The City of Edinburgh Council . Historic Scotland . Lothian and Edinburgh Enterprise Limited

Scottish Homes . Edinburgh New Town Conservation Committee

EXECUTIVE SUMMARY

August 1997

Executive Summary (draft)

Background 1

The Study Brief 1

The Study Area 2

The Study Process 2

Key Findings 2

The Case for Action 5

Strategic Approach 7

Diversification of Uses 8

Public Realm and Traffic Management 14

Guidance on New Build & Refurbishment 16

Promotion and Marketing 19

Management and Co-ordination 20

Monitoring and Evaluation 21

Economic and Environmental Benefits 22

Conclusions and Next Steps 23

1. Edinburgh's first New Town is a major part of one of the finest pieces of town planning in Europe. Sited on the northern side of the drained Nor' Loch, the first New Town was originally conceived as a residential expansion of the medieval Old Town. James Craig's plan for the area, which was constructed from 1767, is a visual embodiment of the ideas of prosperity, progress and order that were integral to the Scottish Enlightenment. The unity of the overall plan and its internal hierarchies give the first New Town its unique character and identity, which was recognised in the designation of the Old and New Towns as a World Heritage Site in 1995.

2. The first New Town has experienced virtually continuous change in use and activity, a process which began even before its completion. Residential uses were swiftly replaced by commercial activity and the area was colonised by the major financial institutions from the 19thCentury. The first New Town has developed a role of national significance, serving as the home of many Scottish institutions and leading companies. Princes Street has also gained international recognition as the City's premier shopping centre.

3. In the early 1990's, many of the larger office users relocated to new, purpose built locations within or outwith the City Centre. This process has also seen the reconversion of some buildings to housing in the West End. A rapid rise in property vacancy had created uncertainty about the future of the area, coinciding with new obligations and expectations arising from its role as a World Heritage Site.

4. A consultant team led by EDAW was appointed in October 1996 to prepare a strategy for the first New Town and adjoining areas. The City of Edinburgh Council, Historic Scotland, Lothian and Edinburgh Enterprise Limited, Scottish Homes and the New Town Conservation Committee formed the client group for the study. The study brief sought to develop an action orientated strategy that recognises the historic importance of the area and embraces the challenges of be future, in order to maximise the New Town's contribution to the future of Edinburgh.

5. The main objectives of the study were to:

• analyse and quantify the relationship of the New Town to the economy of Edinburgh and Scotland

• establish a development framework for the long-term role of the first New Town

• identify appropriate, viable and alternative uses for the area

• identify opportunities for the conversion and re-use of buildings

• prepare detailed guidance on development opportunities

• make recommendations for a management plan for the area

• prepare indicative cost estimates for the implementation of initiatives

• estimate the economic and environmental benefits arising from the proposals

6. The study area is more extensive than the first New Town as planned by Craig. It includes the core area contained by Princes Street, Queen Street, St Andrew Square and Charlotte Square but also extends to include the West End as a current focus of residential development activity. Palmerston Place provides the western boundary of the study area.

7. The study process involved a review of existing documentation and data and face to face interviews with the client group and a wide range of other public and private sector agencies. The consultants also interviewed a range of businesses and property owners, occupiers and agents active in the first New Town. The views of all these parties were important in developing the strategy.

8. As part of the consultation process, EDAW held two workshop stages with both the client group and other agencies at key points in the study process. The first workshop stage held in November 1996, sought to build consensus on the main issues facing the first New Town and explore a range of economic scenarios for its future. The second held in February 1997, sought to develop an outline strategy for the study area and identify the main themes and projects.

9. Part A of EDAW's main report provides both a context and explanation of the current situation by sector, but it is the interrelationship of these sectors which is critical. For example, changes in traffic management, access and circulation influence the pedestrian environment, the attraction or retention of economic (e.g. retail and commercial) activity in buildings and ultimately investment in the fabric of the World Heritage Site. Similarly the diversity of uses which the first New Town houses supports the overall viability of the area, yet it can also introduce potential conflicts between users.

10. It is the unity of Craig's plan, and its internal hierarchies, which give the first New Town its special identity and contributes to its character. Within this broadly unified area, the first New Town has experienced continuous change in use and activity, much of it taking place in the later 19th and 20th centuries.

11. The study area is protected by various levels of conservation and heritage designation, most significantly its World Heritage Site status. It contains some of the most important buildings by leading architects including Adam, Chambers, Bryce and Gilbert Scott and many of the original interiors have been retained. There are no buildings in serious physical decay at present, although a Buildings at Risk survey undertaken as part of the study indicated that there are a number of properties which are vulnerable should vacancy be prolonged.

12. Our analysis identified a number of finer grained 'character areas' within the overall homogeneity of the plan but there are three main land use zones:

• the eastern zone, comprising St Andrew Square and adjoining streets, has had a strong office base and was subject to significant change during the 1960s and 1970s.

• within the central zone, Princes Street has been subject to most change in built form, although it has progressively reinforced its role as the retail heart of the City Centre. The balance of office, retail and leisure uses in George Street has also fluctuated.

• the western zone, from Charlotte Square to Palmerston Place, has been subject to significant pressure for change of use from office to residential and, in some locations hotel uses, but the fabric has changed less.

13. Townscape and open space Is a key feature of the plan and spatial experience. Our analysis highlights that:

• a number of key gathering or focal points could be more strongly 'rooted' in their locations, and linked together as a stronger pedestrian network

• some spaces, such as the Squares, could be made more active parts of the city

• the quality of streetscape is inappropriate in many locations, including Princes Street, and does not do justice to the built fabric

• some areas would benefit from sensitive upgrading in accordance with the Edinburgh Streetscape Manual.

14. The residential population of the study area has been increasing since 1981 in the context of a city-wide stabilisation. This has been largely focused on the West End. The recent trend of conversion from office to residential use has reinforced this trend and the population of the area is now approximately 2,000.

15. More than 35,000 people were employed in the study area in 1993 (14% of the total employment in the city). Financial services employment in Edinburgh has increased, although it has fallen in the first New Town with many of the larger financial institutions shifting to modern open plan accommodation at The Exchange or Edinburgh Park. As this is not a net loss to the city it is not a fundamental problem from an overall economic perspective.

16. Retail spending continues to increase, fuelled by tourism. CEC's shopping capacity study suggested that 23.4% of City Centre retail spending is by tourist and visitors.

17. Our analysis highlighted the continuous evolution of the economic role of the study area in the wider context of the city. The area still plays a key role in Scottish economic and institutional life, and this could be reinforced by a Scottish Parliament especially if the former Royal High School\Calton Hill or a similar city centre option emerges as the preferred location.

