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terra inco9nita
ervaringen omtrent meervoudig ruimtegebruik Source: Frank van der Hoeven
in het buitenland

Frank van der Hoeven, Delft University of

Technology, Faculty of Architecture
Michael Loveday, City of Norwich, Heritage
Economic & Regeneration Trust (HEART)

Strategies for a vital city core

– the Norwich Approach
Major out-of-town shopping centres are still a big issue on the European planning agenda.
The potential threats to retail activities in the traditional centres are well known, but some
argue that prohibiting major out-of-town retail developments can actually damage the
competitiveness of a city or region. The English city of Norwich shows that it is perfectly possible
to develop a successful retail strategy based on the qualities of a historic city centre.

Norwich City Council has resisted retail settlements dispersed over a wide area. population (125,000) gives the impression
development on greenfield sites and has put The only sizeable towns besides Norwich are that Norwich is a small, unassuming market
considerable energy and effort into making Ipswich (at a distance of 70 km), Cambridge town. But this is misleading. In fact, Norwich
the existing centre work better. It has made (100 km) and Peterborough (125 km). is a significant regional centre with a wider
retail uses a cornerstone in an overall ‘urban Norwich itself is 190 km north-east of population (including suburbs) of about
renaissance’ approach to building a ‘liveable London, 90 minutes by train. Its position 250,000. The city serves a regional
city’. The city is now performing far better as England’s most easterly city makes it catchment area of over one million people,
than the national average. geographically, and in many respects of which 330,000 live within the captive
culturally, closer to the historic cities of core catchment. The long distances to
regional centre Europe (Bruges and Amsterdam) than to Ipswich, Cambridge, Peterborough and
Norwich is the capital of East Anglia, an English cities such as Manchester and London mean that this population is
extensive region in the east of England Liverpool. At first glance, the city seems particularly loyal. The city employs just over
characterised by relatively modest relatively modest is size. The municipal 90,000 people, half of whom work within

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Source: Frank van der Hoeven

The Royal Mall. (photo: Stefan van der Spek, TU Delft)

the old walled city, where the core retail largest food technology research facility in largest open air, six-day markets in Britain,
area is located.The shopping centre, with Europe) and the city’s international airport. and a staggering 1600 listed historic
200,000 square metres of retail space, was buildings spanning nine centuries.
ranked eighth in the Experian Retail Centre historic context
Ranking 2004 (which grades UK shopping Historically, Norwich vied for the position This historic background helps us to
locations by the size of the total floor space of England’s second city between the understand the enormous post-war
of its shops, the number of big-name Norman Conquest and the late 18th century. regeneration task the city faced. At its peak
chains and its quality independent retailers). This important national role has left the the current Norwich city centre was home to
Other facilities include nationally important city with one of the most significant 80,000 inhabitants, but just after the war
cultural facilities like the Theatre Royal, architectural resources in England and this number had fallen to only a few
the Castle Museum and the Sainsbury possibly in Europe. These include the largest thousand. Once the second largest city in
Centre for the Visual Arts. The City hosts walled centre and most complete medieval England, the city centre had become almost
the headquarters of regional media street pattern in England. Norwich has the an empty shell and its subsequent
organisations, including the BBC, Anglia largest collection of pre-reformation regeneration demanded a much larger effort
TV and regional and local radio and churches north of the Alps. The Norman than in most European cities. Moreover,
newspapers. It houses the Government’s Castle is said to be the finest secular funding constraints resulted in a crisis in
‘telematics think-tank’ (the CCTA) and a building of its generation in Europe and the conserving the City’s rich heritage, a
number of commercial companies (eg city houses one of the most important problem compounded by the pressure of
Norwich Union and Marsh). Norwich is also Norman cathedrals in Europe, the largest 500,000 vehicle movements each day and
the home of the University of East Anglia, Guildhall with the finest civic regalia the economic challenges of the 1990s as
the Norwich Research Park (including the outside London, one of the oldest and traditional industries contracted. All this Y

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brought the tensions of sustaining one of was made with transport planning since the Major stores
the country’s most important historic County Council also became the Highways Norwich started to work with anchor stores
resources while coping with the pressures Authority and the city suffered from the to improve representation and profile.
of the regional capital and the challenges constraints on local authority house building Parking facilities for the major stores were
of global economic change into sharp focus. and a general failure of the Council to improved and the city started to promote
exploit its assets to the full. This prompted food stores in and adjacent to the centre.
towards a strategic approach the Council into taking a pro-active
In the late 1960s and 1970s, Norwich was approach to addressing these problems. Out-of-town shopping
one of the nation’s ‘cutting edge’ planning The root of the approach was a series of Norwich continued to resist out-of-town
authorities. Working with an innovative, interconnecting strategies directed development and drew up a Supplementary
multi-professional department (transport, individually at specific subject areas but Planning Guidance statement with
landscape, conservation, planning) the together spanning a broad range of neighbouring authorities on goods, size of
City Council achieved notable successes, interrelated issues: retail, transportation, retail outlets and ancillary retail.
including the first pedestrianised shopping conservation and greenspace.
street in Britain (London Street, 1967). New developments
It engaged in some of the first work in retail strategy In response to pressure for out-of-town
General Improvement Areas to transform The cornerstone of the strategies was the development, a 17 hectare retail and leisure
areas of 19th century housing, and it was Retail Strategy, which over a decade before complex was developed at the Riverside site
the first authority to bring people back to the latest government guidance on retail next to the Norwich railway station, just
live in the old city. It was responsible for one planning, recognised the importance of outside the walled city. Smaller allocations

