Sunderland City Centre is the commercial hub of the district.  Within Tyne and Wear it is the second largest retail and commercial centre after Newcastle, though functions relatively independently of all the main regional towns and cities.  Due to its historical links with the sea, the Centre is off-set to the east of the urban area.  It is the communications focus for Sunderland, due to its location adjacent to two bridge crossings over the river for road and rail.  The Centre has moved progressively west- and south-wards over the last two centuries, from its origins in the East End close to the river.

The City Centre Inset boundary includes not only the principal civic, business and cultural areas of the district, but also certain peripheral areas which are subject to the influence of the commercial centre by way of, for example, traffic flows and on-street parking.  The Centre’s function is complex and on a large scale, being a major employment centre (over 1,000 businesses employing over 20,000 people), a City-wide focus for shopping, service and leisure activities, whilst also having a local function in serving peripheral residential areas.  Approximately 3,500 people live within it.  The primary shopping area is compact, but accommodates over 400 shops with a total floor area of 93,000 sq.m (one million square feet).  It also encompasses over one million square feet of offices.

The Centre attracts a great deal of traffic, both private and public, but its location also requires that it must allow for a substantial amount of through traffic.  The Inner Ring Road and Eastern Relief Road enable extraneous through traffic (i.e. that having no destination within the Centre) to be diverted away from the central core.  The City Centre is the focal point of the local public transport network.  A high proportion of passengers travelling to and from the City utilise buses (most services currently focusing on the Central and Park Lane bus stations).  A significant proportion travel by train; Sunderland station, which is conveniently located adjacent to the main shopping area, provides direct links to Newcastle-Middlesbrough.  In terms of transportation in the City Centre, the planning problems are largely concerned with the need to reconcile those remaining conflicts between various land uses, traffic and pedestrian movement, in such a way as to enhance the developing functions and create an improved physical environment.

The Inset covers a slightly modified area of the Sunderland Town Centre Local Plan (TCLP), adopted in November 1989.  The Plan’s general strategy and most proposals are thus still relevant for the period of the UDP.  The aim of the strategy is to make the City Centre:-

• A vital and attractive place for both residents and visitors;
• A viable and competitive retail centre;
• A vibrant social and cultural centre;
• A visually interesting place with a high quality, safe environment.

However if the City Centre is to prosper it must become more attractive to shoppers, traders and investors.  In summary, the proposals aim to achieve the following objectives:-

• improving employment prospects for businesses requiring the locational advantage of the City Centre, by promoting new office and commercial developments, to enhance the continued development as the secondary centre in the Tyne and Wear conurbation;
• promoting the continued viability of industry and warehousing requiring City Centre locations;
• the encouragement of special residential developments above commercial uses, in mixed use schemes and on the periphery;
• balancing the south-westerly movement of the City centre by encouraging the regeneration of the north-east sector through promoting sites for commercial development, undertaking environmental improvements providing enhanced pedestrian linkages and supporting the re-use and refurbishment of property;
• the enhancement of its shopping role in the hierarchy of the Tyne and Wear conurbation, by extending and improving shopping facilities;
• improving social, cultural and leisure facilities, including the consolidation of the Chester Road Campus of Sunderland University;
• improving the overall environment;
• protecting and enhancing the areas of historic character;
• giving greater emphasis to the needs of pedestrians by removing extraneous traffic in the main shopping streets, whilst providing good quality access for both public and private transport;
• improving the quality and accessibility of car parking facilities.

Proposals of the Local Plan and Draft Plan which have been implemented have been excluded, as also have policies which are now adequately covered by more general City-wide and Part 1 Policies.  It should be noted that the Inset boundary is a nominal area within which City Centre matters are considered, rather than a policy area; proposals for key town centre uses will be considered in terms of the five policy areas (offices, shopping, leisure, environment and parking) defined on the Proposals Map rather than the more broadly based Inset boundary.

Sites 1,3,5,6 and 8 were proposed in the Town Centre Local Plan for uses largely similar to those now proposed.  Sites in the central core may also incorporate associated leisure use, also single person/specialist housing, on upper floors; however at ground floor level shopping should predominate.

The development of the Green Terrace/ Crowtree Road Site (1) is a particular priority of the Council.  Shopping will be the predominant use, possibly in the form of a large multi-level department store along with smaller shop units of various sizes.  Professional offices (A2) would be acceptable in limited numbers as could food outlets (A3).  A multi-storey car park is to be included as part of the scheme.  Depending on the final configuration of the overall redevelopment scheme, some adjoining streets may have to be closed to traffic and this could have significant implications for vehicular circulation in the central area.  Due to its proximity to the adjacent Bishopwearmouth conservation area, particular consideration will be needed to ensure that any scheme reflects its sensitive setting.

