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Vision for High Street Bedford

Final Report

to

Bedford Borough Council

by

Ian Parkin Parkin Heritage and Tourism

Hill Cottage Dittisham Dartmouth Devon TQ6 0HR

Tel: 01803 722 585 Fax: 01803 722586 E-mail: ian@ianparkin

Web: www.IanParkin.co.uk

Carol Parr Interpretation Consultant

8 Kenyons West Horsley Leatherhead Surrey KT24 6HX

Tel/Fax: 01483 283181 E-mail: [email protected]

January 2009

Contents EXECUTIVE SUMMARY 1. Introduction And Context 2. Significance Of High Street 3. Strategic Context 4. Current Situation 5. Vision For High Street 6. Way Forward Appendices A. List Of Consultees B. Bibliography C. Strategic Context D. Gazetteer (Available on CD. Please contact Sian Hughes [email protected]) E. Business Questionnaire (circulated/collated by Bedford BID Company)

Vision for High Street Bedford – Final Report (January 2009) Page Number 1

EXECUTIVE SUMMARY 1. High Street has been the primary north : south route through Bedford for over 1200 years. It

has declined, however, since the 1960’s with the growth of the car coupled with new shopping precincts with pedestrian areas, office blocks, the bus station and multi-storey car parks which have moved the centre of gravity of the town centre westwards.

2. The Adopted Town Centre Area Action Plan has identified High Street as a ‘Key Area of

Change’ with a specific objective ‘to sustain and enhance the vitality and viability of the town centre as a whole whilst promoting reinvestment in the existing retail centre including High Street.’ The Inspector appointed to examine the Plan said, in approving the document, ‘I would urge the Council to move quickly in drawing up its strategy for the High Street.’ This was reinforced by the Town Centre Exhibition April 2008 when the public highlighted the revitalisation of High Street as the top priority.

3. It was within this context that the Borough Council sought appropriately qualified consultants

to undertake background research and extensive consultation in order to contribute to the preparation of a Vision and Development Strategy for the High Street area which might include the potential re-creation of an ‘Old Town : Stepping Back in Time’ themed approach. A small specialist team was appointed to undertake this work:

Ian Parkin Parkin Heritage and Tourism Carol Parr Interpretation Consultant

4. The study involved:

* site appraisal * undertaking extensive consultations * background reading to assimilate the strategic context * questionnaire survey to all businesses along High Street through Bedford BID * best practice research * internal urban design workshop * historical research * preparation of a gazetteer.

5. The research identified a strong strategic context for the regeneration of High Street:

* it is a key feature of the Bedford Conservation Area * contains 14 Listed Buildings, 3 of which have potential for statutory listing, 18

buildings recommended for local listing and 35 buildings of positive architectural merit * it has been the primary north : south route through the town for over 1200 years * there is recognition that the town centre is ‘moving’ west and this will accelerate with

the proposed Town Centre West redevelopment


* the Adopted Town Centre Area Action Plan identifies High Street as a ‘key area for change’ and renaissance

* the Inspector urged the Council to ‘move quickly to draw up its strategy for High

Street’ * the Town Centre Exhibition (April 2008) identified High Street as the highest priority

for revitalisation * the Conservation Area Character Appraisal identified High Street as a key feature of

Bedford’s historic townscape and the need to strengthen the design guidance

* national policies argue the need for town centres to be vibrant places characterised by high quality and inclusive design that are safe and accessible for people of all ages 24 hours a day.

6. The key findings from the analysis can be summarised as:

* High Street is an historic street of major significance providing a key north : south

route since Saxon times

* it is important in townscape and architectural terms providing a largely complete façade of three storey 18/19th century buildings

* the use of the street has been declining for the last 20 years or so with a gradual shift

of the town centre westwards compounded by the fact that it remains the A6 and continues to be part of the primary route network

* the street is dominated by heavy traffic, including large lorries, generating poor air

quality and high levels of traffic noise which, with the narrow pavements, make it unpleasant to walk along

* the street has always had a range of inns and hostelries and, more recently, has

developed as the focus of the town’s night-time economy which, whilst well managed, brings with it noise, unruly and anti-social behaviour until the early morning

* as a result there is a perception that the High Street is undesirable for middle aged

and older people in the evening * as a result High Street is increasingly perceived to be a ‘no-go area’ for middle aged

and older people in the evening * despite comprehensive cleansing the night-time economy can still leave some dust,

litter, staining and greasy pavements (and creates unacceptable problems for owners) * the quality of shopfronts has declined which has downgraded the townscape quality

and image of the street * a significant proportion of upper floors are vacant (or used for storage) and there are

concerns (although not hard evidence) that the built fabric is deteriorating through a lack of maintenance

* a high percentage of properties have absentee landlords who see them as part of

investment portfolios with guaranteed income and so they are not so interested in the quality of the buildings

* from our survey we found that a significant proportion of respondents have tenancies

which are due for renewal within 5 years : 25% of respondents said they would like to


be elsewhere. A proportion are likely to move to Town Centre West and there are real (and valid) concerns that rental increases could have a significant impact on the long term viability of other businesses. This was also raised by the Inspector

* very few of the historic commercial businesses remain (Luddington’s closed early

2008) * there is perceived to be a lack of accessible short term parking, or suitable parking, to

serve the needs of staff and visitors to the night-time economy (there is also a perception that the Council are not fully supportive of businesses)

* the story of High Street and its buildings is not told and there is real potential to

interpret and celebrate its heritage.

This reinforces the need for urgent action to: * remove traffic from the street at the earliest possible time (and reduce it in the

short term) taking into account the need for deliveries, taxis and cyclists

* address the historic townscape quality of the street and devise a mechanism by which to renovate the built fabric and maximise the use of the buildings including using the upper floors for residential and commercial purposes which will, in turn, help regenerate the town centre

* strengthen the heritage ‘feel’ of the street and attract a specialist range of

shops which will establish a niche destination in the town centre * enhance the public realm and bring back life and vitality to this part of the town

centre * review and enhance the management of the night-time economy complemented

by establishing a ‘café culture’ with street cafes, family restaurants etc * ensure High Street is a street for everyone twenty four hours a day.

7. We propose the vision for High Street should be:

‘To recreate the traditional heart of the town centre, and maximise its townscape and heritage quality, by the removal of all traffic, the creation of a high quality people friendly public realm (where public art has a place), upgrading the built fabric, reintroducing attractive traditional shop fronts and regular markets, encouraging street cafes and restaurants, increasing upper floor residential and commercial use and creating life and vitality making it a destination for people of all ages at all times’.

To achieve the vision we would propose the following objectives:

* create a traffic free environment which is transformed into an attractive pedestrian

piazza that can become a niche retail destination in the town centre (taking into consideration the need for deliveries, taxis and cyclists)

* ensure the built fabric of the historic street is brought up to appropriate standards of

repair to ensure its long term sustainability * enhance the townscape quality of the historic street with improved shopfronts, window

frames etc so that it becomes a street to enjoy in its own right


* encourage the use of the upper floors for a mixture of residential and commercial uses addressing the potential conflict with noise in relation to licensed premises and air quality, pending the removal of existing traffic levels

* attract a range of niche shops which will improve the ‘retail offer’ and create an

attractive destination within the town centre * stimulate a ‘café culture’ with street cafes and bars spilling onto the street attracting

quality family and specialist restaurants creating a warm, welcoming and friendly environment for people of all ages at all times

* strengthen the management of the night time economy and raise the image and

reputation of the street to be accessible for all * strengthen the links and pedestrian routes between High Street and other parts of the

town centre * develop attractive, safe and well managed car parks in the right location which enable

people to come into, and use, the town centre 24 hours a day. 8. This document represents ‘work in progress’ but provides the framework for a programme of

work that is required to refine the vision and generate the involvement of key stakeholders which is essential in order to achieve the transformation of the street. The key recommendations for immediate action are:

* continue the scoping work on the closure of High Street and prepare best possible

case to GO-North East for its partial closure on Sundays and Saturdays as appropriate

* relook at car parking policy, in the context of the current Lurke Street experiment, in

order to make it easier, safer, more pleasant and cheaper for people to come into the town centre to work, shop, live and use the evening and night time economy

* investigate the options, and cost implications, of enhanced street cleansing to ensure

the complete removal of chewing gum, scum from fast food, urine, vomiting and general litter including cleaning entrances to shops and upper floor premises

* develop an urban design vision for High Street to determine the nature of the historic

character we are seeking to create * investigate the potential to narrow High Street to one lane with laybys in the short term

subject to highway capacity and diversion issues * seek funding to undertake phased high quality public realm works to the High

Street/Mill Street intersection and the High Street/north-east corner of St Paul’s Square as a priority

* obtain funding to undertake a general condition survey on a sample of the properties

along High Street in order to determine:

(a) the current level of occupancy

(b) the general structural condition (including the roof, rainwater goods etc) and identify key buildings ‘at risk’

(c) the suitability of the upper floors for residential/commercial use (including

access, servicing etc)


(d) the number of units that can be created

(e) the likely cost of renovation of key buildings

* commence preparation of the Townscape Heritage Initiative application for submission November 2009 including: (a) establishing a partnership including Bedford Borough Council, the Bedford

BID Company, Bedford College of Further Education, Bedford Pilgrim Housing Association, the Bedford Licensees Association, the Bedford Society, the Bedfordshire Architectural Heritage Trust and members of the community

(b) work with Bedford BID company to undertake a more detailed owner/occupier

survey to identify key properties that can be included in Townscape Heritage Initiative

(c) make links with owners/absentee landlords and work with them to devise a

scheme to upgrade properties based on an appropriate grant scheme

(d) commission two concept design schemes (Bedford BID to help identify partners) to really understand the problems and costs involved in the reuse of the upper floors

(e) commission appropriate commercial agents to provide specialist valuation

advice as appropriate to support the bid

(f) identify heritage skills training opportunities for staff, volunteers, owners and contractors

* consider best practice examples of historic town centre renewal and the methods

employed including ‘Living Above The Shop’ initiative and approaches to developing a niche retail area (like The Lanes, Brighton)

* work with Bedford BID, BEDSafe and Environmental Health to review the current

night-time economy arrangements and prepare a Night Time Economy Strategy (members to be invited to undertake site visit to see the problems first hand and to visit exemplar schemes elsewhere)

* prepare new Supplementary Planning Document for High Street to support the

Townscape Heritage Initiative

* investigate a range of potential funding sources and start the process of building up the funding package

* commission the preparation of an Interpretation Plan to draw out the heritage themes

and stories of High Street in the same way as we have done for Castle Mound and St Paul’s Square and seek funding to implement the proposals in order to make the heritage ‘accessible to all’.

9. It would not be unreasonable to estimate that the upgrading of the historic built fabric of High Street, and the associated public realm works, could cost in the region of £12-15m. This needs to be phased over 5-7 years to coincide with the proposed complete detrafficing of the street. The potential sources of funding are likely to include: * Heritage Lottery Fund * Bedford Borough Council

* Growth Area Funding 4 (2011 – 2013)


* East of England Development Agency

* Homes and Communities Agency

* Property Owners/Occupiers

* English Heritage. 10. We would recommend a twin track programme:

* the Borough Council embark on the THI process but acknowledge that this will only

generate around £2.5-3m of project funding (ie. £1m from HLF and the balance from a range of other sources). This is not sufficient to tackle the scale of the problem. It will, therefore, be necessary to…

* develop a parallel programme with funding from EEDA, GAF4, Homes and

Communities Agency, the Borough Council and owners/occupiers to tackle the balance of properties along High Street.

11. In the period up to the submission of the Townscape Heritage Initiative application in

November 2009 it is important to: * prepare the Traffic Order for the partial closure of High Street on Sundays and

Saturdays as appropriate * prepare the Townscape Heritage Initiative application * commission a general condition survey on a sample of properties on High Street * commission two concept design schemes of appropriate properties on High Street to

fully understand the problems and costs associated with the reuse of upper floors * commission an Interpretation Plan for High Street which will be an integral element of

the Townscape Heritage Initiative bid * commission an Urban Design Vision for High Street to clearly articulate the townscape

character we are seeking to achieve

* start the process of seeking funding through EEDA, GAF4 and the Homes and Communities Agency as match funding to the HLF, Borough Council and owner/occupier contributions towards the project for both the Townscape Heritage Initiative application and parallel programme of work

* commission the preparation of a Night-Time Economy Strategy with the objective of

creating a town centre accessible to all 24 hours a day * seek funding to narrow the street to one lane plus laybys and undertake a first phase

environmental improvement project in the vicinity of the Mill Street/Silver Street junction.

12. In the period November 2009 – June 2011 it will be necessary to:

* undertake the work required by HLF to enable a Round 2 submission to be made * establish and launch a parallel grants programme to address the buildings which are

outside the HLF project


* consider undertaking demonstration projects and strategic acquisitions to illustrate what can be achieved and the benefits it will bring

* use the approved urban design vision as the basis for commissioning a

Supplementary Planning Document for the treatment of High Street taking into account the principles laid down in the Draft Conservation Area Management Plan and including extensive public consultation : this needs to be approved by the time the HLF project is approved or the parallel grants programme is launched whichever is the sooner

* seek specialist retail advice to support the creation of a niche retail destination along High Street.

13. This report was commissioned to research and contribute to formulating a vision for High Street. It has reinforced the need to act quickly to address the decline and deterioration of one of the most historic and important streets in the town. Indeed, it offers an opportunity to plan strategically for the time when we come out of recession. We trust it provides the basis for a series of actions which will lead to the renaissance of High Street and we commend this FINAL REPORT to you.

Ian Parkin Carol Parr January 2009


1. INTRODUCTION AND CONTEXT 101 Introduction

The Early Years

High Street, or Alta Strata in Latin, has, for over 1200 years, been the principal north : south route into, and through, Bedford crossing the River Great Ouse at a place known as Beda’s-Ford. From earliest times the river crossing was important for local communications and trade and settlers were drawn to it. More and more people came to live on the north bank and the settlement became a town. The medieval street pattern, laid out in Saxon times as two fortified burh’s on both sides of the river protected by ditches linked to the river crossing, still survives to the present time with Town Bridge, a listed structure and part of a Scheduled Ancient Monument, maintaining this link with the past. In the 10th and 11th centuries Bedford was important as a trading centre and the central burh of the shire and its significance is reflected in the growth of the town. After 1066 Bedford became a stronghold of the new Norman regime and, during the reign of William II, a huge motte and bailey castle was carefully sited on the north side of the river, and immediately to the east of the crossing point and High Street, to dominate the Saxon street plan. To the west of the castle, fronting onto what is now High Street, the administrative, judicial, ecclesiastical and commercial heart of the town grew up around St Paul's Church. Despite political struggles, culminating in the siege of Bedford Castle in 1224, the town experienced a period of consolidation in the Norman/medieval period. Local commerce flourished and religious houses and hospitals were founded. However, the population was decimated by the Black Death and a new river crossing at Great Barford undermined the local economy draining trade away from the town. Nevertheless, Bedford became the headquarters of Cromwell’s army in 1646-47 and the puritan influence established during the Civil War lived on after the Declaration of Indulgence in 1672 when the town became a centre for non-conformist preachers such as John Bunyan. The revival of Bedford, however, benefited from improvements to the River Great Ouse completed in 1689 making it navigable between Bedford and the North Sea at Kings Lynn. This generated a significant increase in riverborn traffic and trade with boats delivering coal to the town and taking agricultural produce away. Despite the revival of trade, the flourishing educational reputation of the town and religious activity, however, Bedford remained a traditional county town through to the end of the 18th century. Throughout this time High Street was the prime location for traders along with hostelries, such as the George Inn and The Swan, serving both travellers and locals. The original location for the market was outside what is known today as Debenhams and other markets, particularly fresh fruit, vegetables, livestock, fish and flowers grew up around St Paul’s Square. Primary Retail Area By the late 18th and early 19th century the busy High Street had become the prime location for the towns tradesmen, craftsmen and most prestigious businesses providing almost all the goods and services that the people of Bedford and the surrounding towns and villages would have needed. The architectural features associated with the facades often reflected the nature of the businesses and some of these have survived, for example, the stone gun dog that sits proudly on the facia of No. 57, which was once the shop of Henry Adkins, gun maker. Behind the store fronts many of the businesses had busy warehouses and manufactories employing a wide range of tradesmen and women. E. P. Rose, drapery and department store, which expanded from No. 50 in the late 1800s to take over most of the site that is now occupied by Debenhams by the 1930s, employed 90 people in workshops to the rear of the store. These men and women were employed despatching parcels locally, nationally and


overseas and worked in dressmaking and millinery. On the opposite side of High Street, at Nos 15-17, Kilpin and Bilson operated their wholesale, retail and furnishing ironmongery. They had a well stocked shop fronting onto High Street, a first floor office from which they administered the Phoenix Fire Insurance Service and rear workshops where they manufactured and assembled a huge range of plumbing, gas fittings, kitchens and ironwork. While the front of the buildings was a bustle of commercial activity the rear of the buildings was also a hive of industry employing large numbers of men and women. The High Street was not only the retail centre of town : it was also a major employment centre. As the town grew in the second half of the 19th century, particularly after the railway ‘came to town’ in 1858 accompanied by industry, many of the workshops and the retail ‘offer’ of the town centre spread westward as departmental stores, banks and cinemas were built to serve the expanding population. Nevertheless, the pre-eminence of High Street was to remain until after World War II. However, the pace of change quickened dramatically in the 1960’s and the 1970’s when the growth of the car coupled with new shopping precincts with pedestrian areas, office blocks, a new bus station, multi-storey car parks and highway improvements moved the centre of gravity of the town centre westwards. Despite the growth in population, coupled with ongoing investment in the town centre, the strength of the retail ‘offer’ has declined because of the growth and quality of the competing town centres of Milton Keynes and Cambridge. The Borough Council is determined to reverse this trend and have proposed major redevelopment in the coming years with the proposed Town Centre West, Riverside Square, Castle Lane and Railway Station redevelopments. This will only reinforce the drift of the retail focus of the town westwards.