18. The experimental Central Area Traffic Management scheme has resulted in a significant reduction in traffic using Princes Street as a result of the removal of eastbound traffic. Other features of the scheme include:

• a major increase in traffic in Queen Street, which would be reinforced by the Council's proposals to remove westbound traffic from Princes Street.

• some benefits for George Street, but problems of congestion in Charlotte Square, Frederick Street and Hanover Street and 'rat running' in Hill Street, Young Street and Thistle Street.

• concerns regarding the temporary townscape impacts of the scheme and how these are to be made permanent.

18. There is limited off-street public parking in the study area and car parks in adjoining areas play an important role in serving the first New Town for both office and retail users. On-street parking has been reduced as a result of the Central Area Traffic Management scheme.


19. Other issues raised by the analysis included:

• public transport patronage is good, with more than 30% of journeys to the city centre to work and shop by bus

• the CERT guided bus proposals will further enhance the modal split when implemented

• pedestrian flows are focused on Princes Street and there is very limited penetration into the rest of the study area, with flows in George Street currently less than 25% of those in Princes Street.

21. The analysis highlights the complex inter-relationship between traffic management, economic activity and quality of environment within the study area. There are concerns particularly from the office sector - that further restriction and loss of parking will have a detrimental effect on the economy of the area. However, our analysis suggests that there is a need to distinguish between parking aspirations and the actual requirements of local businesses. Defining an appropriate balance between traffic restraint and economic growth represents one of the most significant challenges for the study area.

22. The office vacancy rate in the first New Town is now adjusting downwards from its peak in the early 1990s when changing occupier requirements led to large scale office relocation. The immediate market response saw new office developments within the first New Town seeking to adopt facade retention and other measures to ‘compete’ but these have generally been unsuccessful in attracting larger scale occupiers.

23. The research further suggests that:

• the market lacks the degree of 'crisis' which had been built up by talking up the worst case scenario and no more than 12-15% of first New Town office stock may be formally vacant.

• high property values for a range of uses, with a downward shift in price expectations are allowing the market to find its own ‘solutions’ including changes of office tenure and use to residential or, in some cases, hotel, bar or restaurant use.

24. Although office vacancies remain a little above natural 'market equilibrium', the market is now resolving the situation without any requirement for major public sector intervention. This is not altogether surprising given the location, prestige status and ownership of this important part of Scottish real estate.

25 Compared to other major LTK cities, Edinburgh has a relatively small residential catchment, although high levels of disposable income and, in particular, tourist expenditure have continued to drive up retail demand. An increasing residential population within the study area may also increase demand for convenience retailing. Key findings included:

• strong demand from national multiples continues to feed upward pressure on rents in Princes Street and the finite supply of retail property will reinforce this trend.

• secondary pitches (e.g. Shandwick Place, Castle Street) are more vulnerable and have shifted towards niche/discount retail or leisure uses.

• the City Centre currently lacks a focus for quality specialist retailing to complement Princes Street and compete with other locations such as Glasgow.

• there are a number of specialist outlets in George Street and increasing retail demand linked to the conversion of office buildings and banking balls, although some intervention may be required to capitalise fully on the retail opportunities.

26. Research by CEC suggests that continued expenditure growth of 3% p.a. will create a significant gap in retail provision over the next fifteen years. Significant retail investment will be required over this period for the City Centre to remain competitive in the face of strong pressure from Glasgow and out of town locations. There are a number of retail development proposals both within and outwith the City Centre, including proposals for an underground mall in Princes Street. CEC's study suggests that whilst there is limited scope for new development to 2001, most of the envisaged schemes could be accommodated by 2006.

27. Key findings in relation to the housing sector include:

• strong evidence that the trend for conversion to residential uses is now self-sustaining at the upper end of the market, although 'mixed use' conversion is limited in extent.

• the market is currently strongest in those areas on the boundary between predominantly office and predominantly residential use.

• further residential encroachment in the West End will be dependent on patterns of lease expiry.

• some owners may be reluctant to consider residential conversion in isolation and the process of change is likely to be gradual.

• conservation of internal fabric has generally not been a stumbling block as the retention of town houses - and their interiors - in use as single dwellings has been supported by the market.

• office values have not fallen sufficiently to make the provision of mid market and low cost accommodation viable at present without a degree of grant assistance.

There is an opportunity to do more in this sector, but it must be inter-related with other city activity.

28. The findings in this sector may be summarised as:

• the study area accommodates some of the City Centre's key tourism infrastructure, including hotels, restaurants and bars.

• the first New Town is not a major destination in terms of venues and tourist attractions, nor is it promoted as such.

• the city is performing well in terms of hotel occupancy, and there are a number of proposals for the expansion of existing facilities in the study area.

• high occupancy has created a degree of over pricing and there is scope for the first New Town to serve as a location for new and expanding hotels, particularly in the business sector.

• there is evidence of increased demand for new pubs, bars and restaurants, and whilst further cafe culture is to be encouraged it requires sensitive management in some locations.

• the first New Town lacks interpretation of either its architecture or its history and those of the people - e.g. Scott, Stevenson, Bell - who lived there.

29. The first New Town has adapted and evolved decade by decade since its creation. Conceived to assist Edinburgh and Scotland's competitive edge it has changed to meet different needs and roles, largely successfully.

30. The study area has undoubtedly experienced a difficult period in the early 1990s, mainly through an exceptional increase in office vacancy levels. Although these changes were driven in part by changing occupier requirements - which did not have a net negative impact on the City economy - locally there was a perceived loss of market confidence in the office sector of the first New Town.

31. Such negative perceptions were reinforced by a range of other observations on the effects of the new traffic management regime and difficulties associated with the reconfiguration or redevelopment of the historic fabric.

32. Despite these concerns, the research has highlighted that the area did not lose its office, professional and retail roles, rather that they experienced a major readjustment. Indeed the most up to date evidence indicates investor and occupier interest and confidence in the first New Town has been returning, (although it has never been absent from Princes Street). There is strong evidence that occupancy levels and interest in development and refurbishment are growing across all sectors.

33. Should it be located nearby, a future Scottish Parliament would also have beneficial effects across all sectors of the economy of the first New Town. These would impact most notably the office market but also, for instance, in hotels, residential, bars and restaurants.

34. Successful places evolve and are capable of responding to - and in some cases anticipating structural social and economic change. In our judgement, the first New Town is flexible enough in both plan and building form to make the transition into the 21st century. This message is critical and needs to be articulated to a wide cross-section of market interests.

