1 EXECUTIVE SUMMARY
1.1 The Scottish Government Directorate for the Built Environment has taken forward this research as part of its role to oversee the planning system in Scotland and ensure that new development contributes to high quality places. The aim is not to remake the case for more mixed use development. There is already a general acceptance that mixing uses both at the scales of the neighbourhood and individual building can be valuable. They can help to produce more vibrant, adaptable and pleasant environments and to achieve sustainable places that minimise travel and support local demand for goods /services in a walkable catchment. Nevertheless, there is a general perception that the vast majority of local plan allocations and planning applications are for single use. Hence, there is a need to explore whether this perception is correct; identify why and where mixed use development has and has not occurred and to highlight barriers and the enabling factors.
Aims & Objectives
1.2 The principal objectives of the research were to:
- Identify factors that act as barriers to the delivery of mixed use development and which of these are the most significant;
- Analyse how barriers differ depending on location, the mix of uses and the inclusion of different housing tenures;
- Explore how the identified barriers can be addressed and what those interventions should be;
- Review existing work regarding barriers to the implementation of mixed use development;
- Explore whether the majority of development proposals and local plan allocations over the past decade have been for single use.
Research Methodology
1.3 The research methodology included a literature review, a series of stakeholder workshops to identify barriers and subsequently to review recommendations, an on-line survey of planning authorities and four case studies.
Research Findings
1.4 The barriers that have been identified overlap and are interrelated and this 'cross cutting' issue has implications for broadening the debate, knowledge and understanding of how to deliver more mixed use development.
Definition and local plan commitment
1.5 'Mixed use' is generally loosely defined but can encompass single developments with two or more revenue producing uses ('vertical' mixed use) and mixed use neighbourhoods with significant physical and functional integration including real physical connections between uses within a five minute walk ('horizontal' mixed use).
1.6 It would not be appropriate however, to try to impose a standard national definition of mixed use but rather it is important to encourage local planning authorities, through the new development plans to adopt a clear and specific definition appropriate to the particular local context.
1.7 The strength of commitment to promoting and delivering mixed use development in local plans has been variable. Local planning authorities tend to "encourage" mixed use in local plans rather than "require" it and therefore could be in a weaker position in terms of negotiating for mixed use when planning applications are submitted. A local planning authority that requires mixed use may find that it is holding back development if it has not robustly assessed the market and this makes it harder to insist on mixed use in negotiating with a reluctant developer.
Planning and place making
1.8 The design process can be used to overcome many barriers and should be founded on four principles namely: establishing a clear shared vision of the mixed use development concept; actively working with partners; an effective masterplan; preparing a clear, costed and phased delivery structure and strategy.
1.9 Mixed use developments are perceived as more complex and slower to deliver than corresponding single function schemes because of the complexity of negotiating the planning and technical approvals stages. In reality both can be equally complicated. Community resistance to certain uses being co-located can however lead to difficulties and delays.
1.10 Delivering more and higher quality mixed use development will require relevant skills development in the public, private and third sectors.
Designing for mixed use
1.11 The requirement to consult widely on significant mixed use frameworks and masterplans is possibly a little more complicated, with more detailed involvement from additional agencies for mixed uses schemes, e.g. environmental health and fire. Different technical issues become critical at different scales of development with the greatest complexity being in mixed use designs where different functions exist within the same structure e.g. vertical mixed use. There is an increased risk in mixed use development that individual technical 'silos' magnify the significance of minor design issues. Therefore the ability to get together all interested parties in cross discipline technical workshops and cross department teams can assist in resolving problems quickly and developing a shared understanding of the complex inter-relationships.
1.12 Mixed use developments need to be designed for flexibility of function over time. In some cases developments start out as single use but are converted to mixed use as neighbourhoods mature. To enable this kind of temporal flexibility the built fabric needs to be robust and adaptable, with the critical technical design factors being; structure, services strategy, sound insulation, floor plan depth and section heights.
Deal structure & funding: model to deliver mixed use
1.13 Deal structuring was raised consistently as a significant barrier and local planning authorities recognised it was an issue. There is also limited knowledge of different models for delivering mixed use development.
Tenure & ownership structures
1.14 Tenure and multiple ownership are perceived barriers and not unique to achieving a successful mixed use development. Fragmented ownership is a particular issue where residential uses have been introduced into a mixed use development, as the flats and houses provided are generally sold off whilst commercial units may be retained by the developer and leased.
Managing mixed use communities
1.15 There is a potential barrier because of the difficulty of reconciling different environmental health requirements within a mixed use development. Addressing these issues at the early master planning stage is crucial. As a result of the more intensive use and extended use patterns, regular and high quality maintenance is even more important with mixed use development.
Conclusions & Recommendations
1.16 Table 8.1 summarises the Research Team's findings by highlighting the key factors that act as barriers to delivering mixed use development in Scotland. The Table also highlights which are the most significant and which can be addressed by public policy action.
1.17 Planning reform in Scotland presents an ideal opportunity to put in place appropriate interventions to deliver more and better quality mixed use development and this will require appropriate skills. In the current economic downturn there are likely to be very significant opportunities to stimulate and deliver appropriate mixed use development using new kinds of 'delivery models'. Local planning authorities in Scotland could adopt a more proactive role to sponsor, pilot, promote and deliver mixed use development projects.
1.18 Scotland could at this time use this research to start to lead the way in demonstrating how to deliver high quality mixed use development. The research has culminated in four recommendations and fourteen suggestions namely:
Scottish Government to enable provision of more proactive advice on how to deliver mixed use development & improve skills.
1.19 There is a need to refine the working definition of mixed use development, however, it would not be appropriate to adopt a standard national definition in Scotland because of the need to reflect the particular local contexts. Using an agreed definition would however also allow more robust and accurate statistics to be collected. Establishing a Scottish mixed use development web site with best practice case studies, relevant images and advice material is also suggested.
An initiative to promote delivery of mixed use development
1.20 The aim should be to be proactive and advocate mixed use development to local government officers and members, community councils, residents and business groups, to collect and share good practice and invest in resources, tools and research. Local authorities should audit their skills base to identify their particular training and recruitment needs. The Improvement Service and professional institutes like the Royal Incorporation of Architects in Scotland ( RIAS), Royal Institution of Chartered Surveyors ( RICS), Royal Town Planning Institute ( RTPI) and others through CPD should deliver relevant skills development and training at the appropriate levels.
Enhanced advocacy role for Architecture & Design Scotland ( A+DS)
1.21 It may be possible for A+DS to take on an enhanced advocacy role in promoting the delivery of mixed use development particularly in the context of planning reform and the economic downturn.
Encourage & pilot new approaches to deal structure: funding & managing mixed use developments
1.22 Exploring different models to deliver mixed use development and disseminating best practice will be vital. This includes the possibilities of using Planning Permission in Principle (from August 2009) with a Parameters Plan and then Area Planning Briefs. New models for funding 'up front' major infrastructure for larger, more complex mixed use developments ( e.g. Tax Increment Financing) need to be considered. Amending business rates liability for new non-domestic properties within mixed use developments and aiming to better promote the use and benefits of the legislation that affects multiple residential ownerships are also suggested.