102 Why Is A Vision Required?

These factors have been exacerbated by the growth of traffic, and particularly large articulated lorries, and the lack of a western bypass. As a result High Street has remained the primary north : south route through the town centre using Town Bridge across the River Great Ouse. Over the last 20 years this has resulted in a steady decline in the quality of the townscape and public realm of High Street. Many of the buildings are owned by absentee landlords. A significant proportion of shop fronts are poorly maintained with unattractive facades that clash with the historic buildings, and a preponderance of the upper floors are disused raising increasing concerns about the maintenance of the historic built fabric. There has been a growth in the number of units that are vacant or are occupied by charity shops. The heavy one-way traffic and relatively narrow pavements affects air quality and the quality of the retailing whilst the concentration of pubs and clubs makes the street, particularly at its southern end, a focus for the night time ‘club and drinking’ economy (and is perceived by some to be a ‘no-go area’ for older people in the evenings). There is an urgent need to reverse these issues. The regeneration and revitalisation of the town centre is regarded as a key priority of the Council and continued endeavours are being made to bring forward town centre redevelopment opportunities. It has been identified as a ‘Key Area of Change’ in the Adopted Town Centre Area Action Plan which has as a specific objective… ‘… to sustain and enhance the vitality and viability of the town centre as a whole whilst promoting reinvestment in the existing retail centre including High Street.’ Policy TC8 states that… ‘… the main focus for retail reinvestment in the existing centre will be the primary and secondary shopping frontages and the High Street in particular’. The Plan goes on to state…


‘… the re-establishment of a successful retail presence in the High Street will require the collective action of the Borough Council, Bedford BID Company, Renaissance Bedford and the Highway Authority. The Borough Council will prepare a strategy in consultation and encourage private sector participation using grant aid where appropriate. The potential to reduce traffic levels and improve air quality will be pursued. Action needs to be taken when Bedford Town Centre West is under construction to maximise impact.’ The Corporate Plan 2007/09 includes… ‘… the investigation of street scene improvements to key town centre locations, including High Street…..’ as part of a ‘Reclaiming the Streets’ initiative. The Secretary of State appointed an Inspector to carry out an independent examination of the Borough Council’s Adopted Town Centre Area Action Plan which he found to be ‘sound’. In his statement he said……. ‘… A vibrant High Street will be important to the town centre generally as it will provide a separate focus which will draw shoppers and visitors through the central part of the primary shopping area. The High Street has much to build upon. Many of the buildings have attractive facades and pedestrianisation proposals will allow a significant improvement to its character. … However, I would urge the Council to move quickly in drawing up its strategy for the High Street…. A drift of interest away from the High Street may be easier to prevent at this stage rather than to cure once it (Town Centre West) has begun.’ A Town Centre Exhibition highlighting new and emerging projects was held from 9 – 12 April 2008 and attracted considerable interest with some 4,500 attendees. This highlighted that public realm improvements to High Street including the restoration of buildings/shop frontages, public art (in an acceptable format), colourful awnings and potential detrafficing were seen as the highest priority by 90% of respondents. This reinforced the results of a similar exhibition held in May 2004 at which 94% of respondents supported an improvement scheme that would focus on the restoration of historic buildings and shop frontages/facades. The current economic downturn has led to a delay in the Town Centre West development and provides an ideal ‘window of opportunity’ to allow the vision and development strategy for High Street to be prepared. It is in this context that advanced feasibility provision was allocated in the capital programme.

103 The Brief

Bedford Borough Council sought appropriately qualified and experienced consultants to undertake background research and extensive consultation in order to contribute to the preparation of a Vision and Development Strategy for the High Street area which might include the potential re-creation of an ‘Old Town : Stepping Back in Time’ themed approach. The study should also explore external funding opportunities such as the Heritage Lottery Fund Townscape Heritage Initiative.

104 Study Team

The Council appointed a small specialist team to undertake this work: * Ian Parkin Parkin Heritage and Tourism * Carol Parr Interpretation Consultant.


105 Methodology

The study has involved: * extensive consultation with key stakeholders including members, relevant Council

officers, agencies, organisations, the business sector including Bedford BID Company, landowners and businesses with an interest in the future of High Street and the adjacent area (see Appendix A). This is fundamental to build on the successful public consultation already undertaken through the Town Centre Exhibition and to engage with the retail industry to find a new retail function/markets and the appropriate identity required for High Street

* background reading to assimilate key policies and strategies at a national, regional

and local level which relate to High Street (see Appendix B) * questionnaire survey of businesses along High Street which was managed through

the Bedford BID (see Appendix E) * best practice review of other town centres and national initiatives of relevance * research into the historical significance of High Street which dates back to Saxon

times and the physical evidence that remains today. This included consultation in the Local History Library, Luton and Bedfordshire Record Office and a reminiscence session in Bedford Museum. This has been presented as a gazetteer (see Appendix D)

* site appraisal to assess and identify potential links into adjacent development * assessment of High Street in urban design terms to start the process of

developing a vision for High Street.

106 Structure Of The Report

The report starts with a section which describes the significance of High Street (Section 2) and go on to summarise the strategic context (Section 3) which is set out in detail in Appendix C. In Section 4 we analyse the current situation following site appraisal, a questionnaire survey of businesses and extensive consultations. This leads on to establishing a vision for High Street with key objectives and primary recommendations as to how this can be achieved (Section 5). The report concludes with the Way Forward including the essential next steps (Section 6).

107 Study Methodology

The study has been managed by: Trevor Roff Head of Economic Development and Regeneration Sian Hughes Project & Research Officer

Department of Economic Development and Regeneration and overseen by a working group comprising the Mayor and a multi-disciplinary group of Council officers which has met twice. We warmly thank Trevor and Sian for their ongoing advice, encouragement and support throughout the study and for the help and assistance of all who have contributed to our work. There is a strong conviction from everyone we have spoken to that High Street is enormously important to the town’s heritage and prosperity and its problems need to be urgently addressed. This clearly cannot happen overnight and will require considerable investment. It can only be achieved by a proactive partnership between the Borough Council, Bedford BID Company,


owners and occupiers and with grant aid through East of England Development Agency, the Homes and Communities Agency, Growth Area Funding 4 (from 2011) and the Heritage Lottery Fund. This is the beginning of a long journey but we trust this report provides the basis for concerted effort over the coming months to establish the foundation for transforming High Street over the next few years. We commend this Final Report to you.


2. SIGNIFICANCE OF HIGH STREET 201 Introduction

In this section we consider in more detail the historic context of High Street and assess its historical significance.

202 Historical Evolution

The earliest settlement grew up on the north side of the River Great Ouse on the frontier between Wessex and Danelaw probably preceding the reign of King Offa. Subsequently Edward the Elder visited in 915AD and ordered the burh on the south side of the river to be constructed. Over the next century Bedford became an important trading centre and coin was minted in the town. The north : south route over Beda’s Ford, running roughly along the course of the present High Street, almost certainly predates the burh and provides the principal axis around which the burh and its medieval street pattern were built. Although there are no documentary references to Bedford Bridge before the late 12th century it is thought that the medieval stone bridge may well have had a Saxon predecessor probably of wooden trestle construction. Some suggest that the bridge was the raison d’être of Bedford from its beginnings as a fortified burh on the north bank of the river in Mercian times. Others suggest the bridge dates from the visit of Edward the Elder in 915AD as a fortified structure which links the two halves of the town. To the north of the bridge was St Paul’s Church on the west side of what is now High Street which, it is said, may have been founded by King Offa in the 8th century. The church was important enough to be the burial place of the Archbishop of York in 970AD and although rebuilt several times during its history it became the ecclesiastical centre of the archdeaconry of Bedfordshire after the Norman Conquest and a regular court was held in the back chapel. For a period important documents about the town were kept on the upper floor of the south entrance. To the east of the north : south road was Bedford Castle built in the south east quadrant of the northern burh which was a strategic location controlling the bridge crossing and river. The outer ditch running along the rear of the buildings currently fronting the High Street marked the western boundary. The northern boundary of the ditch ran along the present Ram Yard. Bedford was a market town and commercial centre by the 10th century and at the time of the Domesday Survey (1086) the market was held along High Street up to the crossroads with Silver Street and Mill Street. It is said the market was in St Paul’s Square in the 13th century and by the 15th century the square had been filled by a network of small streets, or shambles, including a Butchers Row, a Fish Row and Poultry Market. Most of the major medieval inns were grouped around, or close to, the market square and the records of the Swan Inn go back to 1509. The John Speed Map (1610) show a street grid symmetrical around the north : south axis of High Street though clearly disrupted on the east side by the construction of the castle. In 1682-4 a market house was built on the site of Debenhams : stalls under and around the building may have served as the butter market. The building started to obstruct traffic and was demolished in 1780. At that time the market extended for most of the way along High Street from the bridge to the crossroads with Silver Street. The cluttered market square of medieval and post medieval times included a network of alleys known as Butchers Row, Fish Row and Poultry Lane. Buildings such as the Moot Hall, the Coach and Horses and the Old Cross Keys also crowded into the central area. So obstructed


were the streets on Saturday markets, exacerbated by the narrowness of Town Bridge, that radical plans were made to improve the area. The Bedford Improvement Act 1803 empowered commissioners not only to rebuild the bridge but also to take down the Moot Hall, clear some 82 other buildings, construct proper slaughterhouses and take other measures necessary for public health. Redevelopment took place over the next 100 years and the shambles was replaced by the first Corn Exchange in 1849. Bedford was still a traditional market town into the 19th century. Industrialisation came late to Bedford. In 1813 John Howard started an Ironmongers shop on High Street and within 4 years had set up a foundry across the road at No. 35 which grew to be quite extensive and was the forerunner of Britannia Works constructed by his sons in 1851. The industrial period in the second half of the 19th century brought about the transformation of Bedford from a small market town of around 11,000 people into a vastly expanded town of nearly 40,000 in the early 20th century. In this period gas, water and sewage services were introduced and Bedford became part of the national rail network. The market square was cleared for the first time in 700 years when the Coach and Horses (1895), Brown’s Fish Shop (1895) and the Floral Hall (1904) were demolished. The Saturday and midweek markets continue there to the present time. By the late 18th and early 19th centuries High Street had become the location of the town’s most prestigious businesses from bankers to corn millers, builders to watch makers, tailors to wine and spirit merchants together with brewers, maltsters, taverns and public houses. This paints a picture of a busy High Street providing almost all of the goods and services that the people of Bedford and the surrounding towns and villages would have needed. Goods not provided in the shops, such as fresh fruit, vegetables and fish, were available in the street markets. The tradesmen and craftsmen used the rear of their premises as workshops and manufacturing businesses. The photographs of this period show shop canopies, hanging signs, flags, clocks and features (such as the clock and bull above John Bull & Co) many of which reflected the nature of the businesses. The shop fronts had attractive fascias which were a strong feature of the period. A high proportion of the buildings remain largely unchanged to the present day with the exception of the introduction of modern shop fronts and the construction of Debenhams. The street started to change markedly in the 1960’s and 1970’s when, with the growth of the car coupled with a series of town centre redevelopments creating shopping precincts and multi-storey car parks, the retail focus of the town gradually moved to the west. This has been exacerbated by the lack of a western bypass around the town. As a result there has been a steady decline in the quality of the townscape and public realm of High Street. Many of the shop fronts have been modernised which detract from the general ambience. A significant proportion of the upper floors are disused, or only used for storage, raising concerns about the maintenance of the built fabric. An increasing number of units are vacant or are occupied by charity shops. The heavy and noisy traffic flowing southwards as a one way street from Dame Alice Street/St Peter’s Street junction to Town Bridge, and relatively narrow pavements, affects the quality of retailing (it is not a street for window shopping). In recent years there has been an increasing concentration of late opening pubs and clubs (many of which have been there for centuries) which makes the street, particularly at the southern end, a focus for the towns night time economy. High Street has always been a through route, a vibrant commercial heart of the town with residential above, and a street including taverns and hostelries for travellers. Whilst people enjoy historic streets they want them to be safe, traffic, noise and pollution free and places to enjoy at all times of the day. High Street needs to adapt to reflect the needs of the 21st century.


203 Draft Bedford Conservation Area Appraisal (2008)

High Street is within the Bedford Conservation Area which was first designated in 1969 and was subsequently consolidated in 1975. It is in the north west quadrant of the late Saxon/medieval settlement of the town and is, therefore, of considerable archaeological potential. The principal land uses in the area are commercial with shops and offices lining the streets and extending into the backland areas, such as within The Arcade, opened in 1906. High Street retains the architectural character of a prosperous market town. It is highly enclosed by a close knit range of fine, mainly C18 and C19, three storey buildings with narrow facades, attractive irregular roofline and long burgage plots which are a reflection of their medieval origins. It is a one way street with traffic flowing southwards from the Dame Alice Street/St Peter’s Street junction and has: * 14 listed buildings * 3 which have potential for statutory listing * 18 which are recommended for local listing * 35 buildings of positive architectural merit. This underlines the significance of the historic townscape. However, all is not well. As we have already said many of the shop fronts are poorly designed and the vacancy of many upper floors raises concerns about the maintenance of the historic building stock. The Adopted Town Centre Area Action Plan seeks to increase residential accommodation above shops although it is important to minimise the impact on the historic fabric. The street currently carries heavy vehicular traffic which dominates its character to an unacceptable degree. Indeed, the traffic threatens to overwhelm the character and appearance of the townscape and raises issues concerning the impact of vibration and pollution of the historic fabric. The Adopted Town Centre Area Action Plan seeks to detraffic the street but it is important that a heritage led scheme is devised for the public realm if the character and appearance of the Conservation Area is to be enhanced. The area has suffered surprisingly little change but the Borough Council has sought to address the issue of shop fronts and signage with the publication of design guidance. However, it is vital that future change is carefully controlled in terms of scale, siting, materials and detailing.

204 Draft Conservation Area Management Plan The Draft Conservation Area Management Plan seeks to provide a clear strategy for the

management of Bedford Conservation Area in a manner that will safeguard and enhance its character and appearance. The Management Plan is intended to assist and guide those involved with development and change not only within the boundaries but also within the setting of the Conservation Area. It sets out a framework for preserving special interest, making improvement for enhancement, outlining the resources needed for implementation and provides for monitoring and review.

The two documents were the subject of public consultation during February 2008 and the

findings and recommendations have been incorporated into the final documents. The report on public consultation can be inspected on request.

The current issues and opportunities relate to:


* legibility, sense of place and urban growth * safeguarding the legacy of historic buildings/structures and archaeological potential

* vacancy/buildings at risk

* erosion of character through inappropriate alteration, inappropriate maintenance or

loss of architectural/other historic detail

* loss, or modification, of historic enclosure and securing appropriate enclosure * the impact of new development

* the installation of shopfronts, canopies, signage and security shutters

* highways, traffic and the quality of the public realm

* car parking and …………

* the management of trees and opportunities/need for new planting.

A series of measures have been identified as ways in which to safeguard and enhance the distinctive character and appearance of the Conservation Area which address the issues and opportunities identified. These include: * urban growth There is a presumption against demolition of historic buildings of townscape merit and

any new development should be based on careful historic research and analysis so that the special characteristics of the Conservation Area are restored

* historic buildings and archaeological potential The Council will seek funding to commission a study to identify and assess the

remaining timber framed buildings in the Conservation Area and to promote the listing of buildings identified in the Appraisal as having potential for statutory listing. In addition, the Council should produce a list of locally important buildings to increase the focus of conservation policies on relevant buildings

* buildings at risk The Council will seek to identify buildings which may be ‘at risk’ and will work with

owners to ensure that the safe upkeep and future preservation of these buildings can be safeguarded (which could include the use of statutory powers)

* building repair, maintenance and alteration The Council is under a duty to allow only development that will preserve or enhance

the character or appearance of the Conservation Area. What is clear is that a number of buildings within the Conservation Area have suffered from inadequate, or ill-advised, maintenance or poorly conceived alteration. It is considered that an Article 4(2) Direction would have clear and tangible benefits in safeguarding the area from future erosion

* boundary enclosure Increasingly car ownership, and the need for parking, is an increasing problem with

the loss of front and rear gardens and boundary walls. An Article 4(2) Direction would seek to protect all authentic boundary walls and other means of enclosure


* new development Any new development must achieve a successful juxtaposition of old and new that respects the historic context * shopfronts, canopies, signs and security shutters The Supplementary Planning Document ‘Shopfronts and Advertisements in

Conservation Areas’ provides effective principles and practice : ill considered design has had an adverse effect on the Conservation Area and the Council will, where necessary, seek enforcement action where works are undertaken without consent

* highways, traffic management and the public realm Highway design, traffic flow and traffic management measures often pay insufficient

regard to the historic landscape. Similarly lighting, surfacing and street furniture are influential but their design are often basic and functional. The retention of historic details such as original stone kerbs, set details and historic lighting columns should be retained and enhanced.

The Council will seek to influence street works, street furniture and signage to achieve

a unified design approach to the public realm works in the Conservation Area. Any proposed restoration and revitalisation of High Street needs to reflect the principles contained in this document. There is a strong case to strengthen design policies through an Article 4(2) Direction or revised Supplementary Planning Document.

205 Why Is High Street Special?

The importance of High Street as a key feature of Bedford’s townscape reflects: * its role as a primary north : south route for 1400 years related to the historic crossing

point of the River Great Ouse at Beda’s Ford * its location at the heart of an historic market town * its relationship with the River Great Ouse as an east : west axis and anchor, with High

Street, of the built form of the town and as an historic source of trade and subsistence * the survival of the medieval street pattern of the town based on the north : south route

of High Street to the river crossing point * the continuing significance of the river crossing point which is marked by Town Bridge

(at the southern end of High Street), a listed structure and part of a Scheduled Ancient Monument

* its important relationship with St Paul’s Square, and St Paul’s Church, and the

commercial, judicial, administrative, ecclesiastical and educational life of the town * its ability to tell a coherent story of settlement from the Saxon period up to the present

day * the consistency of plot layout, building lines, building scale and proportion and an

intricate but accessible skyline

* the social and cultural heritage associated with the town’s businesses, trade, employment and daily lives of its residents.


In many ways these qualities are undermined by the unremitting traffic, including articulated lorries, using High Street as a through route. All the evidence points to the importance of removing the traffic from the street at the earliest possible time.

206 Conclusion

In this section we have considered the historical context and significance of High Street. We now move on to summarise the strategic context.


3. STRATEGIC CONTEXT 301 Introduction

In this section we summarise the various policy strands which we need to take into account in developing the vision for High Street. This includes both national influences and those at a regional and local level. This is set out in detail as Appendix C.

302 What Are We Trying To Achieve?

The introductory statement in the Bedford Adopted Town Centre Area Action Plan is an excellent summary of what we want to achieve… Bedford Town Centre is the heart of our community and should provide a range of quality shopping and entertainment for residents and visitors and a positive focus for public transport. However, the town centre needs to be much more than this : it is a place where people should live, work and have fun. For most people the town centre defines what Bedford is. This is an excellent starting point. Key facts: * town centre footfall has grown 25% in 5 years in response to investment, the

relocation and expansion of the markets and the staging of increasingly popular events such as the River Festival and Victorian Fair (source : Corporate Plan)

* average town centre footfall is estimated to be 16,630 per day (source: Bedford BID)

* in 2001 the town had a primary catchment population of 205,000 * the night time economy attracts between 5000 – 7500 people at weekends generating

upwards of £7m per annum into the local economy (although this has fallen with the downturn in the economy)

* developers have committed to invest over £220m on two major town centre

regeneration schemes with another £20m scheme at Castle Lane which is almost complete

* the tourism industry in Bedford has a turnover of around £150m each year.