35. Despite this apparent halting of the 'decline' cycle, there is no room for complacency. Many of the current market cycles may play out over relatively short (e.g. 5 year) timescales. There is a need to reinforce current market activity to ensure that enduring economic benefits are derived for the study area and for the city as a whole.

36. Other factors, such as the ongoing traffic management scheme, may generate impacts over a considerably longer period of time than the monitoring of the experimental phase has been in place. The traffic management issue is finely balanced at present and the further implementation of the proposals may have different impacts on different sectors of the economy. There are numerous UK examples of the successful pedestrianisation of commercial office centres such as Birmingham and Leeds where an appropriate balance between accessibility and quality of environment has been achieved. This approach can be successfully adopted in the First New Town.

37. The area is therefore at a critical point and this must be reflected in the sensitivity of the public sector response. Adopting the 'do nothing' course of action does not mean that the first New Town will automatically recover. Equally, excessive interventions which have a negative 'shock' effect - whether physically (for instance, in the form of new large scale office redevelopment) or in management terms (Such as wholesale pedestrianisation or inappropriate visitor theming) - would distort the delicate balance of uses and send out the wrong signals to the market places. They could further fuel perceptions about the first New Town being in crisis.

38. Our judgement is that, unlike some urban problems which require large scale intervention to act as a stimulus for revitalisation, the first New Town requires a strategy and action plan based on sensitive and co-ordinated management. The study area requires a set of critical interventions, some of which may be significant; others may be more limited in scope.

39. The relationship between the conservation of the built fabric and maintaining and developing the economy of the first New Town lies at the heart of the strategy. The overarching aim of any strategy for the first New Town must therefore be to link the physical conservation of the study area to a robust and effective strategy for its economic health. This will help the first New Town to balance sustainable economic growth with safeguarding and enhancing its essential physical and historical assets.

40. The first New Town must be viewed as a competitive location and develop roles which complement and enhance its relationship with the rest of the city The approach must seek to build on and work with the existing diverse market interest in the area rather than 'seed' that interest, artificially. This will serve to strengthen the diversity of economic activity in the study area and result in the beneficial re-use of underused and vacant building stock. It should also fulfil the incredible potential which the New Town has to reinforce Edinburgh as a leading European historic environment accommodating a diverse range of social and economic activity.

41. Public sector intervention in the study area should be geared towards fulfilling a broad vision for the roles of the first New Town over the next 10 years and beyond. Given the market interest it will not be necessary for a significant level of public agency support or intervention in all facets of revitalisation. Much of that will be market driven provided there is the appropriate level of confidence. In this context, there is no market or needs based justification for special fiscal incentives as adopted, for example, in Dublin's Temple Bar.

42. The vision should set the direction for the first New Town and should be predicated on a set of key principles about how it is to be achieved. The fulfilment of the vision will be tackled by pursuing a set of inter-related strategic themes, reflecting the main issues to be addressed in the first New Town. Within each of the themes there are a mix of projects and policies which are to be implemented over time to facilitate the realisation of the vision.

43. The ten year vision for Edinburgh's first New Town is that:

The area will play a diverse set of roles in the context of a dynamic and successful city centre, including:

• a tourism and visitor destination and orientation point, both in terms of accommodation and support infrastructure

• forming part of the City Centre's growing residential community.

• a unique and memorable outdoor space for experiencing the life of Scotland's capital city.

The vision will be fulfilled through sensitive long term management of the urban fabric, coupled with positive promotion of the economic role of the area.

44. The principles which will guide the fulfilment of the vision are:

• The performance of a mixed use economic role within the context of the wider city centre, later New Town and beyond (that is, not acting as a closed system or even 'urban village' quarter).

• The requirement to retain, protect and enhance the historic fabric and hierarchical relationships of the Craig Plan by encouraging flexible, economic re-use of buildings to ensure their maintenance and integrity

• Maximising the potential of the first New Town as a distinctive and memorable place.

• Physical alterations to the built fabric and streetscape should where possible incorporate the principle of reversibility, to allow for future adaptation and possible return to an earlier state.

• Raising the environmental quality and standards for the occupiers, residents and visitors alike.

• Creating a more people-friendly environment and eliminating non-essential through traffic.

• Actively promoting the first New Town as a quality location for businesses, retail and as a place to stay.

• Informing, both citizens and visitors of the unique history and occupation of the area, in conjunction with other parts of the New Town

45. A range of policies, programmes and projects are presented under each of the following strategic themes. The themes are derived both from our analysis and the very extensive consultation process and have been tested at workshops with both client and external groups, and include:

• diversifying uses and activities

• public realm and traffic management

• guidance on new building, conservation and refurbishment

• a promotion and marketing

• management and co-ordination

46. Neither the themes nor the projects can be viewed or acted upon in isolation. A holistic approach is proposed, recognising interrelationships and linkages and seeking to manage the mix of activities to derive the optimum benefits for the City Centre whilst maintaining and enhancing the unique heritage asset.

47. The mix of land uses and activities and the interaction between them creates the social and economic diversity - often intangibly – which makes places attractive in which to live, work and play and, therefore, in which to invest. The recognition that the area plays - and must continue to perform - a wide range of different economic roles lies at the heart of the strategy.

48. Market activity across the Office, retail, housing, leisure and tourism sectors in the study area is already changing the balance and mix of land uses in the study area. Whilst this diversity brings economic benefits, it brings with it the need to manage change effectively to minimise conflict in land use terms and other adverse impacts.

49. The public agency role is to work with the market to encourage a more balanced and beneficial mix of land uses in the first New Town. This approach will achieve a number of physical and economic benefits, including:

• preventing over dependence on a single economic use or uses to sustain activity and employment

• creating linkages between complementary land uses to derive additional economic benefit

• allowing a range of different uses to compete for space in the historic fabric, thereby optimising its flexibility to accommodate different market pressures whilst maintaining the principle of reversibility.

creating a more vibrant and vital urban environment

50. The proposals include:

• further stimulation of the office market, focused on smaller, professional services occupiers and consolidating the 'Golden Rectangle' of George Street, Queen Street and Charlotte and St Andrew Squares

• strengthening existing demand for retail growth in the first New Town whilst extending and diversifying the retail mix, through consolidating and enhancing the primary role of Princes Street and developing that of George Street

• continued policy support for the re-population of the West End, driven by the private sector, whilst seeking to diversify the range of markets and tenures present within the first New Town itself

• further support for the area's tourism economy through a range of activities including the enhancement of existing visitor attractions and new hotel/leisure facilities.