Subject to its relocation, the site of the Central Bus Station (2) could be redeveloped for shopping.  This will assist in the consolidation of the western part of the Bridges, and could incorporate a pedestrian link to the proposed shopping development on Green Terrace/ Crowtree Road outlined above.  Food and drink (A3) uses could be included as part of this development, though only on a limited basis; the aim being to provide a variety of eating and drinking establishments but in a dispersed manner to avoid the loss of the essential retail character and appearance.

Due to its location adjacent to the main shopping area and bus corridor, the site South of Holmeside (3) is considered particularly suitable for shopping uses and would assist in consolidating the retail function at this point (possibly in conjunction with the site at Burdon Road).  However, its good public transport links means that it would be particularly appropriate to include a significant element of office/business use in the overall development.  The introduction of food and drink and leisure uses would be complimentary to those forming part of the ‘leisure quarter’ concept at the Empire theatre.

The site proposed at Burdon Road (4) is, at the time of adoption, in use as railway sidings.  It is considered that an ‘airspace’ development similar to that at Signal House opposite could be constructed in this location.  It would form a natural extension to the shopping core consolidating the retail function of this location and could be linked with the Holmeside site (2).  Subject to structural constraints, offices and leisure uses could be appropriate to any upper floors.  A2 offices and food and drink (A3) uses could also feature as part of the scheme.  The provision of appropriate access will be considered in relation to the possibility of a Park Lane/ Holmeside service link road.  The design will be particularly important in this prominent location adjacent Mowbray Park and the Central Conservation Area.

The Eden Street (6) site adjacent to the Empire Theatre is suitable for the development of leisure/ arts related uses as well as commerce, primarily office related.  Leisure is an important element in the life of the City Centre and in recent years there has been a growing concentration of facilities in this ‘leisure quarter’ around the Empire Theatre and Crowtree Leisure Centre.  The proposed uses could develop this leisure and cultural character; further consideration is being given to the development of an auditorium on part of the site.  Car parking (probably multi-storey) will be included for all developments which would help to replace lost surface spaces.  Due to its prominent location in the Bishopwearmouth Conservation Area and adjacent to major transport routes, any development will have to be to the highest standards of design.

In its 1998 condition the Park Lane Bus Station (7) is unattractive, detracting from the improvements the Council has carried out in Park Lane and the surrounding area.  At the same time however, it provides an important transport terminus, which will become a particularly important transport interchange with construction of a Metro Station on the south part of the site.  (See SA87)  Its redevelopment would therefore both improve the appearance and function of the facility for travellers.  An element of retailing in the form of small shops and A3 uses catering for the needs of travellers could be included as part of any scheme.

The sites at Lambton Street (8), West Wear Street (10) and Russell Street (11) will contribute to the regeneration of the north-east sector of the City Centre, assisting with its integration into the shopping core and offsetting the overall south-west commercial ‘drift’.  These sites are well related to the Eastern Relief Route, therefore enjoy good access to the strategic route network.  Due to their prominent position adjacent to the Wearmouth Bridge and the River corridor, any schemes involving the former Edward Thompson building or the Russell Street site will require a particularly high standard of design.  Specialist housing (e.g. student or single/ two person accommodation) could be included as part of the redevelopment of the sites.  A hotel could be an appropriate use on the West Wear Street site - any design would need to reflect its important position.  Due to their location outside the Inner Ring Road, general retailing is not likely to be acceptable on sites (10) and (11), though bulky goods stores, well-designed and with adequate access and parking could be acceptable

The location of the Hope Street (9) site adjacent to the Inland Revenue offices and the University means that it would be particularly suitable for office or research and development uses (B1).  However the site could also be suitable for housing development due to its proximity to similar use at Gilhurst Grange.

The Town Centre Local Plan envisaged development of new shopping and office floorspace to meet potential growth in all the above sectors, helping the Centre consolidate its second position in Tyne and Wear.  The levels of development foreseen and growth to date can be seen in Table 19.8.  The Draft UDP showed that shopping development between 1978 and 1991 somewhat lagged behind TCLP projections, whilst office growth, due largely to the recent private sector developments for the Inland Revenue, had been greater than anticipated.  The floorspace potential of the Bridges extension could provide a more “balanced” situation.

It is envisaged that the development of these sites will be carried out utilising private finance.  The larger schemes will be expected to incorporate social facilities such as crèches, public toilets etc.  Also their design should be mindful of energy efficient forms and construction (see Development Control Guidance).  Particular regard is required to securing visual quality in all the development schemes using appropriate, high quality materials befitting their prominent City Centre (and in some cases conservation area) setting.

*  From Town Centre Local Plan (1989)

Sites 1,3,5,6 and 8 were proposed in the Town Centre Local Plan for uses largely similar to those now proposed.  Sites in the central core may also incorporate associated leisure use, also single person/specialist housing, on upper floors; however at ground floor level shopping should predominate.