303 Key Policies And Strategies We have reviewed a range of national, regional and local policies and strategies which provide

the context for what we want to achieve for the town centre in general and High Street in particular. We summarise these below:

Planning Policy Statement 6 : Planning for Town Centres This document provides guidance for the creation of vital and viable town centres including

promoting high quality and inclusive design, improving the quality of the public realm, protecting and enhancing the architectural and townscape heritage of centres, providing a sense of place, a focus for the community and civic activity and ensuring that town centres provide an attractive, accessible and safe environment for business, shoppers and residents.


It highlights that: * subject to other planning considerations residential or office development should be

encouraged as appropriate uses above ground floor retail and leisure facilities * authorities should prepare planning policies to help manage the evening and night

time economy supported by effective management and successful partnerships to ensure safe and accessible town centres for all 24 hours a day

* the importance of retaining and enhancing existing markets and reintroducing, or

creating, new ones.

Planning Policy Guidance 15 : Planning and the Historic Environment This document provides guidance in relation to historic buildings, conservation areas and other elements of the historic environment. It emphasises: * the responsibilities placed on local authorities by the designation of Conservation

Areas (which include High Street) * the need to find economic uses for historic buildings

* the importance of bringing vacant upper floors back into use, particularly for

residential use, and the need for local planning authorities to develop policies to encourage the use of vacant upper floors working with Housing Associations and others

* the need to protect the historic environment from the worst effects of traffic

* the use of traditional materials, surfaces and layouts which make a vital contribution to

the appearance of a Conservation Area.

A new planning policy document on the built heritage, replacing Planning Policy Guidance Nos. 15 and 16, will be produced as a draft for consultation by Easter 2009. It is thought that the proposed Heritage Bill will reform permitted development rights in Conservation Areas which will allow control over potentially damaging alterations.

How To Manage The Town Centres This publication prepared by The Department for Communities and Local Government (2007)

provides a guide for all who work to make town centres cleaner, safer and greener (and particularly the evening and night time economy). The report draws out a series of steps to achieve this objective:

* developing a shared vision and strategy for delivery * working with partners to achieve the vision

* encouraging responsible trading

* changing the behaviour of the minority

* deploying a reassuring presence

* getting people home safely

* tackling street fouling

* reduce litter, noise and commercial waste


* prevent fly posting.

Most towns the size of Bedford have a Night Time Economy Strategy. To date Bedford have taken extensive action by setting up successful partnerships and procedures. However, as part of the renaissance of High Street, and to support Supplementary Planning Guidance, the time is right to revisit the issues and develop a vision and strategy for Town Centre Management and the Night Time Economy. Night Vision : Town Centres For All This report, produced by The Civic Trust, and supported by the Department for Communities and Local Government, reinforces How to Manage Town Centres and provides guidance as to how to manage the night time economy to maximise the benefits and minimise the problems. The vision is for ……. …..town centres for all where everyone should be able to go out at any hour : young and old, families and children. Town centres should not be ‘no-go areas’ for anyone at any time.’

The report identifies ten principles for change and suggests the vision is based on three

stages:

* control and customer care Regain control and transform standards of customer care. Make town centres hospitable and welcoming * vision and strategy Replace the policy vacuum with a positive vision and strategy for a more diverse

future. Develop a new agenda with the aim of ensuring a greater balance of venues, more variety, choice and accessibility for all

* partnership and delivery Integrate all the relevant management functions. Encourage all interests to take

responsibility. Extend the scope of town centre management and Business Improvement Districts into the evening and late night.

Regional Spatial Strategy Bedford is identified as a key centre on which development and change will be focused. It is also a regional centre in terms of retail hierarchy. Milton Keynes and South Midlands Sub Regional Strategy The Bedford Growth Area includes 19000 new houses, new jobs and supporting infrastructure. In order to strengthen the existing role and function of Bedford as a regional centre priority should be given to the revitalisation of Bedford town centre and the provision of new employment in the town. Bedford and Marston Vale Growth Area : Economic Vision The Sustainable Communities Plan is based on the renaissance of Bedford as ‘central for business’. The focus for urban renaissance and environmental improvement is Bedford’s town centre. Its reputation and brand will be enhanced as a centre for culture, the arts and entertainment with a vibrant evening economy.


Tourism Growth Strategy This report draws out that the county currently attracts around 9.9m day visitors and 1.26m staying visitors generating £465m into the economy and supporting 6,600 FTE jobs and a further 2,000 indirectly (representing 4.7% of all jobs in the county). Over 30% of visitors are VFR (visiting friends and relations) with an average stay of 3.7 days. The market potential includes: * business tourism (linked to new hotel and conference facilities) * family short breaks

* VFR (and particularly for ethnic minority groups which represent 20% of the

population)

* adult short breaks.

The renaissance of the town centre, and particularly High Street, its markets and the Cultural Quarter, can enhance the visitor offer and raise the image and profile of Bedford as a tourism destination taking advantage of the Cultural Olympiad eg. Bedford River Festival. Living Over The Shop Initiative This initiative was launched in 1989 to encourage greater use of the upper floors of buildings in town centres for residential purposes. Experience has shown that the best results have been achieved where there is an intermediary between the owner and the retailer (using a Housing Association, university, NHS Trust or similar). Negotiations with the retailer need to be at a national level and involve a sub lease of at least 25 years (and ideally longer). The Borough Council considered this initiative in the early 1990’s and invited Bedford Pilgrim Housing Association to work as partners. Some 20 properties were considered, 14 feasibility studies undertaken but only 2 implemented at the end of the day. The issues preventing a successful outcome related to: * obtaining a sufficiently long sub lease from the tenant * technical difficulties in converting the accommodation (including listed buildings) to

meet statutory requirements and the needs of tenants (including noise and air quality)

* cost of conversion which meant it was not viable for affordable housing.

This is further exacerbated by the fact that Town Centre West contains 320 flats whilst Castle Lane, Riverside Square and other sites around the town centre include modern purpose built accommodation. There is also the declining reputation of High Street to consider. The conclusion is that whilst an excellent concept ‘living above the shop’ has serious shortcomings in relation to affordable housing and may need to be focused on the private sector to be successful. There is evidence, however, that the private sector has been converting upper floors into residential in recent years. The Borough Councils adopted policy is still to increase the number of people living within the town centre and to support ‘Living over the shop’ schemes as one means to achieve this. Environmental Legislation The key areas in relation to environmental issues in the town centre relate to: * preventing street fouling


* tackling noise

* air quality.

The Borough Council has a range of powers to deal with these issues which have proved to be successful in recent years in managing the night time economy. However, it will be a challenge to balance the needs of the 24 hours economy with the rights of local residents living above shops. Corporate Plan 2007 -2009 This identifies as a key challenge ‘regenerating the town centre to improve its standing and what it offers citizens’. The key priorities in relation to High Street are: * building citizenship and developing PRIDE IN BEDFORD through active community

engagement : our proposals for High Street are targeted at achieving this * reducing the problems associated with environmental pollution and statutory nuisance

from commercial and domestic premises

* improving the visual appearance of the town centre and visitor locations

* increasing public confidence in agencies and reducing the fear of crime

* creating a highly attractive, safe and successful town centre providing a distinctive and excellent range of activities and facilities

* accentuating the cultural and historical features of the town centre

* enhancing the public realm.

Community Plan 2004 – 2010 A key theme is strengthening the economy emphasising the importance of: * the town centre events programme * the street markets

* the town centre public space improvement programme.

It particularly highlights that Bedford has a rich multi cultural heritage and emphasises the need to work with the diverse communities to preserve our heritage, values and traditions and identify and celebrate vibrant cultural initiatives which reflect the diversity of Bedford’s population. It also draws out the importance of the Cultural Quarter and the value of establishing a night time economy partnership. Adopted Town Centre Area Action Plan The Action Plan provides a vision for Bedford Town Centre by 2021 and a series of site specific proposals. It sets out a series of proposals to achieve the regeneration of the town centre including: * repopulating the town centre with housing (including affordable housing) * expanding the town’s tourism potential including the provision of additional hotel

accommodation


* providing higher quality and safe parking provision targeted at shoppers and visitors rather than long term parkers

* enhancing the public realm by street improvements, public art and the reduction of

traffic in High Street and St Paul’s Square.

It identifies High Street as a key area of change and makes specific reference to: * the need to lift the retail offer ‘across the board’ and to encourage property owners to

modernise their holdings * Town Centre West may have a negative impact on High Street shops and specific

action is required to support this area and encourage new businesses perhaps targeted at Youth Culture

* façade treatment (preserving architectural features) and the reintroduction of colourful

awnings (and potentially public art) can create a new and proactive retail atmosphere

* the potential to reduce traffic levels, or detraffic altogether, will substantially improve environmental conditions and provide space for users to spill out into the street

It proposes that the Council will prepare a strategy for the renaissance of High Street with the Bedford BID Company and key stakeholders It particularly refers to…… * encouraging reinvestment throughout the core retail area including High Street which

could incorporate new housing opportunities * helping High Street to reinvent itself maximising the opportunities for improvement to

the public realm following detrafficking

* the provision of high quality and distinctive shop fronts and signage

* the reoccupation of upper floors for commercial or residential use

* the creation of pedestrian friendly areas including St Paul’s Square North and High Street after 2011.

It goes on to describe how key urban design principles can be reflected in the town centre. Retail Strategy GVA Grimley (2005) found that the town centre was underperforming and vulnerable to competition from Milton Keynes, Cambridge, Peterborough, Northampton and Luton. It proposed that the town centre required a further 50,000sqm of retail space supported by improved eating and drinking, commercial leisure and cultural facilities. There is significant potential for High Street to contribute to this. However, critical to its longer term sustainability is the removal of unnecessary traffic and the creation of a more attractive environment which would support the development of a wide range of quality eating and drinking facilities and more specialist shops. Town Centre Consultations There have been four town centre exhibitions over the past 7 years and there has been a consistent desire to: * regenerate and detraffic High Street


* celebrate Bedford’s heritage and history.

Supplementary Planning Guidance The ‘Shopfronts and Advertisements in Conservation Areas Design Guide’ assists shops and other commercial premises within Bedford Conservation Area (including High Street) in the design of shopfronts and advertisements. The guide seeks to ensure a high standard of design for new shopfronts and advertisement and states that ‘special regard will be given to ensuring that the traditional character of High Street is preserved through a high standard of new shopfronts : ‘character’ is said to be made up of a number of factors including age, appearance, materials, colours, fenestration, proportion and rhythm. The Guide is currently satisfactory for the replacement of, or alterations to, the existing High Street shopfronts and the proposed Supplementary Planning Document for High Street could use this as a reference.

304 Conclusion

In this section we have considered national, regional and local policies and strategies which have direct relevance to the renaissance of High Street. We now turn to analyse the current situation.


4. CURRENT SITUATION 401 Introduction

In this section we describe the current situation as we have found it following: * detailed site appraisal * extensive consultations

* workshops with representatives of Bedford BID and the Licensees Association

* a questionnaire survey to every occupier along High Street (plus the properties in the

vicinity of High Street along Mill Street, Lime Street, The Arcade, Silver Street and The Arcade)

* preparation of a gazetteer. This is described in the following sections.

402 Site Appraisal Our work on the gazetteer (see 405 below) identified that there are 78 premises on High

Street between Town Bridge and Dame Alice Street/St Peter’s Street which accommodate some 98 businesses (including upper floors). There is an amazing diversity of businesses with:

22 offices 18 various retail articles 10 pubs/hotels 10 hairdressers/barber/salon 8 fashion retail 7 restaurant/cafes 7 fast food outlets 4 betting/gaming outlets 4 banks/building societies 4 recruitment agencies 1 departmental store 1 dentist In terms of the use of the upper floors our analysis has shown:

22 offices 10 residential 7 hairdressers 4 retail storage 3 pubs 2 recruitment agencies But there are 13 premises vacant and another 15 (making a total of almost a third) which are either vacant or of unknown usage.

As part of the study we have undertaken a general review of the street and its character together with a photographic assessment which has contributed to the preparation of the gazetteer. This has only reinforced the descriptions contained in the Draft Bedford Conservation Area Appraisal but we would add:


* the northern part of the street (north of Silver Street/Mill Street) tends to be less busy than the south which is a reflection that the heart of the town lies south of the Harpur Street/Silver Street axis

* Lurke Street car park is an important gateway to High Street and the linkages need to

be strengthened particularly Lurke Street/Lime Street and Mill Street/Silver Street

* the townscape quality and completeness of the street scene is remarkable with relatively little infilling or new build

* The Arcade offers an important east : west link with town centre west which needs to

be retained and strengthened

* the narrow frontages and long burgage plots, which reflect the historic evolution of the street, should be emphasised, strengthened and celebrated

* the central focus of High Street at Silver Street/Mill Street is crucial and represents a

high priority for environmental improvement of the public realm to reduce the impact of traffic

* Debenhams is a key site and its future will have a major impact on the long term

character and vitality of High Street. There is a strong case for preparing a planning brief to ensure any future use is compatible with the overall vision for High Street

* there is a concentration of pubs and clubs to the southern end of the street and there

is a case for strengthening this character (with street cafes) particularly if detrafficking can be effected at weekends : it is important to recognise, and address, the noise and air quality implications (until detrafficking is achieved) in terms of any future development of the upper floors

* at the same time the southern section has a concentration of listed buildings (and

others identified as having potential for statutory listing) and care needs to be taken to ensure renovation of the frontages, facades and built fabric coupled with the adaptation of the upper floors is done sensitively within the design guidelines

* the High Street/St Paul’s Square (north east corner) is also an important node of

activity and is the second priority for environmental improvement in the short term. This would be strengthened with the removal of traffic from the north side of St Paul’s Square thereby creating a major pedestrian precinct related to the market

* there has been evidence of investment in the built fabric of various properties in

recent years including, in some cases, the introduction of residential use on the upper floors, but the overall impression is of deterioration of the built fabric

* the public realm is dominated by heavy traffic throughout the day : the pavements are

narrow and uninviting. Window shopping is not enjoyable and visitors tend to come to High Street for a purpose rather than to enjoy the street scene.

403 Findings From Consultations We have consulted widely in the course of the study (see Appendix A) and there is a strong

consensus of opinion that:

* High Street is an important component of the historic fabric of the town and should be conserved and celebrated

* it has suffered in recent years by remaining a major north : south traffic artery through

the town


* this, in turn, has exacerbated the steady decline of the retail ‘offer’ following the town centre redevelopment to the west over the past 20 years

* there is unanimous concern that the proposed Town Centre West development will

further drag business away from High Street and something needs to be done about it as soon as possible (and ideally before Town Centre West begins)

* very few of the historic businesses now remain : Luddington’s was the last to close

(Goldings is an important link with the past and should be retained if at all possible)

* there is a very high percentage of leasehold property with absentee landlords holding property as part of investment portfolios (having said that a number of properties have been acquired over the past few years by local companies)

* a significant proportion of tenancies are up for renewal over the next 5 years :

significant increases in rentals could well stimulate closure or relocation of businesses to the detriment of High Street

* pubs, clubs and fast food outlets have gained a major foothold in recent years and the

street (particularly the southern end) has become a focal point for the night-time economy which it is estimated attracts between 5,000-7,500 young people every Friday and Saturday night (Thursday used to be important but has dropped off over the last couple of years)

* the BED Safe partnership between the Council, the police and licensees is proving

very successful in managing the influx and concentration of young people but High Street is currently perceived by some as a ‘no-go area’ for the middle aged and older and there is no early evening culture

* the night time economy brings undoubted economic benefit (the fast food outlets

make more between midnight – 5am on Friday and Saturday than in the rest of the week put together) but the downside is the anti-social unruly behaviour (urine, vomiting and litter), the petty crime, noise and image and perception of the town centre

* the street cleansing operation starts at 5am each day and is thorough but, however

good it is, a residue of litter, dust and grease can remain whilst individual premises sometimes have to complete the unpleasant task

* during the day the heavy through traffic generates noise, fumes and dust which,

combined with the narrow pavements, creates a poor retail environment

* the decline in the retail ‘offer’ is reflected by vacant shops, an increasing number of charity shops, poor modern shop fronts (particularly fast foods), flyposters and a significant proportion of the upper floors being vacant or underused (although before the recent economic downturn there has been evidence that this was changing)

* there is a strong belief that things will not change until all traffic is removed from the

street (including buses and taxis) and the street is transformed into an attractive piazza with cafes, markets, sculpture, events and street theatre

* there is a recognition that this may not be possible until alternative traffic routes are

created (ideally the northern section of the Western by pass) which may be 5 – 8 years away : however, scoping work is being done to enable an application to be made to GO-North East early in 2009/10 requesting limited closure at weekends

* the east : west arcades and walkways are important features as linkages to and from

the High Street and need to be strengthened


* if key shops relocate to Town Centre West there is real concern as to what vacant shops might be used for and there is an overwhelming need to ensure the character of the street is maintained

* any proposals to use the upper floors of buildings must take into account (in addition

to the practical conversion of the premises) issues relating to noise, fumes and pollution, street cleansing, rubbish removal, servicing and residents parking etc which may be costly and difficult to achieve economically

* concerns have been expressed as to the lack of user friendly night-time parking for

staff and visitors (surface and multi storey) and car parking management (these issues are, to some degree, being addressed)

* businesses have expressed views as to a less than supportive approach by the

Council (particularly in the present economic climate). 404 Findings From Questionnaire Survey In partnership with the Bedford BID company we prepared a questionnaire (see Appendix D)

which was circulated to 181 premises situated on High Street plus premises on Mill Street, Lime Street, the Arcade, Silver Street and Ram Yard during July 2008 (before the school holidays and the economic downturn). The questionnaires were delivered personally by staff from Bedford BID and collected some 10-14 days later. It was hoped that the personal service to members and the relatively swift ‘turn round’ would prompt a high level of response.