51. The first New Town Strategy seeks to consolidate and expand on the role of Princes Street, which will continue to be the primary focus for retail investment by retailers and institutional owners alike. Nonetheless, there is a genuine requirement for the public sector partners to re-state the vision for the future of Princes Street. If it is to reinforce its pivotal role in the City Centre economy - and make its optimum contribution to Edinburgh's competitiveness as a European Capital City then a number of issues need to be addressed. These include

• the attraction and retention of leading retailers

• a high quality, comfortable and extended public realm

• much improved shopfronts, signing and window displays

• good access for pedestrians, particularly by public transport and cycles

52. There are also concerns over the long-term sustainability of retail growth in Princes Street. Edinburgh's prime retail pitch is relatively long and thin - and one-sided - compared to other international cities of similar standing. The property performance of Princes Street is driven by the limited supply of retail units but, in overall terms, this will increasingly act as a constraint to the growth of the retail sector. CEC's retail capacity study highlights an increasing gap between the level of retail expenditure available and the provision of retail floorspace within the City Centre.

53. The Princes Street Galleries proposal has been developed in response to this challenge. The project would almost certainly attract a number of these retailers and therefore add to both the quantity and quality of the city centre's retail offer. CEC's Retail Capacity Study and EDI's retail impact study both suggest that the scheme would capture only part of the available retail expenditure (around 25%) upon its completion in 2002 at the earliest.

54. There are, however, more fundamental concerns surrounding the proposals in their current form. The 'internalisation' of pedestrian flows - both within the proposed underground mall and the basements of those existing Princes Street shops into which it will link - is perhaps most significant, with the potential to reduce pedestrian activity at street level.

55. With pedestrian flows in George Street no more than 25% of those in Princes Street, and those in Queen Street still lower, the premature implementation of the scheme could be prejudicial to encouraging vitality in other parts of the study area. However this is not necessarily insurmountable and could be addressed by phasing and through design, to ensure sufficient permeability is achieved. The proposals will need to demonstrate:

• sensitive siting of access and servicing infrastructure on Princes Street which respects the existing urban grain, townscape and built heritage

• how to optimise the relationships with Princes Street Gardens

• the creation of a high quality of internal ‘public realm’ in keeping with the scale and location of the proposals, possibly using distinctive underground design elements such as vaulting.

• optimisation of the streetscape benefits that can be accrued from the development.

56. Maintaining only a single focus for the retail sector in Princes Street minimises the opportunity to spread the investment, activity and footfall associated with retail growth to the other parts of the first New Town and to reduce pedestrian congestion at key 'pinch points'. The prime retail pitch is also relatively one-dimensional in the sense that it Is focused on mainstream, rather than specialist retailers. If implemented, Princes Street Galleries will not necessarily resolve either of these issues.

57. Edinburgh lacks the counterbalancing focus for specialist retail activity which many of its comparator cities possess. Frankfurt has its Schaumankai to its Zeil; London has Bond Street to its Oxford Street; closer to home Glasgow has Buchanan Street to Argyle Street.

58. Of the various secondary pitches within the study area, George Street represents the most obvious street with which Princes Street could develop a symbiotic relationship. Creating a physical focus for specialist retail activity in George Street would complement and reinforce Edinburgh's mainstream retail offer in Princes Street. The benefits would include:

• generating a further means of attracting and retaining both resident and visitor expenditure in advance of the Princes Street Galleries and other proposals

• concentrating activity and spending to reduce fragmentation

• creating a sense of place through a distinct and identifiable 'grand street' character.

59. A strong and vibrant Princes Street will be vital to the prospect for extending retail investment and activity to George Street and elsewhere in the First New Town. Expanding retail activity northwards from Princes Street would serve to reinforce existing retail activity in George Street, focused on that stretch between Castle Street and Hanover Street. It would create the potential to draw pedestrians into other parts of the first New Town - most notably the 'cross streets' and Queen Street - which are currently lacking activity.

60. Importantly, it would build on existing market interest in retail development in the street. There is already retailer/developer interest in the former Pearl Assurance and Sun Alliance buildings and other schemes are likely to follow given an appropriate policy environment. There is more than 300,000sq.ft of vacant office space, plus a further 29,000sq.ft of vacant retail space in George Street at present (excluding banking halls etc).

61. Public sector investment would reinforce and accelerate the development of the retail economy in the street. The proposals would recreate the role for George Street which was envisaged by Craig and re-establish a primary economic 'driver' which it currently lacks. Without such a viable, economic raison d’être, the long-term ability to conserve and maintain the quality of the historic fabric will be compromised.

62. The retail Policy element of the Central Edinburgh Local Plan should be revised to reflect an enhanced retail role for George Street and to encourage the conversion of offices and banking halls to retail use. This would involve the alteration of Policy S2 to include the central blocks of George Street within the retail core. Policy ED1 would also require alteration to exclude these areas from the office core.

63. Other potential City Centre retail schemes exist at Waverley Station, the former GPO building and the St Andrew Bus Station. None of these schemes has evolved and it is not possible to assess their impact at this stage. CEC's retail study suggests that in capacity terms it will be possible to accommodate the majority of known proposals by 2006.

64. However, the cumulative impact of the implementation of two or more of the proposals would serve to create a retail focus in the eastern end of Princes Street. This could impact on pedestrian flows and draw trade from the western end of Princes Street and Shandwick Place. It appears likely that of the various proposals, the Waverley scheme would have most impact on existing footfall in terms of scale and location and would shift the retail focus to the east of Princes Street.

65. Similarly, the scope to encourage activity in George Street would be limited if the Waverley proposals were implemented in advance of the proposed George Street improvements. We would recommend therefore that the Waverley proposals are considered a longer-term opportunity and not brought into play until beyond 2006 when sufficient retail capacity is present and George Street has been revitalised.

66. The research has highlighted the process of market adjustment which is currently taking place within the first New Town. The overhang of vacant office property is being reduced through a mix of changes in tenure and conversion to residential, retail and leisure uses. This market cycle will continue in the short-term.

67. Whilst the overall proportion of the building stock in office use will be reduced over time, a 'do nothing' approach will leave too much uncertainty within the first New Town office market. There is a need for selective guidance and demonstration projects to ensure the long-term office role of the area is sustained.

68. It is likely that the shift in office demand from larger financial services organisations to small and medium-sized enterprises in the professional services sector will be maintained. It is proposed to support further diversification within the office market to consolidate demand for accommodation in the first New Town from professional services based SMEs.

