared to the combined turnover of

Doncaster, Mexborough and Thorne of £82.9m, which demonstrates their dominance and influence on

convenience goods shopping patterns throughout the borough.

9.32 Within the Zones largely comprising the Metropolitan Borough boundary (Zones 1,2,3,4,6 and 8) there is

a total pot of available convenience goods expenditure of £652m and the main foodstores assessed

within our analysis capture £357.7m of this expenditure (54.9%). We consider this to be a good trade

retention given the proximity of the outer areas of the Zones to Scunthorpe, Goole and Rotherham, for

example; as well the location of the main town centre and out of centre foodstores to Doncaster, i.e. in

more central locations some distance from the outer areas of the Zones. A large proportion of Zone 8 is

also located outside the Borough boundary.

9.33 The more detailed shopping pattern analysis in Appendix 5 does not demonstrate significant leakage of

trade from the Borough, and in this context there is not an over-riding need to enhance foodstore

provision in the borough as a whole in order to claw back lost trade. The leakage from Zone 8 in the

north east of the borough to the Tesco Extra in Scunthorpe (12.9% main food) may be stemmed

somewhat by the new Sainsbury’s in Thorne, and again this should be monitored through new survey

work in the medium term, i.e. 2-3 years after opening.

9.34 Convenience goods capacity forecasts are set out in Tables 9.1 below. At the global level, which takes

into consideration the performance of all convenience goods floorspace in the borough, there is clearly

considerable capacity for additional convenience goods floorspace (6,838 sq m net by 2015). This is,

however, driven by the strong performance of the six major out-of-centre foodstores. A more localised

analysis of capacity arising in Doncaster demonstrates a much more limited level of need; in

Mexborough the figures suggest there is an over-provision and in Thorne there is some identified

capacity.

9.35 These figures cannot, however, be taken out of context. For example, the reason for low or negligible

capacity figures in Doncaster, Mexborough and Thorne is their current market share levels and the

existing flows of expenditure to out-of-centre floorspace. Based on current market shares, future growth

will be directed to the same destinations, i.e. the six major out of centre foodstores will continue to

capture the same proportion of expenditure in the future. Policy, however, encourages development to

be directed to town centres first and requires local authorities to be pro-active in identifying more central

sites to accommodate new development. The three town centres are able to support more development



83

than that suggested by the capacity forecasts if new development is of a sufficient scale and quality to

claw-back lost trade; i.e. to change shopping patterns and increase market share.

Table 9.1: Borough Convenience Goods Capacity Forecasts

2015 sq m net 2020 sq m net 2025 sq m net 2026 sq m net

Global Borough 6,838 9,497 12,343 12,308

Doncaster -339 101 573 597

Mexborough -1,884 -1,812 -1,734 -1,742

Thorne 635 709 787 783

9.36 Whilst the capacity does not appear to be present in quantitative terms, qualitative improvements to

convenience goods floorspace in Doncaster, Mexborough and Thorne can re-capture trade currently lost

to the major out-of-centre foodstores, and enhance their market share to support new floorspace. We

recommend that the Council do not allocate further sites beyond the town centres for foodstore

development, and if development proposals do come forwards for additional out-of-centre floorspace,

they must demonstrate that they have been robustly tested against the new, substantially more

stringent, impact and sequential tests set out in PPS4.

9.37 Out-of-Centre floorspace has undermined the performance of Mexborough in particular, and future

proposals should not continue to erode this role and impact should be a very careful consideration. A

policy compliant review of the out-of-date Commercial Policy Areas will assist the Council in retaining

development control over new proposals.

Comparison Goods

9.38 The Frenchgate Centre extension opened in 2006, which has substantially enhanced the quality of retail

provision and attraction of the centre as a comparison goods shopping destination. The vacancy rate in

and around the Frenchgate Centre (i.e. prime retail area) remains particularly low, and Doncaster has an

above average provision of key attractors including department and variety stores (improved by the

opening of Debenhams in the Frenchgate extension); children’s, ladies and mens-wear shops; footwear

operators, and jewellery shops. From our character area analysis in Section 4, it is evident that this offer

is focused in the ‘Central Shopping Area’ and the ‘Frenchgate Centre’ (See Section 4).