In the event we had 63 responses (30%) which is seen to be significant. Of this 41% of the

responses were from High Street and 27% from Mill Street. The responses came from a variety of premises including: Fashion retailing 13% Other Retail 33% Personal grooming 17% Pubs, restaurants, coffee and sandwich shops 16% Miscellaneous services (including banks) 21% The findings were as follows:

* 62% still feel reason for choosing High Street as a location is valid 17% do not * 62% still like where they are 25% would like to be elsewhere * 82% leasehold with 24 (46%) having 5 years or less 10% freehold * 80% say building in good condition 11% poor * 22% use upstairs for storage 27% trading 10% offices 10% other businesses 10% residential 20% unused Businesses expressed the view that……


* there are too many pubs and charity shops * street is polluted by noise, dust and traffic

* it is difficult to cross the road because of the volume of traffic * the street is downgraded by rubbish from pubs, clubs and takeaways * it is perceived that there is a lack of parking serving High Street which is both poor

quality (despite the significant investment in upgrading Lurke Street) and expensive * difficult for deliveries during the day * shoddy shop fronts affect overall look of the street * the street suffers from vandalism, antisocial behaviour (including drugs) and graffiti * The Arcade is attractive (and provides important east : west link) but is not open on

Sundays * Council tax/rent costs are increasingly onerous * ‘A’ frame advertising is not allowed * there are practical problems in relation to stimulating increased use of upper floors.

Businesses have said they would most want to see:

* boutiques and quality independent retailers * quality local food shops with ‘green’ principles * butcher, baker etc * more ‘High Street’ names * Lakeland, Sainsburys Express (Tesco Express coming) * internet/wi-fi and office suppliers.

It is important to recognise that this survey was conducted in July 2008 before the ‘credit crunch’ and economic downturn and may not be truly presenting the current situation. We believe that as part of preparing a Townscape Heritage Initiative application it will be essential to engage businesses again and we should seek to achieve a much higher percentage response.

405 The Gazetteer

To fully understand the historical context, and the evolution of High Street into what we find today, we have undertaken research to trace the history of all of the buildings along the street. This provides us with a building by building reference of High Street businesses past and present. The output of this research has been the production of a Gazetteer (Appendix C) which provides a building by building account of: * current ownership


* history of businesses operating from specific addresses

* statutory listing

* heritage significance of building

* information regarding the context of the building in the historical development of Bedford

* current contrasted with historic photographs. This information was gathered from archive resources such as Piggots and Kelly’s directories, published local history books, newspaper archives, historic photograph and postcard collections, planning control and Land Registry documentation. As well as archive searches members of the local community were also consulted through a reminiscence event held at Bedford Museum. This involved discussion about memories of St Paul’s Square and High Street businesses and revealed that many Bedford businesses are fondly remembered and, while the businesses may have long gone, their names live on as part of Bedford’s cultural heritage. Many older residents remember shopping for ironmongery at Kilpin & Bilson or Henry Bacchus, buying their house furnishings from Wells & Co. Bazaar, their silk stockings from Wm Dusts and their wedding rings from John Bull & Co. One of the region’s famous horticultural specialist and seed merchants, Laxton Bros, also had a shop on High Street and some of the grocery stores, such as Dickins Bros and the International Stores, promoted themselves as very high class enterprises. 42 – 46 High Street in 1957 42 – 46 High Street in 2008

Advertisements from Mates Illustrated Guide to Bedford, 1906 Source : Bedford and Luton Archive and Record Office.


The Gazetteer has generated historical evidence to support proposals for the heritage regeneration of High Street. It provides a visual snapshot of High Street in different eras that can be used to develop appropriate design guidelines. It paints a picture of the evolution of High Street and documents the story behind the rich architectural heritage that survives above street level which provides High Street with a variety and vibrancy lacking in modern streetscapes.

406 Environment Considerations We have already identified in earlier chapters the environmental issues associated with High

Street including noise, air pollution and street fouling. The Council has statutory powers to take action to minimise the impact but it raises significant policy debate about the mix of uses that are appropriate:

* whilst we want to encourage town centre living and a range of leisure and cultural

activities it is important to ensure the design of the buildings and the management of leisure and cultural venues enable each to live alongside the other

* is it appropriate for a town like Bedford to promote and support a night-time economy?

If so, how can the management be improved? Does it need to?

* how can the street cleansing be improved (it is already perceived to be of a high standard) so that the detritus of nightly festivities are totally removed (and businesses/residences do not have an obligation to clean up doorways etc)

* the air pollution can obviously be removed (or greatly reduced) by the removal of

traffic but if this is going to take several years to eradicate can owners/developers be compensated in order to improve properties to an acceptable level with appropriate air conditioning and double glazing

* any changes in traffic routes within the main urban area should be determined having

due regard to the potential to move pollution from one part of the Town Centre to another. An air quality and traffic noise appraisal will, therefore, need to be undertaken for any alternative route considered

* a key issue for the night-time economy is accessible and safe car parking for staff and

visitors. The evening (or all night) opening of Lurke Street on Friday/Saturday night coupled with Sunday opening (so cars can be collected) has been a ‘bone of contention’ between Licensees and the Borough Council for some time. Arrangements have been made to try this out for a trial period (ideally with appropriate road signage) but this is an important consideration in the overall management of the night-time economy.

23 – 25 High Street


407 Potential Highway Closure As has been highlighted above there is a strong body of opinion that High Street should be

completely closed to traffic at the earliest opportunity. However, High Street remains the A6, and is part of the Primary Route Network, although it was de-trunked some years ago.

Various highway studies have been commissioned in recent years by Bedfordshire County

Council (as Highway Authority) and the Borough Council which have suggested that it will be necessary to complete the Western By-pass including the northern link before the closure of High Street can be contemplated. However, in view of the deteriorating High Street the Borough Council, taking into account it will become the Highway Authority from 1 April 2009, has instigated a scoping study, being undertaken by Bedford Design Group in consultation with Bedfordshire Highways, to identify potential diversion routes, the supporting infrastructure required and the likely cost involved in closing High Street on Sundays and Saturdays as appropriate.

The objective is to develop the best possible case and seek the agreement of GO-North East

to make a formal application for the necessary Traffic Order as soon as possible after 1 April 2009. There is no certainty of success but it is important for the Borough Council to obtain the support of the Government Office for the concept which is identified in the Adopted Town Centre Area Action Plan.

408 Opportunities For Townscape Heritage Initiative The Heritage Lottery Fund operate a funding programme called the Townscape Heritage

Initiative that focuses on the enhancement of historic buildings in Conservation Areas which display particular social and economic deprivation. This programme encourages partnerships to be established to work with owners to carry out repairs and other works to a number of historic properties which will significantly improve the townscape quality and the overall quality of life in an area for all those who live, work and visit.

Any project should seek to:

* preserve and enhance the character and appearance of Conservation Areas affected by high levels of deprivation and in need of regeneration

* bring historic buildings back into appropriate and sustainable use

* safeguard the character of Conservation Areas through:

(a) increasing training opportunities in heritage skills including owners, tenants,

volunteers, contractors and sub contractors (b) increasing community participation in decision making

(c) improving understanding of, and approaches to, conservation management

and maintenance

The programme offers grants of between £500,000 - £2m to schemes led by partnerships of local, regional and national interests that aim to regenerate a Conservation Area and help to achieve the Heritage Lottery Fund objectives of: * conserving the UK’s diverse heritage for present and future generations to experience

and enjoy * helping more people, and a wider range of people, to take an active part in, and make

decisions about, their heritage

* helping people to learn about their own, and other people’s, heritage.


The partnership, which could be led by the Borough Council, and could well comprise the Bedford BID Company, Bedford College of Further Education, Bedford Pilgrim Housing Association, the Bedford Licensees Association (called Bed Safe), the Bedford Society and the Bedfordshire Architectural Heritage Trust would contribute to a ‘common fund’. The common fund is managed by the partnership and is used to allocate ‘third-party grants’ towards works on individual building projects within the scheme and also support a range of activities that encourage participation in the heritage and improve understanding and enjoyment of it. The scheme provides: * grants of between £500,000 - £2m * the grant can form a maximum of 75% of the common fund although a figure of

around 50% would significantly increase the potential for success

* the scheme must be based on a Conservation Area that is affected by deprivation and involves a number of buildings, structures or spaces within a defined area

* it will run for 5 years and must achieve the following outcomes:

(a) preserve and enhance the character and appearance of a Conservation Area

affected by high levels of deprivation and in need of regeneration (b) bring historic buildings back into appropriate and sustainable use

(c) safeguard the character of the Conservation Area through increased training

opportunities in heritage skills, increasing community participation and improving approaches to conservation management and maintenance.

The Heritage Lottery Fund see training as very important in order to:

(a) support the development of skills among current heritage workers and volunteers

(b) encourage new employees and volunteers into the heritage sector

(c) Increase awareness amongst the public of the heritage skills which have

created and continue to maintain our heritage.

This is financially supported in three main ways:

(a) train staff and volunteers to look after the heritage eg. specialist heritage skills, maintenance skills, management and project delivery skills

(b) create new opportunities for people to train on the project eg. graduate

internships, extended work experience placement for students (16-19 year old diplomas) or local firms

(c) raising the profile of heritage skills with the public eg. tester sessions for

pupils, heritage skills days for the local community etc. We will need to liaise with staff, Bedford College, secondary schools, contractors and heritage

volunteers to assess the potential as to how heritage skills training can be built into the implementation, conservation management and maintenance of the project.

Under the current HLF programme (2008 – 2013) a budget of £10m has been allocated nationally for the initiative and they aim to support between 8 – 15 schemes per year. This means the level of grant available for any one scheme is likely to only be between £650,000 - £1.25m unless the area is exceptional. Competition will be tough and a grant of £1m will need


to be well argued. Having said that High Street shows significant evidence of deprivation and is in urgent need of regeneration. There is an emphasis on: * structural and external repair of historic buildings and structures which are still being

used * repair and conversion for new uses of vacant or partly used historic buildings.

We have already made a detailed pre-application to the Heritage Lottery Fund describing how

we would approach the project which was well received.

We feel High Street meets the HLF criteria and has a reasonable chance of success particularly if we pitch an application at around £1m. The programme operates one bidding round per annum with a closing date of 30 November. We would therefore propose to make an application in November 2009 which gives the time to enable a first class application to be put together although it is important to recognise that there is no guarantee of success. However, it is a ‘process’ that enables the Council to engage with owners/occupiers which is an essential pre-requisite whether the bid is successful, or not, at the end of the day.

409 Supplementary Planning Document As we have discussed in 303 there is currently Supplementary Planning Guidance in the form

of the ‘Shopfronts and Advertisements in Conservation Areas Design Guide’. We believe a further Supplementary Planning Document is required to set out the design principles and framework for the regeneration of High Street.

The ‘Creating Local Development Frameworks : A Companion Guide to PPS12’ provides

guidance as to how Supplementary Planning Documents are produced. Whilst not having development plan status they can be used to expand policy, or provide further detail to policies, in development plan documents. They will be informed by extensive community involvement and a sustainability appraisal.

Evidence Gathering

Prepare Draft SPD

Public participation in Draft SPD

Representation and finalise SPD

Monitoring and review

Adoption

Com

mun

ity P

artic

ipat

ion

Sustainability Appraisal

Diagram 4.1 : The process of preparing a Supplementary Planning Document


The document must be credible and authoritative and needs to involve the local community and stakeholders in the development of policies. The process involved includes extensive survey and evidence gathering (including data and evidence from the authority, external bodies eg. local interest groups) and original research. A sustainability appraisal should also be built into the process from the beginning. The evidence base could include:

* possible proposals, particularly residential and commercial uses, which could be

implemented during the plan period

* land use issues

* accessibility

* housing need and potential housing supply

* economic issues

* the establishment of baseline information and the sustainability appraisal framework

* town centre uses/users

* aspiration of local communities and stakeholder groups. There is a statutory consultation period of 4 – 6 weeks. Regulation 17 requires authorities to

publish (both in hard copy and electronically) the draft document for formal public participation and invite representations together with a statement setting out how consultation was undertaken and the main issues emerging. The Supplementary Planning Document needs to be accompanied by a final appraisal of its sustainability and a statement of conformity similar to those required for the Development Plan documents.

The process needs to take into account:

* the need for a ‘fit for purpose’ approach

* it must be consistent with national planning policy and regional planning policy

* a partnership approach with a range of local organisations concerned directly with High Street needs to be adopted

* it is possible to prepare the documents quickly if sufficient priority and resources are

allocated and the process is well managed.

The Supplementary Planning Document can be produced within 6 – 12 months and, although is, in many ways, required at an early stage to protect the townscape qualities of High Street it is not absolutely essential before the Round 1 THI is approved (ie. January 2010). If, however, it is refused then we will want to launch a grants programme at the earliest opportunity and the Supplementary Planning Document will be required at that stage.

410 What Does This Tell Us?

The findings of our analysis can be summarised as: * High Street is an historic street of major significance providing a key north : south

route since Saxon times


* it is important in townscape and architectural terms providing a largely complete façade of three storey 18/19th century buildings

* the use of the street has been declining for the last 20 years or so with a gradual shift

of the town centre westwards compounded by the fact that it remains the A6 and continues to be part of the primary route network

* the street is dominated by heavy traffic, including large lorries, and the narrow

pavements make it unpleasant to walk along

* the street has always had a range of inns and hostelries and, more recently, has developed as the focus of the town’s night-time economy which, whilst well managed, brings with it noise, unruly and anti-social behaviour until the early morning

* as a result High Street is increasingly perceived to be a ‘no-go area’ for middle aged

and older people in the evening

* despite comprehensive cleansing the night-time economy can still leave some dust, litter, staining and greasy pavements (and creates unacceptable problems for owners)

* the quality of shopfronts has declined which has downgraded the townscape quality

and image of the street

* a significant proportion of upper floors are vacant (or used for storage) and there are concerns (although not hard evidence) that the built fabric is deteriorating through a lack of maintenance

* a high percentage of properties have absentee landlords who see them as part of

investment portfolios with guaranteed income and so they are not so interested in the quality of the buildings

* from our survey we found that a significant proportion of the respondents have

tenancies which are due for renewal within 5 years : 25% of respondents said they would like to be elsewhere. A proportion are likely to move to Town Centre West and there are real (and valid) concerns that rental increases could have a significant impact on the long term viability of other businesses. This was also raised by the Inspector

* very few of the historic commercial businesses remain (Ludddington’s closed early

2008)

* there is perceived to be a lack of accessible short term parking, or suitable parking, to serve the needs of staff and visitors to the night-time economy (there is also a perception that the Council are not fully supportive of businesses)

* the story of High Street and its buildings is not told and there is real potential to

interpret and celebrate its heritage.

This reinforces the need for urgent action to: * remove traffic from the street at the earliest possible time (and reduce its

impact in the short term) whilst recognising the need to consider deliveries, taxis and cyclists

* address the historic townscape quality of the street and devise a mechanism by

which to renovate the built fabric and maximise the use of the buildings including using the upper floors for residential and commercial purposes which will, in turn, help regenerate the town centre


* strengthen the heritage ‘feel’ of the street and attract a specialist range of shops which will establish a niche destination in the town centre

* enhance the public realm and bring back life and vitality to this part of the town

centre

* review and enhance the management of the night-time economy complemented by establishing a ‘café culture’ with street cafes, family restaurants etc

* ensure High Street is a street for everyone twenty four hours a day.

411 Impact Of The Current Economic Downturn We are conscious that much of the evaluation and analysis for this study was carried out

before the ‘credit crunch’ and the resultant economic downturn. If anything this is likely to reinforce the problems articulated and strengthen the need to do something quickly to support High Street.

We believe there is a need to work closely with Bedford BID Company to find a way in

which businesses can be supported through the next 12 – 18 months.

412 Conclusion In this section we have analysed the current situation. We now turn to establishing a vision

for High Street and to consider how this can be achieved.


5. VISION FOR HIGH STREET 501 Introduction

Having drawn out the strategic context and considered the existing situation we now propose a vision for High Street, establish a series of objectives and set down a number of key recommendations.

502 Vision For High Street

We would propose the vision for High Street should be as follows:

‘To recreate the traditional heart of the town centre, and maximise its townscape and heritage quality, by the removal of all traffic, the creation of a high quality people friendly public realm (where public art has a place), upgrading the built fabric, reintroducing attractive traditional shop fronts and regular markets, encouraging street cafes and restaurants, increasing upper floor residential and commercial use and creating life and vitality making it a destination for people of all ages at all times’.

To achieve the vision we would propose the following objectives:

* create a traffic free environment which is transformed into an attractive pedestrian

piazza that can become a niche retail destination in the town centre (whilst recognising the need to consider deliveries, taxis and cyclists)

* ensure the built fabric of the historic street is brought up to appropriate standards of

repair to ensure its long term sustainability * enhance the townscape quality of the historic street with improved shopfronts, window

frames etc so that it becomes a street to enjoy in its own right * encourage the use of the upper floors for a mixture of residential and commercial uses

addressing the potential conflict with noise in relation to licensed premises * attract a range of niche shops which will improve the ‘retail offer’ and create an

attractive destination within the town centre * stimulate a ‘café culture’ with street cafes and bars spilling onto the street attracting

quality family and specialist restaurants creating a warm, welcoming and friendly environment for people of all ages at all times

* strengthen the management of the night time economy and raise the image and

reputation of the street to be accessible for all * strengthen the links and pedestrian routes between High Street and other parts of the

town centre * develop attractive, safe and well managed car parks in the right location which enable

people to come into, and use, the town centre 24 hours a day. 503 Key Recommendations

This document, following research, seeks to contribute to a ‘Vision for High Street’. It is ‘work in progress’ but provides the framework for a programme of work that is required to refine the


vision and generate the involvement of key stakeholders which is so essential to achieve the transformation that this important historic street deserves. The key recommendations for immediate action are: * continue the scoping work on the closure of High Street and prepare best possible

case to GO-North East for its partial closure on Sundays and Saturdays as appropriate

* relook at car parking policy, in the context of the current Lurke Street experiment, in

order to make it easier, safer, more pleasant and cheaper for people to come into the town centre to work, shop, live and use the evening and night time economy

* investigate the options, and cost implications, of enhanced street cleansing to ensure

the complete removal of chewing gum, scum from fast food, urine, vomiting and general litter including cleaning entrances to shops and upper floor premises

* develop an urban design vision for High Street to determine the nature of the historic

character we are seeking to create * investigate the potential to narrow High Street to one lane with laybys in the short term * seek funding to undertake phased high quality public realm works to the High

Street/Mill Street intersection and the High Street/north-east corner of St Paul’s Square as a priority

* obtain funding to undertake a general condition survey on a sample of the properties

along High Street in order to determine:

(a) the current level of occupancy

(b) the general structural condition (including the roof, rainwater goods etc) and identify key buildings ‘at risk’

(c) the suitability of the upper floors for residential/commercial use (including

access, servicing etc)

(d) assess the number of units that can be created

(e) assess the likely cost of renovation of key buildings

* commence preparation of the Townscape Heritage Initiative application for submission November 2009 including:

(a) establishing a partnership including Bedford Borough Council, the Bedford

BID Company, Bedford College of Further Education, Bedford Pilgrim Housing Association, the Bedford Licensees Association, the Bedford Society, Bedfordshire Architectural Heritage Trust and members of the community

(b) work with Bedford BID company to undertake a more detailed owner/occupier

survey to identify key properties that can be included in Townscape Heritage Initiative

(c) make links with owners/absentee landlords and work with them to devise a

scheme to upgrade properties based on an appropriate grant scheme. (d) commission two concept design schemes (Bedford BID to help identify

partners) to really understand the problems and costs involved in the reuse of the upper floors


(e) commission appropriate commercial agents to provide specialist valuation advice as appropriate to support the bid

(f) identify heritage skills training opportunities for staff, volunteers, owners and

contractors

* consider best practice examples of historic town centre renewal and the methods employed including ‘Living Above The Shop’ initiative and approaches to developing a niche retail area (like The Lanes, Brighton)

* work with Bedford BID, BEDSafe and Environmental Health to review the current

night-time economy arrangements and prepare a Night-Time Economy Strategy (members to be invited to undertake a site visit to see the problems first hand and to visit exemplar schemes elsewhere)

* prepare new Supplementary Planning Document for High Street to support the

Townscape Heritage Initiative * investigate a range of potential funding sources and start the process of building up

the funding package * commission the preparation of an Interpretation Plan to draw out the heritage themes

and stories of High Street in the same way as we have done for Castle Mound and St Paul’s Square and to seek funding to implement the proposals in order to make the heritage ‘accessible to all’.