69. The key criteria for market failure - the presence of significant supply or demand-side constraints - are not in place. There is no justification for further large-scale public sector intervention to bring forward office development projects although some demonstration projects like the National Trust for Scotland's proposal for the refurbishment of 26-31 Charlotte Square will play an important role.

70. However, through advice and guidance, the aim must be to encourage the conversion of larger offices to smaller office suites where this can be achieved with minimal impact on the historic fabric. Linked to this, there is scope to target the business development activity of CEC and LEEL to support for existing businesses and new firm formation with the First New Town. The aim will be to reinforce its long-term role as an Office location by fostering the growth of existing business and the attraction of new firms. The rationale behind the proposals is as much about changing the perceptions of the office market than major public sector property investment.

71. The research has highlighted a range of market perceptions regarding the flexibility of so-called 'period' office buildings to accommodate changing working practices and IT requirements. There are few examples of the application of the 'virtual office' to historic buildings although several organisations - most notably Regus and BT - have developed the concept of touchdown centres.

72. These provide an important evolution of the managed workspace concept and seek to provide accommodation, IT and support services on a highly flexible basis to both individual and corporate users on a 'plug and play' basis. The successful development of such a facility within the first New Town would highlight the inherent opportunities within the existing stock of historic buildings. It would provide an important addition in the range and quality of office accommodation currently available for SMEs in the City Centre and thereby support the development of the professional services sector.

73. Further opportunities would be created for business travellers and there may be scope to link the touchdown centre to new visitor accommodation and/or club facilities within the first New Town. Opportunities include 24 Charlotte Square, the former Clydesdale Bank building which extends to 9,000 sq ft, whilst a further option might be to link the centre with BT's proposed telecommunications museum, also in Charlotte Square. Close liaison with Historic Scotland and other parties will be essential to ensure appropriate interior design solutions are balanced with economic viability.

74. It is likely that the private sector will continue to play the lead role in housing conversion in the West End. The approach must seek to reinforce this activity whilst encouraging further housing investment elsewhere in the first New Town. As the character of the West End part of the study area is changing from office to residential, we propose an alteration of the Local Plan to reflect this shift. We propose to amend the boundary of the Mixed Activities Zone to exclude the area and include it within the 'Housing and Compatible Uses' zone identified in policy Hl.

75. In addition to capturing existing market interest and retaining the historic fabric, the reintroduction of a substantial residential population will improve the sense of security in the City Centre and create additional demand for shops and services. The re-introduction of housing creates the opportunity to bring upper floors above shops back into economic use and to diversify tenure within the area.

76. However, where vacant upper floor property is still generating rental income, this may limit the interest of the owner in housing re-use. Some upper floors have become isolated from the ground and even where no income stream is present, property owners may prefer to leave property unoccupied rather than expose themselves to the additional liabilities associated with managing residential property.

77. In Edinburgh there are a number of successful examples of housing conversion/ refurbishment above shops. These include schemes in South Bridge in the Old Town and the Crown Estate's Commissioners' Pilot block in Nicholson Street. These schemes - and the Living over the Shop (LOTS) approach adopted in England - offer important lessons for the first New Town.

78. There is an important opportunity to explore the potential to re-introduce and expand housing above shops in some secondary retail locations in the first New Town. Opportunity locations include Rose Street/Shandwick Place/Frederick Street/Hanover Street. The aim would be to introduce a broader tenure mix of housing into the first New Town, where possible including social and market rented and shared ownership.

79. At present there is limited incentive for property owners to tackle this issue in the New Town. The scope for Scottish Homes grant assistance for a pilot development project in the first New Town, utilising the Lead Tenancy approach (or its successor), should be explored. Where premises are listed, there may also be potential to combine Scottish Homes funding with that of the New Town Conservation Committee.

80. There may also be opportunities to convert offices in Hill Street and Thistle Street to residential use as existing office leases expire, building on the increasing residential population in these areas. In general, however, values in these areas are being driven upwards and the scope for conversion from office use may now be limited.

81. A more radical solution may lie in the residential conversion of the empty 1960s Office buildings which, by virtue of their quality and obsolescence, are unlikely to be re-let as offices. There are a number of successful examples of this approach in London, Dublin and other cities. Opportunities might include Meldrum House, in Drumsheugh Gardens. This vacant, seven storey 1970's block extends to 42,000 sq ft and has potential to create around 80 apartments across a range of tenures, potentially including student or other single person accommodation.

82. There are no quick fix 'cultural' solutions to the challenge of finding new activities for the first New Town. Some activity is already happening in George Street but the area is not the classic case for central area culturally-led urban regeneration, as for example in the case of Temple Bar, Dublin or Edinburgh's Old Town. The reasons for this include:

• commercial properties in the area are generally too expensive for cultural use;

• large parts of the area are residential in character

• there are very few pockets of activity and animation to generate a critical mass of interest.

83. In most of the arts sectors, the necessary arts infrastructure s already in place in other parts of the city. Similarly, much of the tourism activity within the city is rightly focused on the Old Town. The first New Town does have the potential to be a more important place for visitors to the city by building on its range of cultural assets - the Assembly Rooms, 7 Charlotte Square, the National Portrait Gallery. These ought to be made to work harder for the City, developing a higher profile and enhanced visitor patronage within the context of a growing leisure and business tourism market.

84. The research identified the scope for a ¾ star hotel development targeting the mid-range and business visitor to the City. There are a number of proposals currently in the pipeline for the expansion of existing facilities (e.g. The George and Roxburghe hotels) or for the conversion of townhouses in the West End. There is also evidence of potential demand (in locations such as 9-11 Rothesay Terrace) for self catering/timeshare accommodation to meet a range of requirements of both the business and leisure sectors. This would represent an alternative form of re-use for some West End offices and could be achieved whilst retaining the integrity of listed interiors.

85. Much of the cultural life which goes on in the first New Town is scarcely visible from the street. However, this picture is changing with demand from a number of outlets in George Street and elsewhere in the first New Town. There is limited activity of this type in Princes Street, unlike in Copenhagen's retail core for instance, although opportunities to introduce non-retail uses are very limited as a result of the high retail values which prevail.

86. Many spaces could undoubtedly be more animated, and street life could be encouraged. Generating activity to improve penetration into and pedestrian flows around the area - and beyond the south side of George Street - will be important to help develop this dimension.

87. In some parts of the first New Town the market is unlikely to support activity of this type as retail and office rental values continue to prevail. Equally, maintaining a sensitive balance between activities means that excessive leisure activity - whether on-street or not - is inappropriate. It is important to emphasise that a full blown '24 Hour City' approach, as espoused in Dublin and Leeds, amongst other places, is not being proposed for the first New Town.