9.39 The good range of shops on offer is reflected in the household telephone survey results. When

respondents were asked ‘why don’t you visit Doncaster for your non-food shopping’ the main response

was distance from home (32.9%), i.e. they live in the outer survey Zones; no-one from Zone 1 or 2

provided this response; and more importantly a negligible proportion of respondents stated the reason

for not visiting Doncaster was a poor range of shops or services.



84

9.40 We have already acknowledged the imbalance in the centre, with the opening of the Frenchgate Centre

extension and the relocation of the bus station exacerbating the shift in the focus of activity to the west,

and the Central Shopping Area. This has led to a fall in activity in the more secondary retail areas,

particularly around Waterdale which is experiencing a declining environment and a growing vacancy

rate. Indeed, as we’ve already noted the vacancy rate in the Central Shopping Area/Frenchgate is very

low and the higher vacancy rate in the more secondary areas is actually driving the above average

number of vacant units in the centre as a whole.

9.41 Plans to develop the Civic and Cultural Quarter (CCQ) to the south of Waterdale (outside the Primary

Shopping Area) will help to revitalise this area through increased footfall and a superior profile and

general environment; and we recommend that the overall intention for this part of the town centre and

adjoining Primary Shopping Area should be a quality built environment and the creation of a clear

identity to redefine this declining area. A clear opportunity for enhancement exists for the general area

sitting between the CCQ and the Central Shopping Area/Frenchgate.

9.42 Overall, we have identified that Doncaster is performing a strong role as a Sub-Regional Centre in the

wider catchment in terms of national multiple comparison goods shopping; strengthened as a

consequence of the Frenchgate extension. The number of requirements for the centre has fallen – likely

a consequence of space being taken in the Frenchgate Centre and the recession, and Doncaster has

slipped marginally in the overall UK retail rankings of centres based primarily on the representation of

multiple retailers. The overall policy objective should be to consolidate the higher order comparison role,

but also – and equally as important – enhance the wider mix of uses and the more far-reaching ‘visitor

experience’. We discuss this further below.

9.43 The household telephone survey highlights the strong trading performance of Doncaster town centre,

consistent with our assessment of the sub-regional positioning and strong far-reaching catchment area.

With a current turnover of £510.3m (£475.8m in 2007 Retail Study Update) and a total net comparison

goods floorspace of 53,992 sq m, the centre has a sales density of £9,451 per sq m net. Based on our

experience elsewhere, we consider that Doncaster is performing particularly well and more in line with a

higher order Regional Centre; we would generally expect a centre like Doncaster to be trading between

£6,500 and £9,000 per sq m net. The 2007 Retail Study Update indicated that the centre was

performing at around £7,028 per sq m net.

9.44 These figures emphasise the strong trading performance of the town centre and the positive impact the

Frenchgate extension has had on the overall trade draw and turnover in quantitative terms. This is

despite the exacerbation of the qualitative imbalance in the centre that should now form the policy

priority for the Council.

9.45 Capacity projections identify capacity for additional comparison good floorspace in the Metropolitan

Borough area over the forthcoming LDF period. Based on conservative spend per capita growth

assumptions, and equally conservative sales efficiency projections, Doncaster has capacity to support

an additional 1,178 sq m net by 2015, growing to 15,916 sq m net by 2020, 40,397 sq m net by 2025



85

and 46,532 sq m net by 2026. This capacity arises from the performance of Doncaster, Mexborough

and Thorne town centres and the out-of-centre retail warehouse floorspace. The location and

implementation of this capacity should be subject to the sequential test, guided by development

opportunities and strategy discussed later in this section.

9.46 Based on our analysis, these capacity forecasts are largely driven by the performance of the Central

Shopping Area and the Frenchgate Centre. The qualitative imbalance and extreme variation in activity

levels suggests that the eastern area of the town centre would not be performing at this high level. This

suggests a need for the recycling of this space in and around Waterdale which is currently contributing

little in the form of choice or quality to the town centre as a whole.

9.47 At present, Doncaster town centre retains circa 31% (within Zones 1-11) of total available comparison

goods expenditure within the survey area. We consider this to be a reasonable trade retention with the

remaining trade being directed towards the competing centres in the wider sub-region, the network of

smaller centres in the borough, and out-of-centre retail warehousing which is large in quantity and scale.