504 Funding Opportunities

It is difficult to estimate the capital cost of the work at this early stage. However, it would not be unreasonable to assume the upgrading of the historic built fabric of High Street could cost upwards of £6m (78 properties @ say £75,000/property less the contribution from property owners) plus the cost of enhancement of the public realm which could cost a similar sum ie. a sum of around £12 – 15m. This clearly cannot be done overnight and will need to be phased over 5-7 years (to coincide with the complete closure of High Street). Potential funding sources, including the Heritage Lottery Fund, Bedford Borough Council and property owners/occupiers could potentially comprise: * Growth Area Funding 4 (2011 – 2013)

* East of England Development Agency

* Homes and Communities Agency

* English Heritage.


Investigating each of these potential funding opportunities and building the partnership is a key issue for the next stage.

505 Conclusion

In this section we have developed our vision, objectives, key recommendations and identified potential funding sources. There is much to do to deliver the vision. This is the start of the process. We now consider the way forward.


6. WAY FORWARD 601 Introduction

In the course of this study we have: * identified why High Street is significant

* considered the national, regional and local strategic context

* analysed, through a range of techniques, the current situation

* proposed a vision for High Street, established a series of objectives, set down key

recommendations and identified potential funding sources. In this section we consider the phasing for the project and the next steps.

602 Potential Phasing

Our proposals must be realistic and reflect the current financial constraints both on the Borough Council, potential funders and the private sector. The key target dates should be: * 30 November 2009 when we need to submit a high quality application to the Heritage

Lottery Fund under the Townscape Heritage Initiative. A Round 1 decision will be made in 3/4 months at which point, if approved, HLF will expect the ‘partnership’ to work up the scheme over a period of up to 12 months to enable a Round 2 bid to be made ie. December 2010. This should be approved by June 2011 by which time all partnership funding should be in place and a 5 year restoration and enhancement project can proceed

* June 2011 when the HLF project is approved by which time all partnership funding

should be in place, the partnership can appoint a Project Officer and a 5 year restoration and enhancement project can commence.

We need to recognise this is 2½ years away and the ‘clock is already ticking’ with the deterioration of High Street. We would, therefore, recommend that: * the Borough Council embark on the THI process but we anticipate that this will

only generate around £2.5 - 3m of project funding (ie. £1m from HLF and the balance from a range of other sources). This is not sufficient to tackle the scale of the problem. It will, therefore, be necessary to…

* develop a parallel programme with funding from EEDA, GAF4, Homes and

Communities Agency, the Borough Council and owners/occupiers to tackle the balance of properties along High Street.

603 Phase 1 Up To 30 November 2009

There are a series of actions which need to be pursued during this period: * work has already commenced on the scoping study for the Traffic Order which will

culminate in a case being made to GO-North East. With the support of the Government Office it will then be possible to apply for a Traffic Order to close High Street on Sundays and Saturdays (as appropriate)

* start the process of preparing the Townscape Heritage Initiative application. A

meeting has been arranged with the Heritage Lottery Fund on 13 January 2009 and following that it will be necessary to:


(a) establish the partnership

(b) review the scale of the project to reflect the likely grant aid available

(c) commission a general condition survey on a sample of properties on High Street

(d) work with Bedford BID to make links with absentee landlords/owners to

enable a suitable project to be devised

(e) commission two concept design schemes of appropriate properties to really understand the problems and costs involved in the reuse of upper floors

(f) commission the preparation of proposals for heritage interpretation along High

Street which will be an integral element of the Townscape Heritage Initiative bid

* commission an urban design vision for High Street to put ‘flesh on the bone’ and

clearly articulate the townscape character we are seeking to achieve * start the process of seeking funding through EEDA, GAF4 and the Homes and

Communities Agency as match funding to the HLF, Borough Council and owner/occupiers contributions towards the project for both the Townscape Heritage Initiative application and parallel programme of work

* commission the preparation of a Night-Time Economy Strategy with the objective of

recreating a town centre accessible to all 24 hours a day * seek funding to narrow the street to one lane plus laybys and undertake a first phase

environmental improvement project in the vicinity of the Mill Street/Silver Street junction.

604 Phase 2 Up To June 2011

In this phase it will be necessary to: * undertake the work required by HLF to enable a Round 2 submission to be made

* establish and launch a parallel grants programme to address the buildings which are

outside the HLF project

* consider undertaking demonstration projects and strategic acquisitions to illustrate what can be achieved and the benefits it will bring

* use the approved urban design vision as the basis for commissioning a

Supplementary Planning Document for the treatment of High Street taking into account the principles laid down in the Draft Conservation Area Management Plan and including extensive public consultation : this needs to be approved by the time the parallel grant programme is launched, or the HLF project is approved, whichever is the sooner

* seek specialist retail advice to support the creation of a niche retail destination along

High Street.

605 Conclusion

This report was commissioned to research and contribute to formulating a vision for High Street. It has reinforced the need to act quickly to address the decline and deterioration of


one of the most historic and important streets in the town. Indeed, it offers the opportunity to plan strategically for the time when we come out of recession. We trust it provides the basis for a series of actions which will lead to the renaissance of the street and we commend this FINAL REPORT to you.


Appendices


Appendix A

List of Consultees


APPENDIX A : LIST OF CONSULTEES Frank Branston Mayor of Bedford

Cllr Margaret Davy Portfolio Holder Community Safety

Bedford Borough Council

Phil Loton Mayor’s Assistant

Stewart Briggs Head of Environment and Street Services Bedford Borough Council

Ollie Ewington Transportation and Projects Manager Bedford Borough Council

Rosemary Brind Head of Operations and Development Bedford Museum Bedford Borough Council

Joanne Moore Visitor Economy Manager Bedford Borough Council

John Moore Director Cecil Higgins Art Gallery & Bedford Museum

Sian Hughes Projects Research Officer (Economic Development and Regeneration) Bedford Borough Council

Mark Oakley Service Manager (Economic Development) Bedford Borough Council

Ronald McKay Service Manager (Planning Policy) Bedford Borough Council

Ian Johnson Conservation and Historical Buildings Officer Bedford Borough Council

Phil Nicholson Senior Landscape Architect Bedford Design Group

Mo Aswat Executive Director Bedford Town Centre Company

Margaret Carpenter Bedford Archaeological and Local History Society The Bedford Society for Heritage Conservation

Sheila Gibbs Bedfordshire Local History Association

Martin Oake County Archaeological Officer Bedfordshire County Council

Stephen Coleman Historic Environment Information Officer Bedfordshire County Council

Kevin Ward County Archivist Bedfordshire and Luton Archives and Records Service

Richard Wildman Local Historian


Richard Lacy Chief Executive

Chamber Business

Andrew Clark Partner Douglas Duff

David Tillotson Partner Douglas Duff

John Pedlar Rector St Paul's Church

Vic Warner Proprietor Goldings

Gill Anderson BED Safe Project Manager Bedford Borough Council

Paul Dawson Proprietor The Rose Chair Licensees Association

Lornette Stokes Night-Time Economy Sergeant Bedfordshire Police

Amanda Coates Secretary and Trustee Bedfordshire Building Presentation Trust

Alan Cox Trustee Bedfordshire Building Preservation Trust

Paul Rowlands Head of Planning and Housing Services Bedford Borough Council

Craig Austin Environmental Health Manager (Food Safety) Bedford Borough Council

Barry Williams Environmental Health Manager (Pollution Control) Bedford Borough Council

Chris Bilby Health and Safety Manager (Health and Safety/Licensing) Bedford Borough Council

Chris Evans Private Sector Housing Enforcement Manager Bedford Borough Council

Kevin Kavanagh Vice Chair Bedford BID Frescos Coffee House

Chris Nicholas Property Manager Charles Wells

Kay Girling Alders Options

Sue Jeeves Jeeves (Barbers)

Greg Warwick Jeeves (Barbers)

Jay Jones Lucean’s Juice Bar


David Jones Lucean’s Juice Bar

Dave Merritt Proprietor Litten Tree

Carol Merritt Proprietor Litten Tree

Rob Garcha Garcha Group

Chris Bailey Proprietor Bankers Draft

Tracey Barrett Assistant Development Director Bedford Pilgrim Housing Association

Graham Hill Programme and Technical Support Manager Bedford Pilgrim Housing Association

Graham Mason Principal Planning Officer (Development Control) Bedford Borough Council


Appendix B

Bibliography


APPENDIX B – BIBLIOGRAPHY Draft Bedford Conservation Area Character Appraisal Bedford Borough Council Draft Bedford Conservation Area Management Plan Bedford Borough Council Night Time Economy Strategies Portsmouth, Nottingham, Cheltenham, Gloucester etc Bedfordshire and Luton Structure Plan 2016 Bedfordshire County Council and Luton Borough Council Living over the Shop Initiative Stockton on Tees Survey (and various papers/reports) NIGHT VISION : Town Centres for All Civic Trust The beginnings of Bedford David Baker & Evelyn Baker Extensive Urban Survey for Bedfordshire (2001) Albion Archaeology Shopfronts & Advertisements in Conservation Areas Bedford Borough Council Shopfronts and Advertisements in Conservation Areas : Sustainability Appraisal Bedford Borough Council Bedford Adopted Town Centre Area Action Plan (July 2006) Bedford Borough Council PPG15 Planning and the Historic Environment Department of the Environment Planning Policy Statement 6 : Planning for Town Centres Office of the Deputy Prime Minister Bedford Retail Study (September 2005) Bedford Borough Council How To Manage Town Centres Department for Communities and Local Government Corporate Plan 2007 – 2009 Bedford Borough Council Community Plan 2004 – 2010 Bedford Borough Council Focus on the Public Realm English Historic Towns Forum Focus on Retail English Historic Towns Forum


Focus on Tourism English Historic Towns Forum PPS12 Creating Local Development Frameworks Office of the Deputy Prime Minister Townscape Heritage Initiative Heritage Lottery Fund Retail Development in Historic Areas English Heritage Business Plan Bedford BID Company


Appendix C

Strategic Context


APPENDIX C : STRATEGIC CONTEXT C1 Planning Policy Statement 6 : Planning for Town Centres (2005) Planning Policy Statements set out the Government’s national policies and principles on

different aspects of planning. This one focuses on a range of issues relating to the planning for the future of town centres. Sustainable development is the core principle underlying planning including the creation of vital and viable town centres by: * planning for the growth and development of existing centres * promoting and enhancing existing centres by focusing development in such centres

and encouraging the creation of a wide range of services in a good environment accessible to all.

Other Government objectives which also need to be taken into account include: * enhancing consumer choice * supporting efficient, competitive and innovative retail, leisure, tourism and other

services with improving productivity

* improving accessibility offering a choice of means of transport

* promoting social inclusion

* encouraging investment to regenerate deprived areas

* promoting economic growth of regional, sub-regional and local economies

* developing more sustainable patterns of development

* promoting high quality and inclusive design, improving the quality of the public realm, protecting and enhancing the architectural and townscape heritage of centres, providing a sense of place and a focus for the community and for civic activity and ensuring that town centres provide an attractive, accessible and safe environment for businesses, shoppers and residents.

The main town centre uses to which this policy statement applies are: * retail * leisure, entertainment facilities and more intensive sport and recreation uses

* offices (commercial and public)

* arts, culture and tourism

* housing (an important element in most mixed use, multi storey developments).

The role of plans at local level Local planning authorities should adopt a positive and proactive approach to planning and work in conjunction with stakeholders and the community to: * assess the need for new floorspace


* consider the scope for extending the primary shopping area

* identify centres in decline where change needs to be managed (such as High Street).

Promoting high quality design and making efficient use of land It is essential that town centres provide a high quality and safe environment (in the context of the Crime and Disorder Act 1998) if they are to remain attractive and competitive. Well designed public spaces and buildings which are fit for purpose, comfortable, safe, attractive, accessible and durable are key elements which can improve the health, viability and economic potential of a town centre. Policies for the design of development for main town centre uses should promote high quality and inclusive design. Subject to other planning considerations residential or office development should be encouraged as appropriate uses above ground floor retail, leisure and other facilities within centres. A diversity of users makes an important contribution to the vitality and viability of centres. Different, but complementary, uses during the day and in the evening can reinforce each other making town centres more attractive to local residents, shoppers and visitors. Diversification of uses including tourism, leisure and cultural activities, which appeal to a wide range of age and social groups, should be encouraged to be dispersed throughout the centre. Managing the evening and night-time economy Local Planning Authorities should prepare planning policies to help manage the evening and night-time economy. They should encourage a range of complementary evening and night-time economy uses which appeal to a wide range of age and social groups, ensuring that provision is made, where appropriate, for a range of leisure, cultural and tourism activities such as cinemas, theatres, restaurants, public houses, bars, night clubs and cafes. The scale of such development is crucial and needs to take into account the cumulative effect on the character and function of the centre, anti social behaviour, crime and the amenities of nearby residents. There should be an integrated approach taking account of the Statement of Licensing Policy, and the promotion of the licensing objectives under the Licensing Act 2003, and linking this to adequate late night transport provision to support the night-time economy. The Department for Communities and Local Government Cleaner Safer Greener Communities programme highlights three key points for more successful town centres: * effective management of town centres contributes to sustaining vitality and viability * successful partnerships in town centres (between business, the authorities and the

community) enables best practice of resources and a climate of good practice

* safe town centres increase residents’ perception of local authorities and increases quality of life.

This is encapsulated in a 112 page publication ‘How to Manage Town Centres’. Markets Street and covered markets (including farmers’ markets) can make a valuable contribution to local choice and diversity in shopping as well as the vitality of town centres and the rural economy. Local authorities should seek to retain and enhance existing markets and, where appropriate, reintroduce or create new ones. Local authorities should ensure that their markets remain attractive and competitive by investing in their improvement. The document goes on to set out guidance in relation to considerations which should be taken into account in determining planning applications for all proposals pertaining to main town centre uses.


C2 Planning Policy Guidance I5 : Planning and the Historic Environment This document provides a statement of Government policy as it relates to the identification and protection of historic buildings, conservation areas and other elements of the historic environment. The physical surrounds of our past are to be valued and protected for their own sake, as a central part of our cultural heritage and our sense of national identity. They are an irreplaceable record which contributes through formal education, and in so many other ways, to our understanding of both the present and the past. Their presence adds to the quality of our lives by enhancing the familiar and cherished local scene and sustaining the sense of local distinctiveness which is so important an aspect of the character and appearance of our towns, villages and countryside. The historic environment is also of immense importance for leisure and recreation. The function of the planning system is to regulate the development and use of land in the public interest including protecting and enhancing the environment in town and country and preserving the built and natural heritage. Conservation and economic prosperity should be seen as complementary objectives : finding economic uses for historic buildings can secure the continued vitality of conservation areas and the continued use and maintenance of the buildings themselves. The Government urges local authorities to maintain and strengthen their commitment to stewardship of the historic environment and to reflect it in their policies and their allocation of resources. However, the responsibility of stewardship is shared by everyone : central and local government, business, voluntary bodies, churches and by individual citizens as owners, users and visitors of historic buildings. The core principles set out above are implemented through Development Plans, Development Control and Listed Building Consent. The Planning (Listed Buildings and Conservation Areas) Act 1990 also imposes a duty on local planning authorities to designate as Conservation Areas ‘areas of special architectural or historic interest the character or appearance of which it is desirable to preserve or enhance’. The Bedford Conservation Area, containing High Street, is one of 8000 designated in England. Planning policies are formulated for the preservation and enhancement of the area which need to take into account other policies for the area eg. treatment of roads, pavements, public spaces as well as shopping, traffic management, residential etc. Bringing vacant upper floors back into use, particularly for residential use, not only provides additional income and security for the shop owner but also helps ensure important townscape buildings are kept in good repair, meeting housing need and helps diversify town centres after working hours. Local Planning Authorities are urged to develop policies to encourage the use of vacant upper premises working with Housing Associations and through the House Renovation Grant system. All outdoor advertisements affect the appearance of buildings or the neighbourhood where they are displayed. Whilst paying attention to this issue authorities need to be sensitive where outdoor advertising for retail and commercial premises is essential to commercial activity in a free and diverse economy. Roads in Centres Local Highway Authorities should take measures to protect the historic environment from the worst effects of traffic. They have powers to create vehicle-restricted areas or pedestrian zones and to introduce traffic calming measures where appropriate. However, there is increasing recognition that in some historic areas the total exclusion of traffic, combined with extensive pedestrianisation, can create sterile precincts particularly at night. In some cases it may be preferable to consider limited access at selected times for all traffic or particular classes of traffic eg. buses, service vehicles or shared streets and other spaces designed to


encourage motorists to modify their driving behaviour when mixing with pedestrians. Advice is available in the English Historic Towns Forum publication Traffic Measures in Historic Towns. Floorscape and Street Furniture Floorscape and street furniture often make a vital contribution to the appearance of a Conservation Area. Traditional stone, or in some cases brick, surfaces and layouts should be retained wherever possible or re-introduced where there is historical evidence of them. If a street is to be pedestrianised it is important to retain the traditional relationship between footways and carriageways including kerb lines. Wall-to-wall surfaces are often unsuitable and the scale, texture, colour and laying patterns of any new materials should be sympathetic to the areas appearance. In certain circumstances grants may be available from English Heritage towards the cost of street improvement schemes which incorporate the use of traditional paving features.