of the first comprehensive conservation sustaining the whole centre by spanning a were developed in the centre, including the
area designations under the Civic Amenities range of specific retail and other connected Castle Mall. The Castle Mall shopping centre
Act 1967. However, by the 1980s, Norwich initiatives, including the existing centre, was built in the early 1990s on the unsightly
was reaching a watershed. A number of major stores, out-of-town shopping and new 2.5 hectare site of the old cattle market in
emerging pressures combined to blunt developments. the city centre. Half of the mall is set into
innovation and progress, raising concerns a substantial part of Castle Hill, on which
about the quality of life: without remedial Existing centre the castle stands, and involved the
action, environmental quality and levels of The existing shopping areas were renewed. redevelopment of one of Norwich oldest
service provision could easily have collapsed. The city created a pedestrian priority core in streets, Timberhill. The Castle Mall, which
The shopping centre was outdated and lost the historic shopping centre and the main 35,000 square metres of retail space spread
trade to regional competitors. Pressure was shopping street was fully pedestrianised. over three levels, was built in response to
building for out-of-town retailing fuelled by Design approaches were applied to street a need for unrepresented traders and
the deregulatory attitude of the furniture and shop fronts and a pedestrian expansion of retail space in the city, and
Conservative Government. Little progress signing strategy was adopted. helped to further integrate the dispersed

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retail core. It became a catalyst for conservation strategy sought to conserve existing greenspaces and
regeneration, added shopper parking and With a third of shops occupying historic habitats, extend green areas linking existing
created new public spaces, including the buildings, there is a clear relationship spaces and to involve the community in
park gardens on top. between the retail strategy and sustaining and regenerating its green assets.
conservation. Good relationships had been The Green Plan has now been developed
transportation established with English Heritage in the through the policies of the City Plan into a
Having achieved some success with 1960s and by this time the City had a long complex strategy of green links and
persuading the Highway Authority to allow running Town Scheme programme. The corridors. The principal elements of the
further pedestrianisation, the City Council strategic approach adopted in the 1980s original Green Plan are the Riverside Walk,
pursued a range of transport initiatives, provided a more systematic approach. A the 1.6 hectare Castle Mall Park (on top of
which were implemented as the County multi-professional team of council officers the shopping centre!), the Tree Trail, the
Council moved towards a transport strategy. was brought together to drive the strategy, protection and enhancement of the Wooded
These initiatives included pedestrianisation which included a regular historic buildings Ridge, the establishment of wildlife gardens
of the historic core, accompanied by traffic condition survey and a buildings at risk and the greening of traditional streets and
calming measures where pedestrianisation programme, which identified priorities for spaces.Into the New MillenniumBeyond the
in the core areas was not feasible. action; extensive work was undertaken with year 2000, Norwich has emerged to
Subsequently Norwich introduced the first trusts to achieve partnership schemes and consolidate and develop the strong position
30 km/h traffic calming zone in the UK. The considerable progress has been made with built in the late 1990s.
Council also introduced controlled parking Living Over The Shop initiatives.
zones, with charges adjusted to favour Conservation architects were fully involved Forum
In 2001 the Forum opened. Designed by

Norwich City Council has

Michael Hopkins and Partners, the Forum is
an impressive €97 million multimedia centre

made retail uses a cornerstone containing a library, TV studio, business and

in an overall ‘urban
learning centre, visitor attractions,
restaurants and interior public spaces.

renaissance’ approach to
Visitor numbers have been considerably
higher than projected.