If competing centres, and in particular, Scunthorpe, Retford, Wakefield, Pontefract and Rotherham, were

to improve their retail offer, Doncaster’s market share might be at risk of erosion although based on our

earlier analysis we don’t envisage such a threat in the short to medium term, i.e. the next 5-10 years, in

most of the centres. However, the Trinity Walk development in Wakefield has consent and has recently

been sold on to another developer likely with the plan to implement.

Development/Strategy Opportunities

9.48 Our analysis in Section 4 has identified a number of development opportunity sites in Doncaster with

which to take forward the next stage of enhancement and town centre revitalisation. The most

significant of these, which is likely to justify the production of a Supplementary Planning Document, is

the Waterdale Centre, which could justifiably stretch to Wood Street, Trafford Way and Duke Street, for

example. An SPD boundary should be given further consideration, and should take into account the

need for improved linkages between the Core Shopping Area and the CCQ, i.e. comprehensive and

integrated approach.

9.49 The future uses should be carefully considered in order to add to the mix and choice of wider town

centre uses, and to enhance consumer choice and Doncaster as a competitive town centre. This does

not necessarily mean more of the same, i.e. national multiple comparison clothing and footwear retailers.

9.50 Doncaster is already well represented by multiple comparison retailers, but there is a weakness in terms

of independent retailers, daytime and evening eating/drinking destinations and major commercial leisure

uses. For example, the catchment are using the Vue Cinema at Herton Way in Doncaster and Xscape

in Castleford for cinema visits; they’re using the Superbowl on Bawtry Road in Doncaster and Xscape in

Castleford for tenpin bowling visits; and the Gala Bingo at Wheatley Hall in Doncaster for bingo trips.

There is one small Bingo Hall in Doncaster town centre (Mecca), although this is small and outdated.



86

Commercial leisure provision in the form of cinemas, tenpin bowling, bingo halls etc in Doncaster town

centre is weak, and there is a qualitative case for improvement.

9.51 Within Section 4 we set out a number of sites that are appropriate to accommodate future change and

growth within the existing Primary Shopping Area. Any work commissioned by the local authority to

review potential development opportunities in more detail should not consider ‘stand alone’ sites, and

should review the town centre as a whole and the implications of development in one area on other

areas. The sites identified have the potential to accommodate development or redevelopment which

would contribute to meeting Doncaster’s identified needs arising and it’s position as a competitive Sub-

Regional Centre.

Development Sites

9.52 Section 4 identified The Waterdale Centre and surrounding street network as the key strategic site for

development and change over the LDF period, and a policy priority for the Council:

“The Waterdale Centre: This declining area continues to suffer from a high vacancy rate,

low footfall and a poor environmental quality. Redevelopment (including the multi storey car

park) provides the opportunity to develop a strong retail anchor at the southern end of the

town, re-balancing the centre and contributing further to the overall retail and leisure mix on

offer. Alternatively, options could include a commercial leisure development, restaurants,

residential and some convenience/comparison retailing offer, for example. Proposals should

consider the CCQ in the adjoining area of the centre, as well as the incorporation of land to

the north adjoining Wood Street. Any loss of car parking would have to be considered by

the council as part of their overall parking strategy.”

9.53 The CCQ adjoins, but lies outside of the Primary Shopping Area. The objectives of the CCQ (delivered

in four stages over eight to ten years) are to totally transform this area helping it to reconnect to the town

centre with the quality and content of the plans raising the profile to new levels; replacing the current

mismatch of properties, styles and uses giving the area a clear identity. Waterdale is identified within

the objectives for the CCQ site, stating that the development will draw people in encouraging

development in neighbouring areas (i.e. around the Waterdale Shopping Centre). The first phase of

development is expected to commence in autumn 2010 (expected 2 year build out period) and should

be open in late 2012 with facilities and attraction including:

• A state-of-the-art new performance venue;

• Doncaster’s first public square;

• New civic offices and council chamber;

• A possible 4-star boutique hotel;



87

• Changes to the road infrastructure with College Road being opened up to Chequer Road.

Waterdale Road will also become pedestrian friendly (crucial for linkages with the Primary

Shopping Area);

• The first of several residential developments promoting town centre living.