88. There are opportunities to introduce a broader mix of uses, particularly in secondary retail locations where property values and lease expires allow. Generally these should be cafes and restaurants with a high quality street frontage, rather than pubs and themed bars.

89. Limited activity of this sort is beneficial within the central blocks of George Street - within the confines of the proposed change to Local Plan policy which seeks to reinforce retail use - and also on the fringes of the proposed retail core. We would envisage some cafes/restaurants at basement level within the central area and at ground floor outwith the two central blocks.

90. The Assembly Rooms represent an under-utilised resource for the first New Town. Whilst the Assembly Rooms accommodate a wide range of activity, there is potential to make their presence on George Street more apparent to passers by through the creation of a pavement cafe. This might provide the stimulus to attract more activity of this type to parts of George Street. The functionality of the building can also be improved and has been the subject of proposals for Lottery funding.

91. There are a number of proposals for new attractions in the area which should be supported by the partners through advice and guidance. These include BT's proposed Telephone Museum and interpretation/exhibition facilities associated with the NTS proposals in Charlotte Square.

92. The rich architectural and social history of the study area would benefit from more extensive interpretation. In part, this can be enhanced through some publicity material, some buildings opened up to visitors and the creation of more places to linger or to sit and watch events. There is scope for a more formal presentation of the social and architectural evolution of the study area building on some of the existing activities of ENTCC. This could be located in one of the first New Town's key buildings, potentially including:

• the NTS HQ at 26-31 Charlotte Square

• Assembly Rooms

• West Register House.

93. The analysis of the first New Town has demonstrated that it is a most robust piece of townscape and real estate which has adapted well to change over 200 years. Theoretically therefore, it would be an option to propose that no changes were necessary to improve the working of the spaces in the First New Town, for people or vehicles. However, this would miss the fundamental opportunity to enhance aspects of the First New Town to

• take fuller advantage of the grain and character of one of Europe’s great planned streetscapes
• assist in sustaining the diversification of land use strategy recommended for its long term well-being and maintenance of its built fabric
• strengthen the competitive position of Edinburgh's city centre as a whole by enhancing its performance and impact
• contribute to the City Council's objective of removing undesirable private vehicular traffic from the core
• take confident steps forward in its provision of the amount and quality of public space to be expected in a World Heritage Site and leading North European capital.

94. We have devised proposals for the public realm and traffic regime which are progressive, providing a flexible strategy which builds strongly on previous and current work (particularly the Central Area Traffic Management Scheme and The Edinburgh Streetscape Manual). Importantly, the strategy provides a platform which considers the first New Town as a whole within the context of the city centre. The aims of the public realm and traffic management proposals are to:

• reinforce and complement the other land use, transportation, economic and cultural objectives of the strategy.

• increase occupancy levels, performance and economic viability, thereby also safeguarding the World Heritage built fabric

• progressively make the area a more vital, people friendly place, assisting pedestrian movement and spreading the animation, footfall levels and experience of the first New Town northwards from Princes Street into George Street and beyond

• enable the city centre to expand substantially its carrying capacity for shoppers, tourists and business visitors with a dramatic increase in the available public open space

• exploit the civic grandeur of George Street to create a high quality, specialist retail location.

• ensure a quality, design and Impact of streetscape environment consistent with the unique characteristics of this World Heritage Site

• ensure practical deliverablity within the city's broader transportation aspirations as set out in Moving Forward and elsewhere, including the restriction of non-essential traffic and the reduction of on-street parking spaces

• maintain and, where possible, improve public transport access and access for cyclists

• work with the grain of landowner and private investors/operators to ensure minimum disruption and maximum positive impact

96. The economic prosperity and the environment of the New Town is undoubtedly influenced by the impact of traffic and parking in the area. The current City Centre Traffic Management strategy has had positive benefits within the study area, particularly for Princes Street and parts of George Street. However, there have also been some adverse impacts both within the first New Town and further afield.

97. Current operational difficulties with the scheme can to some extent be alleviated through traffic engineering measures, and the impact of through traffic on streets in the second New Town mitigated through supporting measures. However, in the longer term the Council's aspirations to reduce non-essential traffic in the city centre will be dependent upon the success of wider polices to improve public transport and restrict car use and a change in attitude towards the use of the private car.

98. The more recent suggestions by the City Council to extend the eastbound restrictions along Princes Street to westbound traffic (thereby excluding all traffic except buses, taxis and cyclists) will have further impacts on traffic circulation within the city centre and further afield. These impacts and mitigation measures are currently being investigated by CEC on a city-wide level within the context of transport, environmental and economic policies.

99. Given this background, and set against the City Council's Moving Forward strategy, we believe that the current scheme should evolve in such a way as to satisfy the widest range of objectives for economy, amenity and visual quality of the first New Town. The concept for the management of traffic within the first New Town proposed in this study is therefore based on achieving a balance between the needs of all user groups and on maximising the potential of the area's inherent commercial and environmental assets. The traffic management concept comprises the following elements:

• a pedestrian- priority core area within which access is restricted to emergency and service vehicles and time-limited local access. This zone includes George Street and Frederick Street south.

• a main traffic movements on the west side of the Squares with local access remaining and some on-street parking

• priority for buses and cyclists with a focus on Princes Street.

100. Fundamentally it is the scale of the proposals which allows for the radical improvement in the quality of the public realm. This is necessary in the first New Town in order to create appropriate focus of activity, encourage the fuller use of spaces, and draw colour and vitality back into more of the City Centre. The key proposals include:

• in Princes Street, proposals to radically improve the quality of public realm to complement the wider setting of the street through widened footways, co-ordinated, higher quality paving introduced along the length of the street and the improvement of carriageway surfacing

• a major, three phase project for George Street to reinforce its role at the heart of the first New Town art and establish it as a major public promenade and activity/meeting place within the city centre, based on a 'core' streetscape scheme of almost austere simplicity

• conserving the fundamental character of Charlotte Square and St Andrew Square and re-establishing their former elegance and connection with George Street, through simple high quality paving treatment to affirm the concept of square as set-piece design with buildings, floorspace and gardens creating a cohesive whole and the west side of both squares designated for main traffic movements

• improving the streetscape quality of Rose Street, to create an environment which complements both George and Princes Street through traffic reduction and establishing a consistent identity through a shopfront design programme, custom designed graphics, lighting, and street furniture.