C3 How to Manage Town Centres The Department for Communities and Local Government published How to Manage Town

Centres report in 2007 as a guide for all who work to make town centres cleaner, safer and greener including those who want to make their local areas places to live especially in the evening and at night.

Town centres are undergoing a renaissance and becoming more active throughout the

day, in the evening and at night. New problems have emerged, particularly alcohol (and drug) related disorder and violent crime which puts a strain on public services. These problems put at risk the future development of vibrant and inclusive town centres and tourism. But local authorities and others have a range of tools and powers to manage these areas.

Town centres continue to attract more inward investment and jobs particularly in new retail

and leisure developments. A key feature of this has been the growth of night-time economies and the rapid expansion of bars, clubs, restaurants and licensed premises. Greater affluence and increased opportunity encourages people to use such facilities.

The growth of inward investment within town centres also contributes towards improving the

physical environment and enhancement of people health and sense of well being. However, the perceptions of a town as dirty or unsafe, and failure to manage town centres in a way which makes them attractive to live in, or visit, discourages investment and has the effect of dragging down the whole area.

Many, especially older people and women, feel excluded from town centres at night and

particularly at weekends. Fear of anti-social behaviour precludes them from activities which might otherwise have attracted them. Those aged 16-34 are the most regular visitors to town centres (45% going ‘at least once a week’) : this figure drops dramatically to 25% covering 35-54 years old and 15% aged 55+ and, of these, 71% report that they visit either less than once a month or never.

The Government is committed to creating cleaner, safer, greener and sustainable

communities and places where people want to live and work. This report draws out the following key steps to achieving this objective:

* have a shared vision and a strategy for delivery : local authorities can produce

this by engaging, listening and learning from those with an interest in the way their city, town or local centres are managed

The report states that such leadership and unity around a strong, clear and shared vision is essential for improving co-ordination of local authorities and the services they provide, as well as other public bodies and the private, voluntary and community sector. Having developed a vision of the kind of town centre and night-time economy


that people want local leaders should develop a framework for managing and co-ordinating the actions of local partners in order to deliver local aspirations. Town centre strategies can be prepared for a variety of reasons including:

(a) encouraging attractive, clean and safe town centres in the day and at night

(b) promoting and managing the development of a diverse range of activities

(c) developing infrastructure (especially late-night transport services) for

combating alcohol-related crime and disorder

(d) balancing the needs of those enjoying the night-time economy with those of residents

(e) responding to problems such as crime and disorder emerging from a lack of

co-ordination and strategic management

* work with partners : partnership working will help pool and make the best use of powers, skills and money, co-ordinate individual actions better and produce successful outcomes

Successful management of town centres requires local strategic and operational partnerships. Town Centre Partnerships, Business Improvement Districts, Local Strategic Partnerships and Crime and Disorder Reduction Partnerships are good frameworks for working together which also enables the pooling and best of use of resources. Bedford appears to be, by comparison to the case studies highlighted in this report, a leading authority in terms of partnership working and the night-time economy with many successful initiatives already in place including radio link, taxi marshals, trained door staff with high visibility jackets, CCTV, alcohol restricted zones, a police presence and the Pub:Safe, Bed:Safe and BAND schemes

* encourage responsible trading : remove barriers to joint working and involve

local businesses in action and initiatives to reduce binge drinking

The report asserts that businesses have a key role to play in preventing crime and disorder by trading responsibly. Whilst most licensed premises are responsible a significant proportion breach their obligations to the community. An industry led code of practice is being established by the Government, working with alcohol producers and retailers in both the on and off-licensed trade, to support owners and operators. The code will focus on areas such as the development of clear protocols for seeking proof of age, effective end-of evening dispersal policies and an end to irresponsible drink promotions.

Specific tools have also emerged to encourage responsible trading: (a) Action Against Business Crime has developed the Safer Socialising Award

(SSA) which is an inspected award scheme for the evening economy and licensed members of Business Crime Reduction Partnerships. The award scheme encourages licensed premises to achieve higher standards of management and operations as a demonstration of their ability to help reduce crime and anti-social behaviour in pubs, clubs and licensed premises

(b) the 'Best Bar None Award Scheme' sets down a standard of operation for

the management of licensed premises. The aim of the scheme is to reduce the risk of alcohol-related harm, disorder and crime and to establish a benchmark of good practice in pubs, clubs and licensed premises, recognising and rewarding high standards


* change behaviours : changing the behaviour of the minority who are

irresponsible and anti-social, whether they are individuals or businesses, will help to prevent alcohol-related problems in town centres

Anti-social behaviour and binge drinking in the streets can intimidate others and lead to disorder and public nuisance making town centres less welcoming for others. Local and public authorities, the entertainment and drinks industry and individuals can share responsibility for ending binge drinking and reducing alcohol-related crime and disorder by helping people to recognise the adverse effects of their behaviour and by protecting the community from this. In Bedford town centre various initiatives have been introduced to tackle persistent anti-social behaviour including banning troublemakers from pubs and clubs and/or entire town centres, restricting alcohol in a specific area and prosecutions

* deploy reassuring presence : community safety officers and wardens are

effective eyes and ears who see and report problems, trigger action and reassure people that town centres are safe

People should expect to walk through town centres safely, day or night, without fear of crime, disorder and anti-social behaviour. Uniformed staff provide a reassuring presence. A uniformed presence combined with high profile patrols, co-ordinated management between venues, CCTV-control radio links, improved street lighting and strategically positioned, professionally operated CCTV cameras, can significantly enhance the way the police and their partners tackle criminal and disorderly activity. Town centre safety is not the responsibility of the police alone. A broad variety of people have a part to play in increasing local security including Community Support Officers, Neighbourhood/Town Wardens, taxi marshals, private security staff and door supervisors, community safety accredited employees, health authority staff and people working for voluntary and community sector organisations

* get people home safely : licensing authorities, police and the leisure and

transport industries need to work together to ensure safe environments surrounding public transport and taxi ranks. Public transport and taxis need to be widely available for getting people home at night

Transport provision is an intrinsic part of a successful town centre and it becomes an even bigger priority after dark. Research has found that, when travelling to and from town centres during the day, passengers' personal security concerns are low. However, their concerns significantly rise at night due to fears about unreliable public transport, insufficient taxis and the anti-social behaviour of others while waiting for public transport and travelling on it.

A vibrant town centre requires regular, safe and reliable transport, day and night, to disperse people before groups begin to congregate and antisocial behaviour takes place. Some of the problems that can pose significant safety risks in town centres include too few taxis for hire, inadequate rank space, taxi touting and poorly managed public transport interchanges. Licensing authorities can promote safe journeys home by taking action on taxi tariffs, establishing additional rank space, increasing security at ranks, establishing formal taxi sharing schemes and encouraging more night buses. Bedford appears to have successfully implemented most of these initiatives

* tackle street fouling : change people's habits before they leave premises at

night, better provision of public toilets and enforcement against perpetrators

Street fouling is an extremely unpleasant but common side effect of binge drinking. Vomiting and street urination can be costly to clean up, threatens the health of people, damages footpaths and buildings through staining and erosion and can be a major


problem for local residents and businesses that are frequently left with the task of cleaning up their own properties.

Adequate toilet provision and appropriate enforcement can reduce street fouling. It is important to locate properly lit, safe public toilets where they are easily visible and accessible in open public areas in town centres. Staffing and maintaining toilets to a good standard of cleanliness will help combat potential issues of graffiti and vandalism, anti-social behaviour and reduce sexual activity and the fear of crime

* reduce litter, noise and commercial waste : use education to explain the

problems caused by noise and litter and encourage businesses to manage and reduce their waste better. Back this up with effective enforcement

Problem noise can emanate from a number of different sources including licensed premises, privately owned music systems, vehicles, equipment in the street, intruder alarms, fireworks and construction sites. Town centre noise can be at its worst when venues close and local residents are trying to sleep. Although there has been only a slight increase in noise pollution in the last decade the perception of noise nuisance has increased and complaints about noise have risen accordingly. Local authorities have several options available to combat noise problems. S.79 Environmental Protection Act 1990 places a duty on local authorities to take reasonable steps to investigate complaints about noise from premises. Those found responsible for a statutory noise nuisance should be served with an abatement notice requiring the nuisance to cease and steps are taken to ensure noise is reduced to a minimum practical level. This will be an increasing problem where pubs and clubs are in close proximity to residential property.

The amount of litter in town centres is on the rise largely as a result of the increased night-time economy. This gives rise to particular types of litter, for example, fast food packaging, cigarette-butts, chewing gum and promotional flyers. All take-away food outlets should be encouraged to sign up to the DEFRA voluntary code of practice for reducing litter from ‘for on the go’. There is no single solution to reducing littering but it is often best achieved through a combination of effective street cleansing, bin provision and frequency of waste collection, appropriate use of legislative powers, targeted education campaigns, partnership working between Councils, businesses and the community and monitoring to identify problem areas

* prevent fly posting : fly posting is illegal and those responsible for it, or

benefiting from its display, should be prosecuted. Removing posters quickly is an effective method of control

The practice of fly posting and graffiti can pose a particular nuisance as it is both unsightly and creates an air of neglect. It is also illegal and anyone responsible for it, or benefiting from it, can be prosecuted. There are a variety of ways local authorities can reduce fly-posting including prosecution, rapid removal and pursuing those responsible. One case study in the report details how residents in Lewisham can report graffiti, fly-tipping and other environmental problems over the Internet or via their mobile phones as part of the ‘Love Lewisham’ campaign. The innovative use of mobile technology has helped achieve impressive improvements in resident satisfaction and service efficiency.

The report provides an excellent framework for managing town centres. Bedford has already embraced many of the principles contained in the report. However, most towns the size of Bedford have a Night Time Economy Strategy and, as part of the renaissance of High Street, the time is right to revisit the issues and develop a visions and strategy for Town Centre Management and the Night-time Economy.


C4 Recognising The Importance Of The Night-Time Economy : Town Centres For All The Civic Trust produced a report called NIGHTVISION, supported by the Department for Communities and Local Government, into the night-time economy and how it should be managed to maximise the benefits and minimise the problems. The dynamic growth of eating, drinking and dancing late into the night and the early morning has grown as a way to revive town centre economies fuelled by the café culture of the Mediterranean and elsewhere. Not so long ago many complained about the streets being empty and dark after hours. Now London’s West End attracts 380,000 at the weekend, 250,000 go to Liverpool City Centre, 150,000 in Leeds and 130,000 in Manchester (it is said that Bedford attracts 5,000 – 7,500). In some centres more people are on the street at midnight than at midday! Whilst there are positive impacts in terms of jobs and business created (5,000 people visiting Bedford town centre each weekend represents at least £7m into the local economy annually sustaining over 200 jobs) the negative impacts of this lifestyle change, however, relate to law and order, public health and the impact on neighbouring residents. The Vision is for: ‘town centres for all where everyone should be able to go out at any hour : young and old, families and children. Town centres should not be ‘no-go areas’ for anyone at any time.’ The most recent planning advice for town centres (PPS 6) urges local authorities to plan for ‘a range of complementary evening and night-time economy uses which appeal to a wide range of ages and social groups ensuring provision is made, where appropriate, for a range of leisure, cultural and tourism activities such as cinemas, theatres, restaurants, public houses, bars, nightclubs and cafés.’ Behind this lies a number of assumptions: * more people would use town centres at night if they were safer, more accessible and

if there was more choice

* a more diverse range of consumer types and ages would improve the atmosphere of town centres at night and possibly inhibit, or restrain, the antisocial behaviour of minority groups

* a wider range of attractions and clientele would make town centres more sustainable. The report found that, after hours, town centres are largely dominated by alcohol based and youth orientated entertainment with a limited range of other activities available and with few of the normal public services available after 8:00pm. The lack of public transport outside London is a recurring theme. It found that more people would go out if there were a greater balance of facilities but there were key barriers: * a lack of adequate public transport * fears connected with the lack of visible policing * the style and restricted choice of venues * the cost of an evening out.


People interviewed wanted a greater variety of bars and clubs, quieter venues, family friendly venues, something for young teenagers to do, free events, late opening food shops, non-urgent medical facilities, sports and leisure centres as well as theatres, museums and art galleries. The report found a youthful, intensely competitive and highly fragmented industry with a lack of consensus about irresponsible price discounting, antisocial behaviour, potential partnership and antagonism to the concept of paying more for services. The report suggests that innovation in the market place will lead to increased variety and choice but public policy and leadership will also be needed. In the future shopping hours will gradually extend into the early evening and later and cultural and other attractions (museums, libraries and visitor attractions) will become available to a growing late night audience. It identifies ten principles for change: * embody the community health agenda in policy and transform behavioural norms * collect the basic data : understand the market and consumer and devise performance

measures and inclusive targets * promote local choice : encourage innovation and growth

* create family-friendly and child-friendly centres

* improve accessibility : deliver safe affordable public transport at night

* set new standards in customer care : make the public realm welcoming and

hospitable

* use planning to shape the future of town centres at night

* develop a new language of design : design out crime and design in delight

* promote flexible hours and multiple use of public buildings : art galleries, libraries, museums and schools eg. the Paris Nuit Blanche event when museums, libraries, monuments, places of worship, tourism attractions, cinemas, parks and gardens and swimming pools stay open all night and breakfast is served in local authority buildings

* extend shopping and other services into the evening.

The vision is based on three stages: * control and customer care

Regain control and transform standards of customer care. Make town centres hospitable and welcoming

* vision and strategy

Replace the policy vacuum with the positive vision and strategy for a more diverse future. Develop a new agenda with the aim of ensuring a greater balance of venues, more variety, choice and accessibility for all

* partnership and delivery

Integrate all the relevant management functions. Encourage all interests to take responsibility. Extend the scope of town centre management and Business


Improvement Districts into the evening and late night. Progress along the four stages of the ‘partnership learning curve’.

C5 Regional Spatial Strategy (December 2004) The spatial planning vision is… ‘to sustain and improve the quality of life for all people who live in, work in or visit the region, by developing a more sustainable, prosperous and outward looking region whilst respecting its diversity and enhancing its asset’. To achieve the vision the plan contains a number of objectives (of relevance to High Street): * sustain and enhance the vitality of town centres * protect and enhance the built and historic environment and encourage good quality

design and use of sustainable construction methods for all new development. Bedford is identified as a key centre on which development and change will be focused. Thriving, vibrant and attractive town centres are fundamental to the sustainable development of the East of England and these will continue to be the focus for investment, environmental enhancement and regeneration. In terms of retail hierarchy Bedford is classified as a regional centre and the strategy proposes that new retail development will be located in existing centres and be consistent in scale and with the size and character of the centre and its role in the regional structure.

C6 Milton Keynes and South Midlands Sub Regional Strategy (March 2005) Proposals for development within the Bedford Growth Area include a major increase in new homes (19,000 by 2020), new jobs and supporting infrastructure. In order to strengthen the existing role and function of Bedford as a regional centre key priority is given to the revitalisation of Bedford town centre and the provision of new employment in the town: * revitalising the town centre and enhancing retail, cultural and leisure facilities * providing a significant increase in employment identifying and fostering a range of

growth sectors particularly high value knowledge based sectors. This includes creating a focus for offices in the town centre through the provision of a range of accommodation

* providing an increased range of centrally located overnight accommodation.

C7 Bedford and Marston Vale Growth Area : Economic Vision This document is an economic vision and strategy for the Bedford and Marston Vale Growth Area which will deliver the Sustainable Communities Plan for this part of the sub-region up to 2021. The vision is based on the renaissance of Bedford as ‘central for business’. The business economy will be strengthened in quality retailing, business services, culture and tourism and the leisure and entertainment sectors. The focus for urban renaissance and environmental improvement will be Bedford Town Centre which will re-establish its identity and role as a vibrant, attractive and convenient centre of distinction. The physical environment of the town centre is already being improved but will be transformed by signature environmental improvements to the public infrastructure and to the design and


quality of new buildings. Bedford’s reputation and brand will be enhanced as a centre for culture, the arts and entertainment with a vibrant evening economy. The strategy establishes six themes: * a sector based strategy for competitiveness and innovation * Bedford Renaissance * people and skills : economic and social inclusion * property and infrastructure investment for sustainable development * cultural and heritage development for tourism and the economy * green infrastructure and technology for economic development. The theme priorities of relevance include: * town centre regeneration * cultural and heritage quarter * a strategy for developing Bedford’s culture and heritage * culture and heritage tourism development.

The town centre regeneration is based upon the Town Centre Action Area Plan (see C13 below) and, in particular, the Culture and Heritage Quarter of Castle Lane which links to High Street and includes St Paul’s Square on its western side. There is a need to draw together the wide range of cultural and heritage initiatives into a concerted cultural development strategy. This will help develop the creative arts and media initiatives whilst there is a need to build on the range of heritage and tourism initiatives already being developed.

C8 Tourism Growth Strategy (May 2007) The vision for the strategy is that… ‘Luton and Bedfordshire will be recognised as places that have changed for the better. They will be known for their professionalism in hosting business visitors and in exploiting their location. Visitors will enjoy a variety of town and country, outstanding attractions and events and their increased spending will support quality local employment’. Tourism in Bedfordshire and Luton currently generates around £465m pa but there are issues: * lack of growth in visitor spend * drop in occupancy levels in serviced accommodation * over reliance on the day visitor market. There are 9.9 m day visitors and 1.26 m staying visitors and their expenditure supports 6600 (FTE) jobs and a further 2000 indirectly. This represents 4.7% of all jobs in Bedfordshire. A significant proportion of visitors (1 in 3) are the VFR market (visiting friends and relations). Average length of stay is 3.7 nights.


The area has undoubted strengths in visitor attractions, which support the day visitor market, and has benefited from business tourism. Potential exists to attract more people to stay overnight and spend as much as the national average. Tourism supports a significant number of jobs but tourism earnings remain static and the county relies too much on the day visitor market. The image of the area on the part of residents and visitors is negative, or indifferent, and perceptions need to change. But there are real opportunities: * to take advantage of the Olympic Games * investment in new products particularly Centre Parcs and NIRAH * cultural development including the National Centre for Carnival Arts in Luton * green infrastructure including the Gateway Visitor Centre at Dunstable Downs * new hotel and conference facilities * £12m reinvestment at Woburn and other sites. The market potential includes: * business tourism (particularly conferencing and meetings) * family short break * VFR * adult short break * opportunities arising from the Olympics. The plan relates regional objectives to those of the Growth Area. It then sets down a series of recommendations in relation to each potential market. Of particular relevance is: * developing coordinated ‘open days’ across the area aimed at residents * developing the VFR market for ethnic minority groups which represents 20% of the

population * using the events and cultural activities as a basis for adult short breaks * taking advantage of the Cultural Olympiad eg. Bedford River Festival could be a key

event within the Olympiad. It is proposed that a Strategic Tourism Advisory Group be established to deliver the strategy with a core staff.