9.54 Doncaster’s first public square will form the centrepiece of the Civic and Cultural Quarter, located on the

current Waterdale car park opposite the existing library. This site, which will provide a gathering place

and year round destination with attractions, is crucial in linking the CCQ with the town centre. It lies on

Waterdale Road, directly adjacent to the Waterdale Centre and the Primary Shopping Area. Waterdale

Road will be downgraded, becoming pedestrian friendly from Chequer Road roundabout to the College

Road junction, with only public transport and service vehicles allowed access. The traffic that currently

uses Waterdale Road will be redirected down the new College Road. These proposals and scheme

design will substantially enhance linkages between the PSA and CCQ.

9.55 There is a clear opportunity to promote the Waterdale shopping precinct and surrounding secondary

shopping streets in order to continue to enhance the overall town centre experience. As we have stated

before this does not necessarily lead to a new higher order comparison retail scheme, and other uses

such as commercial leisure, food shopping, independent retail units, and daytime/evening eating and

drinking family friendly destinations. Doncaster already has a strong night-time economy bar/club offer

and we do not recommend this type of use forms a key part or driver of any scheme in this area. The

overall policy objective should be a mixed use scheme contributing to the wider mix of town centre uses,

developing a stronger ‘destination’ and attraction other than the mainstream shopping offer.

9.56 Other development sites allocated within the Adopted Development Plan (1998), that fall within the

Primary Shopping Area (referred to as Shopping Policy Area in 1998 Plan) include:

• TC3 (2): Wood Street. This site lies in the Waterdale area, to the north of the Waterdale Shopping

Precinct, overlapping with the broader area we have identified as a policy priority over the

forthcoming LDF period. It is also well linked with Waterdale Road, adjoining the CCQ and new

public square. This policy allocation is now out-of-date and should instead fall within a wider

consideration for an SPD for the Waterdale Shopping Precinct and surrounding secondary

shopping streets. Much of the site is now implemented, but it remains a strategic area in linking the

CCQ with the existing town centre retail areas.

The Wood Street site is a key strategic opportunity with which to enhance linkages between the

CCQ, the Core Shopping Area and proposals for the Waterdale Shopping Precinct, and should

therefore form part of a wider comprehensive strategy. The suggested boundary for the Waterdale

SPD is land bound by Trafford Way, Cleveland Street, Hall Gate and Waterdale.

• TC3 (3): Printing Office Street/Cleveland Street. This area, as defined in the UDP, totals

approximately 0.8 ha and includes a vacant site and retail properties fronting Printing Office Street

and Cleveland Street close to the main retail area of the town centre. The UDP identifies the site



88

as lying within the High Street Conservation Area, and planning permission existed for a retail

development which retains the existing frontages, and incorporates them into the development.

This site is now largely implemented as a shopping/pub scheme.

• TC3 (4): High Street/Market Place. The 1998 Plan states that the site area totals 0.45ha and

includes an area of back-land and underused buildings behind existing retail frontages at the centre

of the existing retail area of the Town Centre. We consider this policy allocation remains current

and should be incorporated within the forthcoming LDF with the consistent policy considerations;

i.e. that the area is within the High Street and Market Place Conservation Areas, includes some

Listed Buildings and has a record of archaeological interest. Clearly there are some site constraints

and it may be suitable for smaller scale independent retailers and daytime eating/drinking

destinations. We recommend the policy restricts against A5 fast food take-away outlets within this

Primary Shopping Area.

• TC3 (5): East Laith Gate, East. This area totals approximately 0.3ha and is vacant land currently

used as a surface car park on a temporary basis. The small site on the periphery of the Primary

Shopping Area would make it suitable for residential/office development as recommended in the

1998 Plan. We recommend this allocation remains to facilitate development, on the basis that it is

unlikely to perform a crucial strategic parking facility. Any car parking review should incorporate

this site within an assessment to ensure completeness and a full understanding.

• TC3 (6): East Laith Gate/Francis Street. Totally 0.49ha, this area is largely used as a multi-

storey car park together with private areas servicing adjoining commercial properties. We have

identified this in Section 4 as a development opportunity site, and we recommend this remains

allocated within the forthcoming LDF period. Given it’s location behind retail frontages, it seems

appropriate to promote housing/office development along with improved accessibility, although

some retail might be suitable depending on linkages/accessibility.