• minimising unnecessary through traffic in Young, Hill and Thistle Streets to reinforce the existing urban quality and protecting and enhancing the texture and quality of natural paving materials

101. Conservation is one of the core activities in protecting and enhancing the World Heritage fabric of the first New Town. Many of the economic, land use and physical interventions proposed are geared towards supporting the objective of viable re-use of buildings and sustaining the integrity of the Craig plan.

102. Within this context, the study area will need to accommodate continual change in its land use and activity in order to maintain its viability and contribute to the economic and cultural life of the city. This wil1 undoubtedly involve conversion and refurbishment of many buildings and, in some instances, entirely new buildings.

103. New development has not always been introduced with the best results in modern Edinburgh and the first New Town has more than its share of intrusive eyesores dating from the middle part of this century. Some, such as the Bus Station and New St Andrews House, are due either for redevelopment or refurbishment for re-occupation or a combination of both.

104. The effects and outcomes of proposed investment need to be carefully managed to minimise irreparable damage and, hopefully, secure the optimum benefit for the area. As part of this management dimension, there is a requirement to give conservation and townscape guidance on such projects to establish standards and aspirations. The purpose of such guidance is to

• ensure owners, developers and architects get appropriate advice on the conservation and reuse of historic buildings, whether listed or not

• guide developers and their architects on the internationally important context and quality aspirations of key new development projects

• remove some of the prejudices which are sometimes associated with owning historic buildings or being in a conservation area

• emphasise the importance of working with the streetscape grain and hierarchical relationships of Craig's Master Plan.

• illustrate appropriate good practice in development, including use, form, massing , scale and detail.

• encourage the conservation of buildings through imaginative, yet appropriate re-use or new use

• build on existing documents and practice to develop a stronger culture and awareness of the unique qualities of the first New Town among the development and design practitioners.

105. Much important and influential work is already carried out by the City Council, Historic Scotland and the New Town Conservation Committee, embracing inter alia advice, technical information and grants. The range of detailed technical guidance available for the first New Town needs to be set down for its users and made available in accessible formats. It is important that guidance should not be restricted to verbal advice around detailed negotiations. Guidance should be positive and offer encouragement, stating the benefits of owning and looking after a building (historic or otherwise) in this prestige World Heritage Site.

106. There is a need for succinct leaflets or small brochures targeted at particular problem areas (e.g. incorporation of IT infrastructure) and addressing basic conservation principles and publicising best practice where this is relevant. The guidance should be drawn from and restate or supplement existing documents including the Memorandum of Guidance on Listed Buildings and Conservation Areas, 'The Care and Conservation of Georgian Houses', the Edinburgh Streetscape Manual and CEC's Draft Urban Design policy.

107. Drawing on the better examples of comparator practice, for instance in Bath - another World Heritage City - we also believe there is scope to restrict the size, type and location of such agents' sign boards, limiting them to internal display only. There is no doubt that this will be controversial with some agents and owners/occupiers. However it should prove beneficial to this part of the World Heritage Site and may also be worth considering for the Old Town

108. There are a number of buildings within the study area which merit specific design or conservation guidance, although it is unrealistic to give detailed design guidance on a building by building or site by site basis in the manner of the Old Town Action Plan. This is because the townscape is more complete with less requirement for alteration or upgrade, and each historic building is unique with no one being universally applicable.

109. More importantly, as noted elsewhere, the property sector is now beginning to function much more normally with all kinds of market solutions coming forward for previously vacant or under occupied buildings.

110. Nonetheless, there is some scope for advice on some of the typical - and atypical - exemplar buildings within the study area. Most of these are likely to come forward for development in the short-to-medium term.

111. We propose two forms of guidance:

• advice on possible conversion/re-use opportunities for vacant or underused buildings, and examples of good quality re-use proposals

• advice which relates to those emerging new development opportunities which are significant enough in scale and impact to affect the image, scale, composition and urban quality of the first New Town.

112. Key buildings or spaces include:

• St James Square, where it is proposed to reinstate a new public urban space by either decking over the surface car park or relocating it and removing balustrading on Craig Walk and connecting to the new urban space via wide access steps and ramps. There is also a need for remodelling and reducing the massing and visual impact of St. James House

• New St Andrews House, the vacant former Scottish Office building, which requires a new use. The key opportunities relate to refurbishment for a mix of office suites of different sizes and specifications, or a hotel or hostel. Sensitive remodelling or perhaps complete re-cladding may be worth considering, together with an external lighting scheme to enhance visual amenity.

• St Andrew's Bus Station, currently subject to proposals for a reconfigured entrance, parking and some retail use. There is an opportunity to strengthen the area from both a functional and urban design perspective by filling the existing vehicle opening with new retail development, reorganising and developing the current 'gap' at the Elder Street-York Place junction and creating a new Bus Station gateway to help screen views from York Place into the rear of the St. James' Centre.

• the former Post Office building, Waterloo Street, currently vacant, could be refurbished for either a hotel or ground floor retail with offices above. Neither approach would require much alteration to the exterior of the building, although internal refurbishment is likely to be expensive given the configuration of spaces.

• the A-listed, Sir Basil Spence designed Scottish Widows building in St Andrew Square, which requires functional rather than aesthetic enhancement to allow re-use to occur. Maintaining a viable larger office building in the Square, closer to a potential Parliament location, is a desirable option and would be supported in planning policy terms but ultimately dependent on the flexibility of the internal spaces.

• the Pearl Assurance building, 100-104 George Street, formerly a department store and with potential to return to a high quality retail use, for which there is known market. There are opportunities to create either an integrated cafe or boardroom to take advantage of views from the glazed roof space. There is a need for quality glazing and shopfront design with sensitive signing and, possibly, lighting. The original ground floor design - with large plate gloss windows should form the basis for shop-front treatment

• the Sun Alliance building, 68-70 George Street, which is an opportunity to introduce another active quality retail or related frontage to George Street at a key corner location. A mixed use approach incorporating separate entrances would allow upper floors embracing a mix of retail or office/workspace with conference facilities at roof level. It will be important to achieve sensitive treatment of the building exterior including stonework, fenestration, signing and shopfront treatment, consistent with the World Heritage Site.

• the proposed National Trust for Scotland headquarters building, 26-31 South Charlotte Square, which, although ongoing, can be used as an exemplar in terms of incorporating office functions and technology into a highly cellular environment of terraced town houses.

• the former Clydesdale Bank, 24 Charlotte Square, which has potential for conversion to a 'touchdown centre' to act as a further demonstration of the scope for sensitive incorporation of IT infrastructure within historic buildings

• the terrace of North St Andrew Square, where a range of opportunities for individual buildings could include hotel use or conversion to smaller office suites where sensitive sub-division could be achieved.