C9 Living Over The Shop Initiative

The Living Over The Shop Initiative was established in 1989 with funding from the Joseph Rowntree Foundation with the objective of providing additional dwellings from redundant commercial space. At the time the longstanding problem of vacant upper floors was widely believed to be incapable of solution. The greatest obstacles were found to be, not the practical factors like access or layout, but the longstanding resistance of commercial property owners to granting residential leases or, indeed, having any involvement at all in residential property.


The project was established initially to work with national, rather than individual, retailers because: * they control the greater part of the market * economies of scale are achieved by working with companies who own property in

every town * because of the need for a demonstration scheme that is proven to work to encourage

local owners to take part. This meant dealing with national retailers at head office level. The legal arrangement is based on establishing a commercial lease between the freeholder/retailer and a Housing Association, university, NHS Trust or another not-for-profit body as an intermediary between the owner and the proposed residential tenant. This is because most commercial owners and occupiers do not wish to be involved directly with the provision, or management, of housing. Such a leasing arrangement is fundamental because it reflects the traditional ownership structure of retail property. It is usual that the majority of prime site properties occupied by national retailers are owned by national investment companies such as pension funds, insurance companies and property companies. Freeholds change hands frequently on the London auction market often without there being any visible indication on the property itself. When investment companies purchase freeholds such as these they are not primarily interested in the property : what they are buying is an income stream. Their major concern is the financial strength of the leaseholder, the length of the lease, rent currently payable and prospects for rental growth. Most retailers, whether national multiples or individual retailers, are leaseholders and in most cases the entire property is leased not just the ground floor. However, the retailer does not always have a use for the upper floors nor do they have any incentive to invest in them as their responsibility is limited to the term of the lease which includes maintenance, repairs, rates and insurance. The use of upper floors throughout Britain has fallen into disuse throughout the 20th century with a rapid decline since the 1950’s. Often space has been vacant for many years. The cost of refurbishment is high relative to the perceived value. Further, valuers have assumed the upper floors above retail have little or no value (as much as 90% of the value is represented by the ground floor) so there is a disincentive to maintain upper floors. Where no separate access to upper floors exists from the street, or where it is difficult to create from the side or rear, it is often perceived to be not worthwhile to lose part of the shop frontage to create one. The concept of living above the shop is good, and many authorities have expressed an interest, but it has had limited success because of the difficulties associated with assembling an implementable scheme. That is to say identifying owners, bringing the parties together, negotiating terms and working locally with national retailers when it needs to be done nationally. To be successful there are two distinct stages in the development of a scheme: * assembly requires contacts at an appropriate level in the companies controlling the

properties and the ability to talk to them on their terms * development which is designing and implementing a scheme dealing with issues

such as Listed Building Consent, Building Regulations, Fire Officer as well as practical issues such as access, servicing, parking etc.

It has been suggested that other uses may be easier to arrange and can generate higher rents. The two obvious ones are storage (often used by the retailer) or offices. However,


there has been very little demand for either although this may change in the current economic climate. The scheme has continued in various towns across the country over the last 20 years. Evidence suggests that where a national company becomes involved in successful schemes then they are prepared to develop it in other towns using the same formula. It is important to recognise the constraints affecting re-use of properties including: * practical eg. access, natural light, fire safety, ease of conversion, storage and

collection of refuse, parking etc * noise from adjacent uses, street life, refuse collection, extraction fans etc * financial eg. cost of conversion, rent levels, grant availability, remaining length of

lease, overall financial viability * locational eg. location, adjacent uses, proximity to facilities including transport * policy : national and local * attitudinal eg. owners attitude, occupiers attitude, lack of incentive to release surplus

space * housing ie. housing level and nature of demand.

C10 Environmental Legislation

The key areas in relation to environmental issues in the town centre relate to: * preventing street fouling

The culture of the 24 hour town centre has brought with it longer drinking hours and the issue of street fouling. The main problems are urination and vomiting principally caused by excessive alcohol consumption. This not only costs time and money to clear and clean but also present health risks.

Street urination and vomiting causes an unpleasant odour and cleaning stains and erosion often demands extra effort and costs. The after-effects can be a major problem for local residents and businesses who can be left with the task of cleaning up their own properties. Street cleansing starts at 5.00am in Bedford town centre but even with sophisticated equipment businesses report their entrances can remain uncleared and an ingrained residual scum is left on the pavement. This is exacerbated by problems associated with the removal of chewing gum. The provision of properly lit, safe public toilets which are visible and accessible is important coupled with staffing and maintenance to a high standard of cleanliness. This should be complemented by adequate provision in the pubs, clubs and fast food outlets. There is no specific legislation relating directly to street fouling but it is possible to prosecute an offender using a range of legislative powers

* tackling noise

Local authorities have a duty to investigate complaints of noise which can emanate from a variety of sources but, in particular, pubs and clubs in the town centre. This is particularly prevalent where they are in close proximity to residential accommodation. The desire to encourage the use of upper floors of retail premises for residential and


the development of new residential accommodation in town centres can be in direct conflict with the presence of pubs and clubs having music and entertainment. Local authority officers have a duty under S.79 Environmental Protection Act to investigate complaints of noise from premises and to negotiate restrictions or, if appropriate, to serve an ‘abatement noise order’. The assessment of ‘noise nuisance’ is based on the concept of ‘reasonableness’ taking into account the character of the locality, the frequency of the occurrence and the number of properties affected. There is a potential conflict between the noise emanating from the pubs and clubs in the High Street area. This will almost inevitably have a detrimental effect on the economic performance of businesses and the wider night-time economy. This brings into question the desirability of a mix of uses in parts of the town centre where there are established leisure uses unless high levels of specification for noise insulation in residential accommodation can be achieved. This is not always possible in relation to window glazing in historic buildings and, in any event, may be very costly to a point of making a scheme unviable. We are seeking to reintroduce residential accommodation into new buildings in the town centre and at the same time encourage the use of upper floors over retail. This may not necessarily be compatible with leisure and activities associated with pubs and clubs, which are important to the economic vitality of the town centre, and in these areas commercial uses such as offices may be better.

* air quality

The Borough Council has a legal responsibility to review and assess air quality as an integral part of delivering the air quality objectives set out in the Air Quality Strategy for the British Isles (2000) as required by the Environment Act 1995. This is reflected in the Council’s corporate priority to achieve ‘A Clean and Green Borough’. It has been found that a high proportion of elderly people, vulnerable households, ethnic minority households, high fuel poverty and rented property are in areas in the town experiencing poor air quality.

High Street is one of several Air Quality Management Areas in the town reflecting its narrow ‘canyon’ like character which is exacerbated by high levels of heavy traffic generating noise and pollution (see Plan C10.1 overleaf). This requires all planning applications in the area to be referred to the Environmental Health Service for comment/recommendation to the Local Planning Authority. The result of this, in some instances, has required the inclusion of heavy duty double glazing and elaborate air conditioning associated with proposed residential development. Again, the cost of this can effect the overall viability of schemes to a point that projects designed to use vacant upper floors have to be aborted. The detrafficking of High Street will largely remove the pollution issue but this may take some years. In the meantime if we want to see High Street regenerated the Borough Council will need to consider a grant scheme to not only renovate and reuse upper floors but to also support the additional costs associated with noise and pollution abatement.

C11 Corporate Plan 2007 – 2009

This is the first update of the Council’s Corporate Plan which was originally first published in 2004. It identifies the key challenges ahead including: * the need to plan and adapt to deliver 19,000 new homes and the necessary

infrastructure in a sustainable and balanced way


PLAN C10.1 : AIR QUALITY MANAGEMENT AREA


* the need to develop a broad skills based economy which meets the needs of our citizens

* regenerating the town centre to improve its standing and what it offers our citizens * continuing to provide value for money whilst maintaining high quality customer

focused services * sustaining our financial position.

The Corporate Plan forms the cornerstone of the Council’s efforts to improve quality of life and well being across our diverse communities. It has taken into account national, regional and local priorities and has reflected the priorities of the numerous partnerships it as entered into including the Local Area Agreement (March 2006). The Corporate Plan priorities are fully aligned with those of the Community Plan: Community Plan Priorities Corporate Plan Priorities

Promoting community safety Protecting and improving the environment

Providing housing and building communities Safe and respectful

Improving the environment Prosperous and vibrant

Improving health Healthy, enjoyable and active

Strengthening the economy Deliver homes for all

Developing learning opportunities and skills A proactive and listening Council

Creating better transport

Promoting leisure

Including everyone Within each priority area the Council has set a series of challenging but achievable corporate objectives which will be regularly monitored. The key priorities of relevance to High Street are: * building citizenship and developing PRIDE in BEDFORD through active community

engagement : our proposals for High Street are targeted at achieving this * reduce the problems associated with environmental pollution and statutory nuisance

from commercial and domestic premises * improve the visual appearance of the ‘gateways’ to the Borough, town centre and

visitor locations (which should include High Street and St Paul’s Square)

* increase public confidence in the Borough Council car parks

* undertake ‘Street Pride’ events

* improve public confidence in agencies and reduce the fear of crime

* create a highly attractive, safe and successful town centre providing a distinctive and excellent range of activities and facilities

* accentuate the cultural and historical features of the town centre including introducing

interpretation in St Paul’s Square and High Street


* investigate the feasibility of street scene improvements to key town centre locations as part of a ‘Reclaiming the Streets’ initiative.

C12 Community Plan 2004 – 2010 The production of the Community Plan for the Borough of Bedford 2004 – 2010 has been co-ordinated by the Bedford Partnership Board, the Local Strategy Partnership for the Borough. The Board is a multi-agency group which brings together representatives from the statutory, voluntary and business sectors to produce a vision for the Borough and its diverse communities. The overarching aim is ‘working together to improve health and well being’ to ensure an improved quality of life for everyone who lives, works or visits the Borough. The plan incorporates: * a long term vision for the area * an Action Plan identifying short term priorities and activities * a shared commitment to implement the Action Plan and proposals for doing so * arrangements for monitoring, reviewing and reporting progress to local communities. The plan needs to meet four criteria: * allow local communities to articulate their aspirations, needs and priorities * co-ordinate the actions of the Council and of the public, private, voluntary and

community organisations that operate locally * focus and shape the work of these organisations so that they effectively meet

community needs and aspirations * contribute to the achievement of sustainable development. The Bedford Partnership Board has embraced the principles of sustainable development as a key theme. It has defined sustainable development as ‘development that meets the needs of the present without compromising the ability of future generations to meet their own needs’. It seeks to achieve a better quality of life for everyone now, and in the future, while protecting and, where possible, enhancing the environment. This requires an integrated approach to deliver social progress and economic growth whilst maintaining the quality of our natural environment. The Partnership Board have promoted the concept of a sustainable community by: * protecting and enhancing the environment * meeting social needs * promoting economic success. The Community Plan has established nine key priorities (set out in C11 above) which have been incorporated by all of the Local Strategic Partnerships in Bedfordshire in order to demonstrate a countywide commitment to working together to improve the quality of life of citizens.


A key priority is strengthening the economy which is linked to sub-strategies concerning regeneration, the town centre and tourism development. In particular, it emphasises the importance of: * the much praised town centre events programme * the street market development including the St Paul’s Square proposals * the town centre public space improvement programme. The vision is to ‘improve the economic well being of Bedford Borough’s existing and future residents by achieving higher levels of growth in the local economy than would otherwise occur : making a difference to prosperity.’ It particularly mentions: * initiatives in the town centre, and related to tourism, help the retail and hospitality

sectors make a positive contribution to business development * town centre events create distinctiveness and character that will encourage more

visitors to seek information. The aim of the Partnership is also to improve the quality of life for local people through the provision and promotion of excellent and accessible formal and informal leisure opportunities that offer value for money. The objective is to: * provide sustainable facilities * remove barriers to access and participation * provide life long learning opportunities for all skill levels that can lead to employment. The Community Plan particularly highlights that the development of Castle Lane, with improvements at Castle Mound, Bedford Museum, Cecil Higgins Art Gallery, Bedford Creative Arts Gallery and the Bunyan Museum, provides a focus for arts and heritage attractions in what will become Bedford’s Cultural Quarter. The plan emphasises that Bedford has a rich multicultural heritage. The Partnership will continue to work with the diverse communities to preserve our heritage, values and traditions and identify and celebrate vibrant cultural initiatives which reflect the diversity of Bedford’s population. The Action Plan makes specific reference to ‘breaking down barriers to access and participation’. Finally, in relation to promoting community safety the plan proposes establishing a night-time economy partnership.

C13 Adopted Town Centre Area Action Plan

This document explains how the Council thinks the town centre should change in the period between 2006 – 2021. This Plan was adopted in October 2008 and sets out the Council’s vision for the town centre and turns this into a series of linked objectives and policies. It then looks at different parts of the centre translating the vision into site specific proposals. It proposes as the vision for 2021:


By 2021, Bedford town centre will feel very different to how it does today. It will be a destination of choice for customers, visitors and also those people seeking a good night out. It will have reclaimed its role as the county town within a fast growing sub-region supported by a dynamic local economy. It will have a personality of its own, celebrating its natural heritage (including its historic medieval street pattern), culture and riverside location. Importantly it will have emerged from the shadow cast by Milton Keynes and occupy a complementary position providing a distinctive offer. This will be founded upon energetic and flourishing businesses, providing value, good quality and a wide range of shopping, eating and leisure experiences. The town centre will be bustling, prosperous and safe. More people will live in the centre. More people will work in the centre. More people will visit the centre. The evening economy will be attractive to all. Residents will feel proud of their town centre. Redevelopment will have increased the quantity and range of retail space, together with additional dwellings and leisure facilities. Bedford’s shopping will have regained its former glory with fewer cars, better air quality and the street scene transformed by public art and al fresco eating. A campus of office buildings centred on the new station will be occupied by internationally branded companies and occupiers that have relocated from other cities justifying Bedford's growing reputation as a regional centre. The riverside will be embraced into the town centre with signature buildings, their activities spilling out on to a quayside crowded with rowing boats and canal craft en-route from the Grand Union Canal. The Castle Lane cultural quarter will be buzzing with visitors examining Plantagenet remains and the latest touring exhibitions or sipping cafe latte and watching the swans. The Western Bypass and an elegant new bridge at Batts Ford will have improved traffic circulation, access from Bedford’s catchment will have improved and the gold standard multi-storey car parks will be both safe and busy. Park and ride bus services will have linked with the new railway and bus stations ensuring that passengers have safe and convenient journeys and easy access to all the facilities. Public transport and cycling facilities will have significantly improved and both will have played an important role in reducing congestion. Rail services to London and the Midlands will have become quicker and more frequent, even offering direct links to Paris and Brussels. Of particular relevance to High Street are the following quotes: * a destination of choice for customers, visitors and also people seeking a good night

out * celebrating its historic medieval street pattern * the town centre will be bustling, prosperous and safe : more people will live, work and

visit the town centre * the evening economy will be attractive to all * Bedford’s shopping will have regained its former glory with fewer cars, better air

quality and the streetscene transformed by public art and al fresco dining * gold standard multi-storey car parks will be both busy and safe. These are the things the vision for High Street needs to aspire to. The report sets out a series of principles to achieve the regeneration of the town centre including: * repopulating the town centre with housing (including affordable housing) * expanding the town’s tourism potential including the provision of additional hotel

accommodation


* providing higher quality and safe parking provision targeted at shoppers and visitors rather than long term parkers

* enhancing the public realm by street improvements, public art and the reduction of

traffic in High Street, St Paul’s Square and elsewhere. The Action Plan identifies a number of ‘key areas of change’ including High Street. It makes specific reference to: * the need to lift the retail offer ‘across the board’ and to encourage property owners to

modernise their holdings * Town Centre West may have a negative impact on High Street shops and specific

action is required to support this area and encourage new businesses perhaps targeted at youth culture

* façade treatment (preserving architectural features) and the reintroduction of colourful

awnings (and potentially public art) can create a new and proactive retail atmosphere

* the potential to reduce traffic levels, or detraffic altogether, will substantially improve environmental conditions, provide space for users to spill out into the street and opportunities to enhance facilities for public transport, taxis, private hire vehicles. There is also potential to create a north : south cycle link.

The Action Plan states the Council will ‘prepare a strategy with key stakeholders’. It goes on to identify as highway network issues the detrafficing of St Paul’s Square North and High Street in the long term and highlights: * the creation of a series of ‘urban quarters’ * the retail quarter represents the core of the town centre where the main shops are

located : this area is to be extended and strengthened to accommodate major retail development which in time will encourage reinvestment throughout the core including High Street which could incorporate new housing opportunities

* helping High Street to reinvent itself maximising opportunities for improvement to the

public realm following detrafficking * emphasis will be placed on:

(a) the provision of high quality and distinctive shop fronts and signage (b) the refurbishment of existing buildings which contribute to the character and

heritage of Bedford

* the reoccupation of upper floors for commercial or residential use

* the provision of improvements to the public realm.

* the Council will prepare a strategy with the Bedford BID Company and other partners for the renaissance of High Street

* key priorities for further pedestrian friendly areas including St Paul's Square North and

High Street (post 2011). It makes the point that ‘it seems unlikely that full pedestrianisation of these areas can be achieved but measures to reduce the impact of traffic on the environment (ie. detrafficing) will be pursued : both areas will be suitable for use by cyclists therefore providing a north : south route through the town centre for pedestrians and cyclists’


* the need to improve design quality and overall image of shop fronts and

advertisements having regard to the Supplementary Planning Document ‘Shopfronts and Advertisements in Conservation Areas’

* continuing support of Bedford BID and BEDSAFE.

Note: High Street is identified as being within the primary shopping area but is seen as

secondary shopping frontage with the exception of a small section immediately north of Silver Street on the west side.

C14 Urban Design Framework

The Adopted Town Centre Area Action Plan sets out the Council’s vision of how key urban design principles, which are described in By Design, can be reflected in the town centre. These include: * character : development must respect the local distinctiveness of its context * continuity and enclosure : the relationship between buildings and public spaces is

crucial if a successful place is to be created * quality in the public realm : the town centre already comprises a number of public

spaces. Most are pedestrian zones or have limited vehicular access. As well as facilitating pedestrian movement they are the setting for events, markets etc and contribute greatly to Bedford’s ‘sense of place’.