9.57 In addition to the policy allocations discussed above, we identified a number of further policy allocations

that we recommend are reviewed as part of the LDF process:

• Land at Trafford Way and Cleveland Street: This site comprises a multi-storey car park on the

corner of Trafford Way and Cleveland Street to the south of the prime retail area. Building on this,

a wider opportunity could be considered on land bound by Trafford Way, Cleveland Street and

Duke Street. We recommend this is incorporated within a potential Waterdale SPD boundary for

the Waterdale Shopping/Town Centre Area on land bound by Trafford Way, Cleveland Street, Hall

Gate/Wood Street and Waterdale;

• Bowers Fold: The declining, small precinct has a number of vacant units and detracts from the

overall environment. Comprehensive redevelopment could open up the site and improve linkages

from Market Place through to Silver Street. A more comprehensive option could include a review of

the wider block north of Bower Fold, between Market Place and Silver Street;



89

• 24-28 and 55-60 Silver Street: These units comprise of the vacant La Barraca Bar and Restaurant

and Hogan’s Bar. Whilst Hogan’s Bar is currently trading, both units are of a poor quality and La

Barraca (and the offices above) have been vacant for some time. Their redevelopment or

refurbishment would considerably enhance the environment compared to their current poor quality;

• Market Car Park: This large short stay surface level car park lies at the northern end of the town

centre within the Primary Shopping Area; adjoining the market. It primarily serves the market

traders and their customers, and is short stay at their request in order to encourage higher trip

generation. Clearly, any redevelopment would require the retention of parking spaces, but some

form of retail/leisure development might be appropriate to contribute to the vitality and viability of

this area further. The retention of car parking would be strongly supported by the market traders;

9.58 We recommend that policy also recognises the important contribution that Duke Street, Printing Office

Street and High Street makes to the east/west relationship across the Primary Shopping Area. Policy

intervention should encourage environmental improvements, pedestrian friendly measures, and strong

signage strategies to assist in pedestrian flows along these routes, particularly as the CCQ comes to

fruition and the whole town centre can benefit. As noted earlier, this eastern part of the PSA has

suffered a declining footfall as a consequence of the closure of the bus station and college, and the CCQ

will replace such activity benefiting a much wider area than that falling within the CCQ site boundary.

Independent Retailers

9.59 We have emphasised above the need for Doncaster to widen it’s offer to include a greater choice and

range of ‘town centre’ facilities to capture a greater proportion of the catchment and to compete more

effectively with higher order centres. Part of this is the representation from independent retailers, and

should be a policy objective for Doncaster over the LDF period when considering existing frontages as

well as comprehensive development opportunity sites.

9.60 The ability to encourage the representation of independent retailers is often challenging in town centres

given the strong relationship to rental levels and business rates outside of Council planning control

powers. Furthermore, planning can’t control between multiple or independent retailers or the quality of

the operator wishing to be represented, and existing building stock/size and format of unit might not be

appropriate for such businesses.

9.61 Nevertheless, there are some measures the Council can take at the policy development stage with

which to encourage smaller independent retailers to Doncaster. In terms of existing frontages, policy

can control the mix of uses in terms of Use Class, and in more secondary locations can promote a mix of

A1 shopping alongside A3 and A4 businesses, whilst protecting against more undesirable A5 fast food

take-aways. In some chosen areas specifically targeting better quality independent retailers alongside

eating and drinking facilities, the Council may also wish to restrict against Use Class A2 financial and

service businesses which perform a different, although important, town centre function.



90

9.62 The quality of the environment cannot be under-estimated when aiming to promote an area for

independent retailers. Alongside major national multiples, alternative areas offering a different type of

interesting ‘independent’ retail businesses should be places which encourage and attract people to visit,

to spend time and to ‘meander’ through the streets, stopping for lunch or a coffee. The footfall is

required to maintain the vitality and viability of smaller businesses, and the area must offer something

different and of a sufficient quality to attract visitors away from the Primary Shopping Frontages.

9.63 The size and format of units is also important when considering the independent sector. Identified

development site opportunities being brought forward in the LDF should consider the mix of uses and

promote where necessary the provision for smaller units to accommodate smaller independent

businesses. The linkages and connectivity with primary retail areas with strong footfall should also form

a key consideration in formulating policy for specific development sites to facilitate as far as possible

enhanced pedestrian footfall.