• 80-83 Princes Street, a 1970's block which offers potential for re-use of upper floors as front door access to upper floors is available: opportunities might include a small hotel or restaurant with roof terrace

• 80 George Street, currently occupied by the National Westminster Bank but with a lease expiry in 1999, and therefore offering potential to reinstate the original retail use of the building

113. The marketing of ‘Edinburgh PLC’ is currently undertaken by a range of different agencies targeting individual target markets for a range of purposes. In general Edinburgh gets more, and better, coverage than many comparable cities. Heritage has clearly played a key role in the marketing and promotion of the city to date, for instance in tourism, the festivals, business and conferences activity, education.

114. The New Town is occasionally featured in such material, but rarely as a key stand alone element. When it is this often relates to the later, more residential phases of the New Town. Some negative coverage has resulted from the property vacancy problems and the experimental traffic scheme.

115. The quality of its built form and its important role in the social and economic development of the city suggest there is scope for the first New Town to have a stronger focus within the wider place marketing strategy for Edinburgh. ELTB has an important role in this process.

116. The challenge is to determine what aspects of the first New Town should be presented to which target audience and how they add value or improve the experience of the city, as well as the first New Town itself.

117. There is also some scope to improve the positive media image and cultural representation of the area, for instance through film or television. In addition, the frequency with which it is referred to in the media - and for what reason - needs to be addressed.

118. It is proposed to develop a clear marketing strategy and programme for the first New Town. Complementing or dovetailing into existing city wide marketing initiatives, and particularly those focused on the Old Town, will be vital. Over segregation, particularly where the target audience may be interested in other parts of the city, may be detrimental.

119. The project will focus on four key target markets, promoting the first New Town as a location for:

• Quality/specialist retail investment

Target audience: national and international retailers and fashion houses

Mechanisms: leaflets, video, telephone contact

• Investment in small prestige offices

Target audience: professional firms & SMEs (including legal, financial, media and design), agents

Mechanisms: exemplar project (Touchdown Centre), launch, brochure material

• Quality housing across tenures

Target audience: commercial property owners, house builders, housing associations

Mechanisms: public/private exemplar project, brochure material and launch, media and journal articles.

• Interpretation of the architectural and social history of the area as part of World Heritage promotion.

Target audience: local people, local businesses, business and leisure visitors, schools and educational institutions

Mechanisms: leaflets, video, interpretation centre, leaflets, television programme, posters

120. This will require an enhanced level of co-ordination from the key public sector players (City Council, LEEL, Tourist Board) and the clear involvement and endorsement of the private sector. The partners must, for each target sector:

• identify a core message/image of the area to be conveyed to potential visitors, investors and other organisations, based on the first New Town's USP

• create 'area branding' via image style and tone of publicity material, whether for the first New town specifically or as part of a wider packaging

• develop an ongoing media advertisement and PR campaign (feature placement, airline video etc.) to generate interest in visiting the area.

121. Each of these areas requires detailed targeting, although there is a need to ensure co-ordination to prevent mixed management. Some activity - e.g. the preparation of a heritage promotion strategy - is already taking place.

122. The first New Town Strategy promotes an integrated approach consisting of interrelated public sector-led projects to complement and reinforce the significant private sector investment in the area. It is essential that the delivery of the various projects is co-ordinated within the first New Town, and with wider initiatives to maximise the impact of the strategy. In this way, for example, macro improvements to the fabric and streetscape will be complemented by micro-level actions by small businesses, entrepreneurs and residents.

122. Perhaps most importantly, the study area needs sensitive management to minimise conflicts between land uses and activities and to ensure the co-ordination of public sector service delivery.

123. CEC and its partners are currently considering future mechanisms for City Centre Management and enhanced service delivery. Management proposals for the study area must fit within this context.

124. There are countless linkages which, given a more formal basis for constructive co-ordination, could result in enhanced impact. This could include, for example, closer linkages between the New Town Conservation Committee and Old Town Renewal Trust in management of the World Heritage Site.

125. The partnership of participants must be able to influence and develop policy, but will also act as an 'umbrella' to facilitate the delivery of projects by individual lead partners. Essentially, the primary role of the partners will be one of co-ordination across a range of activities, some of which are ongoing, including:

• World Heritage Site stewardship

• public realm works

design

implementation

maintenance

• traffic management and monitoring

• preparation of guidance - design and conservation

• business development and advice, focusing on fostering the location and growth of SMEs in the professional service sector

• marketing and promotion activity

• monitoring and evaluation

• involvement and participation of the private sector and the community policy development

126. The World Heritage Site Steering Group and the group established to oversee the preparation of this study represents an important starting point in building an appropriate partnership to deliver the strategy. However, the involvement of the City Council, Historic Scotland, LEEL, Scottish Homes, and the New Town Conservation Committee must be formalised and widened.

127. Other public sector agencies and crucially, the private sector and the residential community must be engaged in the strategy and its delivery. This can be achieved through a wide range of formal and informal mechanisms. Importantly, involvement must be built on mutual trust and confidence between partners. It must also retain sufficient flexibility to allow different agencies, organisations and individuals to contribute to the process at different times.

128. There is a need to ensure future co-ordination and to this end we propose that the key agencies establish a formal partnership agreement. This will involve subscription to a shared policy statement - based on the first New Town Strategy - and commitments to an agreed programme of public sector investment. The partnership would meet on a quarterly basis to review policy and projects.

129. We consider there is no requirement to create a further tier of delivery agency in the form of a separately constituted or arms length ' organisation specifically for the study area. The first New Town's relationship with other parts of the City Centre is critical and the imposition of a further agency could serve to complicate important relationships which are already in place. With the focus on management rather than intervention, there would be a limited role for a free standing partnership organisation.

130. The monitoring and evaluation framework for the strategy aims to provide a basis against which the performance of the first New Town can be measured, and the actions of the partners implementing the strategy can be evaluated. There are various monitoring baselines being discussed for the World Heritage Site and the wider framework must build on these.

131. Indicators which refer to altering resident, visitor and business perceptions will be qualitative but of equal value to the more easily obtainable quantitative indicators. Changing perceptions can achieve altered behaviour which, in turn, leads to increased economic activity. In the context of the first New Town, changing behaviour will relate to:

• a greater use of facilities

• increased numbers of visitors and visits

• business growth (turnover and diversity)

• increased rate of new firm formation or relocation

• increased developer/operator interest

• heightened awareness/civic pride

• no. of positive/negative media references placements