building a ‘liveable city’ Chapelfield

The new €480 million retail-based
The Castle Mall. Chapelfield development is due for
(photo left: Stefan van der Spek, TU Delft) completion in September 2005. Chapelfield
(photo right: Frank van der Hoeven) is the largest retail project so far, adding
another 50,000 square metres of shopping
area to the centre, including parking space
for 1000 cars. It replaces the former Nestlé
chocolate factory. The project seeks to
shoppers and visitors, and Park and Ride in traffic design schemes, innovative work redress the lack of a mix of anchor stores
facilities.This work culminated in a landmark was started with archaeologists and a facades and good sized unit shops and will
planning inquiry in 1992. In response to a painting scheme was launched with a Dutch complement the cultural and leisure
County Council proposal to complete a four- paint company. Heritage interpretation offerings of the neighbouring Forum,
lane inner ring road through the southern policies and initiatives were developed. Theatre Royal and Assembly House.
part of the medieval centre, the City Council
led a broad-based campaign of opposition, This work has progressed into a number of HEART
which resulted in the proposal being initiatives including East Anglia’s largest Additionally, a unique trust has been
dismissed by the secretaries of state. The Conservation Area Partnership Scheme and established to take control of the City
City and County Councils have since worked one of only a handful of Urban Council’s historic building stock and act as
together to produce a sustainable transport Archaeological Databases nationally. heritage regeneration master planner for
strategy for the Norwich Area, which focuses the whole City, joining up a host of small,
on alternatives to car use. In 1985, Norwich adopted the country’s first poorly resourced organisations and levering
green plan – a three-pronged strategy which in new funds. The Heritage Economic & Y

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Regeneration Trust (HEART) sees itself as an

international exemplar, using heritage as a
potent tool for urban regeneration. The
Office of the Deputy Prime Minister, in its
report on the Partners in Urban Renaissance Above: artist impression of the Chapelfield Below: the Forum en and the St Peter Mancroft
Initiative, made this comment on the work development. (source: Miller Hare) Parish Church. (photo: Stefan van der Spek, TU Delft)
in the 1990s and subsequently: ‘In many
respects Norwich has been a leader in the
Urban Renaissance in England.’

success criteria
Success is clearly a relative concept, but
a range of indicators demonstrates that
Norwich’s strategies have achieved a degree
of success in enhancing the vitality as well
as the viability of the city centre. Prime rents
in the city are now among the highest in the
country and the improvements to retailing
have elevated the city from 49th to 8th in
the league table of shopping centres in the
UK (Norwich is by no means the eighth city Norwich’s success is also reflected in an now the city has put all its energy into
in population size). impressive number of formal recognitions. making the old centre work for everyone.
The House of Commons Select Committee One can only hope it can retain that strength
At a more detailed ‘outputs’ level, on The Future of Town Centres commended without having to bow to pressures for out-of-
substantially more people use the the Norwich Retail Strategy as an example town developments or for commercialisation
pedestrian shopping area than previously, of good practice. The British Council of of the central area. Rest assured, Norwich
vacancies have fallen and have been kept at Shopping Centres awarded the Castle Mall seems to be on the right track.
a low level, the visual environment has been the accolade of Britain’s Best Shopping
greatly enhanced and uses above and below Centre. The Mall Park has also received a For reactions:
ground level have been expanded. Traffic number of awards. Norwich received a
accident numbers have fallen substantially. prestigious award of the Royal Institution of summary
The city centre’s household population has Chartered Surveyors for Green Link City Norwich, with its medieval walled city,
risen significantly, tourist numbers have 1996. The Royal Town Planning Institute is the capital of the East Anglia region of
increased, particularly during traditional honoured Norwich’s development and England and serves a catchment of more
troughs, and people’s attitudes about the planning process with the Jubilee Cup for than one million people. Following
centre have become more positive. Best Planning Achievement nationally and groundbreaking regeneration planning
the Forum received the 2003 Civic Trust in the 1960s and 1970s, the city resisted
Work already undertaken has helped to Urban Design Award. pressures for out-of-town retail
establish a good track record of innovative development in the 1980s by adopting a
practice and persuaded the Government a historic city without that theme comprehensive strategy embracing
Office of the Eastern Region to award East park feeling transport, conservation and greenspace
Anglia’s largest Single Regeneration Budget Its historic resources could make Norwich planning, with retail as cornerstone. Key
Challenge Fund settlement (€14.8 million) an important tourism destination, but elements included major retail, cultural and
and one of the highest Capital Challenge somehow the city has failed to exploit this leisure complexes in and around the historic
settlements (€5.5 million) to Norwich. The visitor potential fully. This opportunity centre, backed by pedestrianisation and
English Tourist Board’s follow-up assessment remains relatively untapped and tourists are traffic calming. A trust has been established
of the Tourism Development Action Plan a minority, while local people still shop in to use heritage as a tool for further urban
found that for every pound of the Board’s the centre. As a result, Norwich lacks the regeneration. Norwich now ranks eighth in
money contributed to that initiative, 96 theme park atmosphere that plagues many the UK league table of shopping centres and
additional pounds had been generated in historic cities in Europe. Norwich has not the city has received several planning and
the local economy. built big boxes on greenfield sites to make urban design awards. Z
an open-air museum of its centre. For decades

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