Nether Hall Road/Copley Road

9.64 As set out in Section 4, Nether Hall Road / Copley Road are designated as a Commercial Fringe Policy

Area in the Adopted UDP. The area has a significant representation of retail and service businesses,

and performs an important part of the daytime and evening leisure offer in Doncaster. Forming its own

identity, approximately 60% of units are occupied by restaurants, cafes and take-aways and a strong

multi-cultural offer, although Nether Hall Road appears more vibrant and healthy than Copley Road.

The current policy designation fails to promote this area as a potentially key part of the wider town centre

retail offer and measures can be taken to enhance the role and indeed perceptions and awareness

moving forwards.

9.65 We have identified ‘Bowers Fold’ as a potential redevelopment opportunity within the town centre

Primary Shopping Area, but this allocation could be even more crucial in promoting connectivity with the

Nether Hall Road/Copley Road area in the future – something that should be considered within any site

allocation. This commercial fringe area lies directly adjacent to the PSA boundary although linkages are

currently weak and it performs more of a localised shopping area for adjacent residential areas. Policy

can aim to improve linkages to Nether Hall Road and assist in linked trips, directly aiming to enhance

sight lines, visibility, junction improvements, pedestrian access and ease of movement as well as

signage.

9.66 Given the importance of the area in retail terms, we recommend the current allocation remains but is

perhaps referred to in retail/town centre terms rather than ‘commercial’ to acknowledge it’s key retail role

as part of the wider town centre. Policy will be crucial in controlling uses throughout the fringe area to

maintain it’s health and vitality and viability. Clearly current Use Class A1 units should be protected

given the current over-dominance of service businesses, and any change of use to A1 should be

encouraged, whilst restricting against any further increase in fast-food take-aways which can erode the

quality of the environment and the overall choice and mix of retailing.



91

9.67 The area has already developed an ‘identity’ in it’s own right, and policy can assist in protecting and

enhancing an area, also through encouraging environmental improvements and a shop frontage ‘design’

guide. The fringe area would also seem to sit comfortably with the concept of a ‘Business Improvement

District’ – a flexible funding mechanism to improve and manage a clearly defined commercial area. It is

based on the principle of an additional levy on all defined ratepayers following a majority vote, usually in

areas that are not too run-down and where businesses can afford a small extra outgoing to make

improvements to their area. The onus being on the occupier rather than the owner with the aspiration to

improve the area and overall footfall, and a combined effort and motivation to action key objectives and

target areas for improvement.

Boundaries and Frontages

9.68 The 1998 Adopted Development Plan defined the following boundaries and frontages for Doncaster

Town Centre:

• Shopping Policy Area (Policy TC4 and TC5). This is consistent with the definition of a Primary

Shopping Area as set out in PPS4 and the allocated definition should be amended to ensure

consistency and understanding in interpretation:

“Defined area where retail is concentrated (generally comprising the primary

and those secondary frontages which are contiguous and closely related to

the primary shopping frontage). The extent of the Primary Shopping Area

should be defined on the proposals map. (Source: PPS4, 2009: Primary

Shopping Area Definition)

• Primary Shopping Frontage (Policy TC6). The definition and policy objectives set out in the 1998

Plan are consistent with PPS4 and are clearly defined on the proposals map. Policy TC6 ensures a

predominantly retail function with limited changes of use of ground floor shops from Class A1 to A2

and A3 provided they contribute to the vitality and viability of the centre and do not seriously

interrupt the continuity of the shopping frontage.

The policy wording is consistent with the objectives of PPS4 and should be retained within the

policy framework. It should be noted, however, that the Use Classes Order has since been

changed to give local authorities greater control over A3/4/5 eating and drinking uses. We

recommend Use Class A5 is restricted within the Primary Shopping Frontage in Doncaster Town

Centre.

• Secondary Shopping Frontage (Policy TC7). Secondary Shopping Frontages are allocated and

identified on the 1998 proposals map, and such an allocation should be retained within the LDF

policy framework in accordance with PPS4. Secondary frontages should allow greater flexibility of

uses, which the current policy wording aims to achieve.