The revitalisation of High Street should create a series of high quality public spaces which are attractive, safe, clean and pedestrian friendly. They should provide a sequence of streets and squares enhancing legibility and movement and contain public art

* ease of movement reflecting connections, permeability and the integration of land

use and transport : there should be improved connections between the town centre and riverside corridor and between sites within the town centre (and particularly Castle Lane and High Street and the Embankment)

* legibility : this relates to how well development is structured including physical

features such as paths (channels of movement), nodes (such as St Paul’s Square and High Street/Dame Alice Street), landmarks, edges and districts

* adaptability : buildings and spaces should support a range of different activities and

have the flexibility to change over time

* diversity : there is scope to redevelop key sites for a mixture of uses the scope of which will vary within each quarter.

C15 Retail Position

GVA Grimley was commissioned in June 2005 to undertake a retail study to determine the need and capacity for further retail development in the Borough. This provided an important input into the Adopted Town Centre Area Action Plan. Previous retail studies had all indicated that the town centre was not performing as well as its surrounding competitors such as Milton Keynes and Cambridge. Indicators such as rental, yields and retail demand indicated that the town was underperforming and vulnerable. A key recommendation was that the Council should protect the town centre from further out of centre development.


The study shows that Milton Keynes is the strongest competitor assessed with the largest shopping population rank position and catchment area. Peterborough is ranked second highest followed by Cambridge, Northampton and Luton. Bedford was ranked 97th in the UK (2001) by catchment and securing new town centre development (such as Town Centre West) is now critical to safeguarding its future. Indeed, Bedford fell to 104th in the 2002 Index. The town centre has 85,000 sqm of ground floor floorspace for retail trade and services comprising some 407 units. A comparison between the breakdown in the retail composition and the national average (based on the number of units) shows that Bedford has above average in convenience stores, comparison goods and miscellaneous. Bedford retains a reasonable range of multiple retailers. However, this is focused on the mid market and the town has failed to attract any of the significant new quality retailers which are increasingly seen as essential components of the most successful comparison shopping centres. The town centre currently has a limited range and quality of bars/restaurants and leisure facilities. While the secondary retail areas contain a range of pubs, bars and café/restaurants there is no obvious focus for quality eating/drinking either serving shoppers or the evening economy. Further, retail rents in Bedford are lower than each of the competing centres. In May 2000 there were 38 vacant units in the town centre (amounting to 9.7% of the total number of units) compared to the national average of 11.61% (significantly, when comparing floorspace, only 5.26% of the total retail floorspace was vacant compared to the national average of 9.18%) and this appears to have remained fairly static. The northern end of High Street includes small units poorly suited to modern multiple retailers requirements. Previous retail studies have consistently identified the scope for a significant amount of retail floorspace and this study suggested it should be in the region of 50,000 sqm gross. In parallel with this there is a need for improved eating and drinking, commercial leisure and cultural facilities within the town centre. It is expected that Town Centre West will include a range of restaurants and bars but there is also significant potential for High Street, Riverside Square and Castle Lane to all contribute to meeting forecasted leisure/cultural and eating/drinking needs. Critical to the longer term success of High Street is to remove unnecessary traffic and create a more attractive environment which would support the development of a wide range of quality eating and drinking facilities and more specialist shops. These will benefit from the additional footfall generated by the new development within the main opportunity areas. The area bounded by Allhallows, Dame Alice Street, High Street and Silver Street has been identified as the key focus for further stages of the town centre regeneration in the form of further retail led mixed use redevelopment subject to other planning policy objectives for the area. This would reinforce the creation of a strong retail circuit linking Town Centre West and High Street reinforcing the east/west axis currently provided by Crown Arcade/The Arcade. The report considers High Street should continue to be identified as a secondary shopping frontage but a more flexible approach should be taken to the change of use from Class A1 retail to other Class A uses subject to appropriate criteria based policies.

C16 Town Centre Public Consultation

The Council’s Consultation Strategy (2006-2010) states that ‘ a key element of the Council’s commitment to delivering high quality cost effective and responsive public services is to engage in meaningful dialogue with our community. Not only does this have a positive effect on service improvement but it also allows citizens to feel better informed and more involved in the Council’s decision making processes’. In relation to the town centre the process of public consultation has been the subject of regular public exhibitions over the past 7 years to engage the community in the emerging proposals for the regeneration of the town centre. This has included:


October 2001 The Town Centre Exhibition formed a key part of an exercise to consult the public about the future of the Town Centre and, in particular, about how it should change and adapt to ensure its continued attractiveness, convenience and commercial vitality. The ideas expressed were aspirations, not specific proposals, but the views of the general public were genuinely seen to be important. Five key objectives were presented: * cultural renaissance

* pedestrianising High Street and St Paul’s Square

* making increased use of the river

* developing key sites within the town centre * creating more visitor attractions.

Answers to the question ‘do you think it would be a good idea to close High Street and St Paul’s Square to traffic?’ were:

Interview technique Self

Completion Survey

On Street Survey

Online Survey

Bedford News

Survey Yes to both 61% 55% 43% 54% No to both 16% 28% 25% 22% Yes, High Street only 7% 4% 15% 12% Yes, St. Paul’s Square only 8% 4% 7% 6% Don't know 8% 10% 11% 6% Base 690 289 75 615

The answers to the question ‘do you think that we should have more town centre features that reflect Bedford’s history?’ were:

Self Completion

Survey On Street

Survey Online Survey

Totals

Yes 73% (501) 72% (208) 72% (55) 764 No 14% (95) 19% (56) 13% (10) 161 Don't Know 13% (89) 7% (21) 15% (11) 121 Other 0% (0) 1% (3) 0% (0) 3 Base 685 288 76 1,049

73% answered Yes.

May 2002 Approaching 6,000 visitors attended an exhibition over a 7 day period considering key issues like the sensitive development of identified areas (such as the Bus Station and Castle Lane), the river environment, pedestrianisation schemes and car parking. There was continued interest in developing and recognising the history of Bedford and genuine interest in the outcome of the traffic study, commissioned jointly with Bedfordshire County Council, in so far


as this will have a major impact on key projects (such as the potential pedestrianisation of the north side of St. Paul’s Square and High Street). 36 priorities for action/projects were presented under a series of headings: * key development sites * pedestrianisation schemes * retail and leisure initiatives * good quality car parking * heritage initiatives * riverside initiatives * High Street initiatives. In addition to the projects displayed at the Town Centre Exhibition other projects emerged: * positioning Bedford * transport and traffic movement * Willington Rowing Lake * facilities for young people * attracting visitors * culture and heritage * environment.

The key findings in relation to High Street and St Paul’s Square were:

Consultation techniques

Stro

ngly

Ag

ree

Agr

ee

Dis

agre

e

Stro

ngly

D

isag

ree

No

Res

pons

e

Pedestrianisation and Environmental Improvement Schemes

% % % % %

St Paul's Square (This will depend on the outcome of a traffic study which has already been commissioned).

55 34 6 3 2

Heritage Initiatives

Heritage Interpretation Scheme to signpost the people, places and buildings that helped shape the history of Bedford.

48 46 4 1 1


Consultation techniques

Stro

ngly

Ag

ree

Agr

ee

Dis

agre

e

Stro

ngly

D

isag

ree

No

Res

pons

e

Introducing a Design Excellence Initiative to recognise and enhance Bedford's distinctive build environment and to conserve its valuable heritage.

38 46 9 2 5

High Street Initiatives

Creating better space for pedestrians with a narrowed and traffic calmed carriageway.

53 33 8 3 3

Encouraging the retention and restoration of the historic and individual character of buildings and shop frontages, perhaps by some form of incentive scheme.

58 35 3 0 4

Street Scene improvements by the introduction of banners, canopies, street furniture, visual arts and dining "al fresco" style.

34 40 17 4 5

Investment in traffic and environmental improvements to the St Peters Street/High Street junction.

49 39 5 2 5

There was strong support for the pedestrianisation of St Paul’s Square and High Street and for focusing on heritage and the arts (particularly interpretation).

May 2004 The Town Centre Development Framework Exhibition, held between Wednesday 5 May 2004 and Saturday 8 May 2004, attracted approaching 4,500 visitors and provided the opportunity to consult the public on possible scheme options and initial ideas for the area as well as providing progress updates on identified projects from previous exhibitions. GVA Grimley presented their draft Development Framework for Bedford Town Centre which was jointly commissioned by Borough Council, English Partnerships and East of England Development Agency (EEDA). The framework aimed to provide a comprehensive evaluation of town centre investment and regeneration opportunities. In preparing this framework GVA Grimley needed to carry out consultations so it was a chance to gather public views.

Again, the results reinforced the importance local people place on the history and heritage to the town:


Strongly Agree Agree Disagree Strongly

Disagree Town Centre Redevelopment Framework % % % % Do you agree with the Strategic Development Objectives? To celebrate Bedford’s heritage, history and its citizens 60.8% 36.8% 2.3% 0.1%

Land Use Strategy Enhance town’s heritage 55.5% 41.2% 3% 0.2% Environmental improvements 60.1% 37.2% 2.2% 0.3% Urban Design Strategy Use of appropriate and high quality materials for the public realm, streets, buildings, routes and spaces

57.5% 40.3% 2% 0.2%

Maintain and enhance the scale and character of Bedford 58.7% 38% 3% 0.3%

The views of local people in relation to the importance of heritage and culture have subsequently been reflected in the Adopted Town Centre Area Action Plan, the Economic Development Strategy and Tourism Growth Strategy. The vision for High Street is a direct response to this. April 2008 This exhibition provided a mechanism to: * update the public on progress since 2004 including completed projects and projects

currently on-going or due to start * consult the public and stakeholders on specific development opportunities and

emerging proposals. Some 4,500 attended the 4 day exhibition and feedback was generated through: * a questionnaire * the Council’s consultation web page and Town Centre Development web page on

www.investinbeford.com The public realm improvements to High Street (including the restoration of buildings/shop frontages, acceptable public art, colourful awnings and potential detrafficking) to improve future vitality were very well supported with 90% of respondents strongly agreeing or agreeing with the proposals. Considerable support was expressed for proposals to detraffic High Street and to give the street a more traditional feel to complement the proposed new development on the west side of the town centre. In fact High Street was ranked first out of 36 potential projects. On the basis of these findings this Vision for High Street study was commissioned to undertake research and contribute to the preparation of a brief for High Street on the basis of embracing its heritage. Other recommendations included: * creating more attractive pedestrian routes including Castle Lane, Lurke Street and

James Street


* the need for better evening and weekend parking for town centre venues (concern was expressed about the limited availability of surface car parking, the limited evening opening of multi-storey car parks and the fact that they are perceived to be expensive and unsuitable for women, people with disabilities and the elderly).

High Street is consistently recognised as a key historic feature which requires revitalisation as part of the renaissance of the town centre.

C17 Supplementary Planning Document

The Borough Council’s Executive adopted the ‘Shopfronts and Advertisements in Conservation Areas Design Guide’ in 2005 as a supplementary planning document following a period of consultation. The purpose of the guide is to assist owners of shops and other commercial premises within Conservation Areas and the town centre in the design of shopfronts and advertisements. It is, therefore, directly applicable to High Street. Shopfronts and advertisements have a vital role to play in contributing to the character and interest of historic areas and particularly the town centre. A high standard of shopfronts and advertisements creates an enjoyable environment for visitors and shoppers which is good for the vitality and commercial success of the Borough. The need for the guide stems largely from changing methods of retailing over periods of time. There is pressure for modern shopfronts and advertisements to provide aggressive visual competition. Too often this results in poorly proportioned shopfronts, overly large fascias and garish signs. Such installations fail to respect the environment they are placed in and the building on which they are located. All too familiar examples of this are the corporate styles which are designed regardless of the characteristics of the individual building or locality. This type of design is harmful to the character of conservation areas, can impact upon visitors enjoyment of such areas and ultimately its vitality. Bedford is a town characterised by its historic buildings and environment. This is reflected in the designation of much of the town as a Conservation Area. The guide does not seek to impose wholly traditional shopfronts or advertisements but recognises that the principles embodied in traditional design will remain relevant in designs of a more contemporary nature. The guide, therefore, seeks to ensure a high standard of design for new shopfronts and advertisements. Buildings within High Street, where there are proposals to significantly alter or replace shopfronts including blinds, canopies, shutters etc coupled with advertisements, will normally require planning approval and, where it is a Listed Building, Listed Building Consent. The Architectural Maintenance Grant Scheme offered grants to improve the visual appearance, and condition, of selected buildings in the town centre including repair and maintenance of traditional features, the replacement of unsympathetic features and facelift schemes. The level of grant varied from 40 – 75% of eligible works up to a maximum of £5,000. Specific reference is made in the guide to High Street where there has been a growth of shopfront designs that pay little or no regard to the architecture of the buildings coupled with the use of poor quality materials. Special regard will be given (in future) to ensuring that the traditional character of High Street is preserved through a high standard of new shopfronts. There is recognition of the need for companies to ‘stamp their brand’ on a property but this must be reconciled with the unique quality of the building and street. With cooperation and flexibility housestyles can often be adapted to meet the principles of good shopfront design. The most important principle is that the design of the shopfront should respect the ‘character’ of the building and the environment within which it sits. Character is made up of a number of factors including age, appearance, materials, colours, fenestration, proportion and rhythm. General principles to take into account include:


* building character and architecture * building proportion * materials * surrounding buildings and area. Consideration should also be given to the role of canopies and blinds and the issue of security shutters. Advice is also provided in relation to advertisements and hanging signs considering form, materials, lettering and illumination. Potential applicants are strongly advised to discuss their proposals with the Planning Department before an application is submitted.

C18 Bedford BID (Business Improvement Development) Company Bedford BID (Business Improvement Development) Company was launched in 2005 to

deliver additional services in Bedford town centre which benefit trading activities including safety, street cleaning, car parking, marketing and promotion and attracting new businesses and investment. Bedford was one of 22 pilot towns and cities which pioneered the concept which was first launched Canada.

Bedford BID is a private independent company that manages the delivery of the additional services and projects. It is led by a Board elected by BID levy payers. The BID company has evolved out of the Bedford Town Centre Company which had been operating for three years:

* improving partnerships * improving promotion, marketing and communications

* improving appearances

* improving safety and security (including the Bed Safe initiative)

* improving investment

* improving access.

Funds for Bedford BID are raised from members according to the rateable value of their business. The key themes being tackled in the first five years of the organisation are:

* be safe : be smiling A safe more welcoming town centre * easy come : easy go Free/discounted car parking * surprise yourself A sustained upbeat marketing and promotion campaign * small is beautiful Enhancement of private sector properties and the commercial offer.


The goal of Bedford BID is ‘to see Bedford a more prosperous, vigorous and appealing town that customers are prepared to travel to regularly for their shopping, leisure and social activities.’ There are 895 commercial/public organisations in the Bedford BID area which has:

* parking for over 3000 vehicles per day * 45000 visitors per week (the highest recorded footfall being 110,000)

* 9000 work in the area.

A survey suggested:

* 60% come into the BID area by car * 50% for shopping

* 61% come once a week

* 69% stay 1 – 2 hours

* 65% female : general age spread.

C19 Conclusion

This appendix provides essential strategic context within which the proposals for High Street are formulated.


Appendix D

Gazetteer (CD)


Appendix E

Business Questionnaire (circulated/collated by Bedford BID Company)


VISION FOR HIGH STREET In association with Bedford BID the Borough Council has commissioned Parkin Heritage and Tourism to undertake background research and consultations leading to the preparation of a vision for the renaissance of High Street Bedford. We are writing to all businesses along High Street seeking your views and opinions and would be grateful if you can spend a few minutes answering the following questions. Your views are important and will help us to fashion a vision which reflects the hopes and aspirations of the businesses which are the essence of the street. We will collect the questionnaire on 30 June 2008. Many thanks. Mo Aswat Bedford BID 1. Name, address and contact details: ...............................................................................................................................................… .............................................................................................................................................…. Contact ………………………………………………………………………………………………..… Telephone………………………………………………Email………………………………………… 2. Describe the nature of the business: …………………………………………………………………………………………………………… …………………………………………………………………………………………………………… 3. How long has the business been on High Street? …………………………………………………………………………………………………………… 4. Why did you choose High Street in the first place? …………………………………………………………………………………………………………… …………………………………………………………………………………………………………… …………………………………………………………………………………………………………… 5. Is that reason still valid today? .................................................................................................................................................

……………………………………………………………………………………………………………. 6. Would you prefer to be elsewhere? Yes No If Yes, where?…………………………………………………………………………………………… 7. Is the business freehold or leasehold? Freehold Leasehold


8. If leasehold how many years left do you have? …………………………………………………………………………………………………………… 9. How are the upper floors used? …………………………………………………………………………………………………………… …………………………………………………………………………………………………………… 10. What are the issues which affect the use of the upper floors? .................................................................................................................................................... …………………………………………………………………………………………………………… ……………………………………………………………………………………………………..……. 11. Who is responsible for the upkeep of the built fabric? Your Company The Landlord 12. Describe the current structural condition of the building …………………………………………………………………………………………………………… …………………………………………………………………………………………………………… 13. Do you have the benefit of….. Lift Rear Servicing Parking ……. If so, how many spaces? 14. Are you aware of any historic significance of the building? …………………………………………………………………………………………………………… …………………………………………………………………………………………………………… 15. What are the problems associated with investing in repairs and renewals of the building

structure? eg. painting, replacing windows, gutter maintenance ……………………………………………………………………………………………………………. ……………………………………………………………………………………………………………. ……………………………………………………………………………………………………………. 16. Is the High Street a good location for your business? Yes No If Yes, why?…………………………………………………………………………………………….. …………………………………………………………………………………………………………….


If No, why not? ………………………………………………………………………………………... ……………………………………………………………………………………………………………. 17. What are the issues associated with operating on High Street? ……………………………………………………………………………………………………………. ……………………………………………………………………………………………………………. ……………………………………………………………………………………………………………. 18. What are your hopes and aspirations for the future? ……………………………………………………………………………………………………………. ……………………………………………………………………………………………………………. 19. What are the three most important things which would transform the street and your

business?

1. …………………………………………………………………………………………………..

2. ………………………………………………………………………………………………….. 3. …………………………………………………………………………………………………..

20. What businesses or activities would you like to see on the High Street? ...................................................…............................................................................................... ……………………………………………………………………………………………………………. 21. Is there anything else you want to tell us? ...................................................................................................................................................... ………………….…………………………………………………………………………………………. …………………………….………………………………………………………………………………. Many thanks for your time. We really appreciate your response. Ian Parkin Parkin Heritage and Tourism