Specifically it states that a predominant retail function will be retained, and changes of use from A1

to A2 and A3 which rely on and generate passing trade will normally be permitted provided that A1



92

remains the dominant use, the proposed use would be compatible with the predominant retail

function of the frontage, and a shop-front window display would be provided and retained. This

wording remains relevant to today’s required policy framework, although the policy could now be

more specific in respect of restrictions in the A3/4/5 Use Classes category, specifically controlling

the number of fast food take-aways (Use Class A5).

• Commercial Policy Areas. We recommend a clear distinction is made in the policy framework

between the network of defined local, district and town centres, and out-of-centre retail warehouse

and foodstore provision. The objectives and drivers for allocating Commercial Policy Areas in the

1998 Plan is now considerably out of date and blurred somewhat in policy with the framework not

making a sufficient separation between different types of location and what is and what is not

acceptable in development terms.

The only ‘retail’ allocations in the LDF framework should relate to the network of local, district and

town centres and we recommend out of centre foodstores and retail warehouses do not benefit

from such allocations to ensure the local authority has absolute control over out-of-centre

development control decisions and that applications comply with the national policy framework.

This does not prevent development in such locations in the future but provides the local authority

the flexibility required in changing circumstances.

9.69 With these definitions in mind, the local authority should allocate the following policy designations:

• Primary Shopping Area;

• Primary Shopping Frontage;

• Secondary Shopping Frontage;

• Town Centre Boundary;

• Any special policy allocations and DPD boundaries, for example.

9.70 In respect of capacity for additional comparison goods floorspace, our assessment has identified a need

for 1,178 sq m net of comparison goods floorspace by 2015 growing to 15,916 sq m net by 2020. PPS4

recommends that local authorities identify sites for at least the first 5 years of the development plan

period to meet the identified need arising, and it would be appropriate for the Council to consider the

longer term need to 2020, for example. PPS4 emphasises that, where appropriate, local development

frameworks should set out policies for the phasing and release of allocated sites to ensure a sequential

strategy to development. Furthermore, local authorities are encouraged to make full use of planning

tools to facilitate development, including compulsory purchase orders and other planning tools including

area action plans.

9.71 Having taken a broad calculation, the Waterdale SPD boundary has an area of around 57,000 sq m, i.e.

more than sufficient to meet the need arising up to and beyond 2020. The car park site adjoining the



93

Primary Shopping Area is more than 11,000 sq m. As we have pointed out earlier the wider Waterdale

site is recommended as the policy priority in Doncaster town centre over the LDF period, and is the clear

strategic opportunity to build on the Frenchgate extension and the CCQ to deliver the next phase of

quality development to contribute further to the town centre mix of retailing, leisure and the overall visitor

experience. As noted earlier, this site does include existing retail floorspace although it is performing

poorly in qualitative terms and is unlikely to be achieving the performance levels experienced in the

Primary Frontages, i.e. it is not driving capacity.

9.72 The recycling of existing floorspace is required here and the Waterdale site is appropriate to meet the

identified quantitative need. We recommend the multi-storey car park to the south is included in an SPD

boundary and could be incorporated into the Primary Shopping Area in the future as a sequential edge-

of-centre location.

9.73 Elsewhere, the High Street/Market Place development opportunity and the Market Place car park both

has a site area of around 4-5,000 sq m and would be suitable, sequentially preferable locations for

new/additional retail floorspace in Doncaster. Given the identification of sequential sites in and

overlapping with the Primary Shopping Area, we do not recommend the allocation of further sites

beyond the existing Primary Shopping Area and we do not recommend the Primary Shopping Area is

extended to accommodate further adjoining sites. There are clearly a number of smaller infill

development opportunities within the Primary Shopping Area and these should be encouraged and

facilitated by the local authority, taking into account wider planning considerations.

9.74 As we have highlighted earlier, Doncaster is performing well as a Sub-Regional Shopping Destination,

and the policy objective should be to consolidate and recycle space to expand the mix and quality of

town centre uses.

9.75 Our qualitative health check enabled a detailed understanding of retail composition and pedestrian

footfall throughout different areas of the town centre and as such gave a clear indication of where the

frontage designations should be drawn. It should be noted that what appears to be a declining retail

frontage should not necessarily be relegated to a more secondary role, and should instead be given the

opportunity to develop and improve over the LDF period through policy intervention; thereby retaining it’s

role. We set out below what we recommend to form the Primary and Secondary Shopping Frontages in

the LDF.

9.76 The key change in Doncaster since the previous 1998 Plan has been the implementation of the

Frenchgate extension. Given levels of footfall, this should now be designated within the Primary

Shopping Frontages, whilst retaining the full extent of the previously defined Primary Shopping

Frontage. Footfall remains high and strong, and High Street and Printing Office Street form key

east/west linkage routes from Frenchgate through to Waterdale and the CCQ. These should continue to

be protected as predominantly A1 retail areas which are likely to benefit from increased footfall as a

consequence of the CCQ – and in the longer term Waterdale redevelopment.



94

9.77 The 1998 has a specific policy (TC10) relating to the market, stating that the Council will support the

continued operation and improvement of the existing retail market, and any development will take into

account the Conservation Area and Listed Buildings. Given our analysis of the market and its evident

significant contribution to the attraction of the town centre, we recommend such a specific policy is

retained within the LDF. The market should continue to form a crucial element to the town centre retail

offer and the local authority should be proactive in protecting and enhancing its future. PPS4 specifically

states that local authorities should retain and enhance existing markets, ensuring they remain attractive

and competitive by investing in their improvement (EC4.1e).

9.78 We do not recommend any change to Secondary Shopping Frontages at the current time. They

effectively cover the key secondary shopping streets within the Primary Shopping Area, leading through

to the CCQ. The CCQ and potential longer term Waterdale redevelopment will only contribute to

pedestrian circulation and the enhancement of these areas and their performance and should therefore

be protected as important shopping streets. In the large, they perform well at the current time, and they

should benefit from improvements in the future. All should aim for continued environmental

improvements and a restriction on fast food take-aways (Use Class A5).

Out-of-Centre Retail Warehousing

9.79 Doncaster has a particularly strong representation of out-of-centre retail warehousing, totalling 69,448 sq

m net of comparison goods floorspace. The Lakeside Outlet Village comprises a further 10,760 sq m

net of comparison goods floorspace. Our analysis demonstrates that of the larger of the retail

warehouse parks, Wheatley Road has a stronger representation of less bulky, high street retailers (Next,

TK Maxx, Boots for example; and the Danum Retail Park is the more traditional bulky goods retail

destination. It is also evident that the scale of out-of-centre retail warehouse floorspace is above that in

Doncaster town centre, and significantly above the town centre floorspace (53,992 sq m net) when

taking into account the Lakeside Outlet Village.

9.80 Our quantitative assessment identifies that the out-of-centre retail warehouse provision has a total

turnover of £147m, equating to an average sales density – across all retail operators – of £2,123 per sq

m net. This is below average company expectations of £2,967 per sq m net; i.e. the significant scale of

out-of-centre comparison goods floorspace is trading adequately. Given the overall capacity forecasts

and identified development opportunity sites in Doncaster Town Centre, we do not recommend further

sites in out-of-centre locations are identified for further retail floorspace.

9.81 Appendix 7 sets out our shopping pattern analysis drawing from the Household Survey results for the

two main bulky goods categories: Furniture and floor coverings and DIY goods. The first point to note is

the strong performance of Doncaster Town Centre for such uses, achieving an unusually high market

share for such categories of goods. The second point to note is the limited levels of leakage to

competing bulky goods retail destinations in the wider sub-region, and the ability of the existing scale of

development to retain shoppers within the borough. Clearly there is some leakage to key competing



95

destinations, but this is a result of overlapping catchments and proximity, rather than inadequate

provision in the Borough.

9.82 PPS4 promotes the vitality and viability of town centres, and in this context the Council should be

cautious to proposals which seek a relaxation of conditions to sell less bulky high street goods that might

impact detrimentally upon the town centre. Whilst one or two relaxations might seem acceptable,

incremental and cumulative change can result in significant impact on the town centre as high street

retailers seek relocation to larger more modern formats with adjoining free car parking. This does not

prevent the local authority working with investors to maintain the quality of the existing provision, but all

proposals for new or redeveloped floorspace should be tested robustly against the new, more stringent

PPS4 impact and sequential tests.