The development of the Green Terrace/ Crowtree Road Site (1) is a particular priority of the Council.  Shopping will be the predominant use, possibly in the form of a large multi-level department store along with smaller shop units of various sizes.  Professional offices (A2) would be acceptable in limited numbers as could food outlets (A3).  A multi-storey car park is to be included as part of the scheme.  Depending on the final configuration of the overall redevelopment scheme, some adjoining streets may have to be closed to traffic and this could have significant implications for vehicular circulation in the central area.  Due to its proximity to the adjacent Bishopwearmouth conservation area, particular consideration will be needed to ensure that any scheme reflects its sensitive setting.

Subject to its relocation, the site of the Central Bus Station (2) could be redeveloped for shopping.  This will assist in the consolidation of the western part of the Bridges, and could incorporate a pedestrian link to the proposed shopping development on Green Terrace/ Crowtree Road outlined above.  Food and drink (A3) uses could be included as part of this development, though only on a limited basis; the aim being to provide a variety of eating and drinking establishments but in a dispersed manner to avoid the loss of the essential retail character and appearance.

Due to its location adjacent to the main shopping area and bus corridor, the site South of Holmeside (3) is considered particularly suitable for shopping uses and would assist in consolidating the retail function at this point (possibly in conjunction with the site at Burdon Road).  However, its good public transport links means that it would be particularly appropriate to include a significant element of office/business use in the overall development.  The introduction of food and drink and leisure uses would be complimentary to those forming part of the ‘leisure quarter’ concept at the Empire theatre.

The site proposed at Burdon Road (4) is, at the time of adoption, in use as railway sidings.  It is considered that an ‘airspace’ development similar to that at Signal House opposite could be constructed in this location.  It would form a natural extension to the shopping core consolidating the retail function of this location and could be linked with the Holmeside site (2).  Subject to structural constraints, offices and leisure uses could be appropriate to any upper floors.  A2 offices and food and drink (A3) uses could also feature as part of the scheme.  The provision of appropriate access will be considered in relation to the possibility of a Park Lane/ Holmeside service link road.  The design will be particularly important in this prominent location adjacent Mowbray Park and the Central Conservation Area.

The site at Low Row (5) has been developed as a public car park.  It has also been incorporated within the expanded Bishopwearmouth Conversation Area.  Low Row has been closed in part to traffic and pedestrianised.  Future development will thus have to be to the very highest standards; total floorspace may be limited to three floors due to the need to take account of the attractive views of St. Michael’s Parish Church.  Due to the proximity of the site to the University, the adjacent leisure quarter at the Empire and the Inner Ring Road (which provides good transport links), it is considered that the development of a hotel could be an appropriate alternative to offices.

In its 1998 condition the Park Lane Bus Station (7) is unattractive, detracting from the improvements the Council has carried out in Park Lane and the surrounding area.  At the same time however, it provides an important transport terminus, which will become a particularly important transport interchange with construction of a Metro Station on the south part of the site.  (See SA87)  Its redevelopment would therefore both improve the appearance and function of the facility for travellers.  An element of retailing in the form of small shops and A3 uses catering for the needs of travellers could be included as part of any scheme.

*  From Town Centre Local Plan (1989)

It is considered that this area, located at a gateway to the City Centre and prominent in views from across the River Wear, particularly from the Stadium site, has major regeneration, environmental and employment potential and presents new strategic opportunities.  In particular the redevelopment of the site presents an opportunity to accommodate uses (e.g. leisure) which, due to their scale and function, could not be developed in the heart of the City Centre, but which would be complementary to activities (existing and proposed) for the Centre.  Notably, the leisure uses could build on the emerging ‘leisure quarter’ centred on the nearby Empire Theatre.

The Regional Health Authority declared the Royal Infirmary surplus to its requirements in late 1995.  The building is now vacant.  It is considered that the redevelopment of the site (some 1.5ha) offers an opportunity to secure a positive new use in this location.

The areas in which business, industrial and warehouse developments will be acceptable comprise those at the eastern industrial area (Nile Street and Villiers Street) and north of Livingstone Road/ St. Mary’s Way.  These are the main areas of such activity in the City Centre.  The establishment of other areas for industrial-related uses is not necessary as such uses would compete with others more appropriate to the City Centre.  Furthermore other sites and premises for non-City Centre related storage/ industrial use are available nearby e.g. Hendon.  Outside these areas, planning applications for industry or warehouse developments will normally only be favourably entertained where they will not have a detrimental effect upon surrounding areas.  These comprise small scale developments of an unobtrusive nature and extensions to existing industrial uses within the confines of present sites which are satisfactorily located.  All applications for planning permission for industrial and warehouse developments will need to conform with other proposals of the Plan.

Vaux Brewery is one of the major employers in the City and has consolidated its use on land north of St. Mary’s Way.  Whilst the development of the brewery has resulted in the enclosure of the complex, an alternative route for pedestrians has been provided around the perimeter of the site (SA93).  The prominent nature of the complex, atop the escarpment, means that it is visible for some distance along the river corridor, particularly from the high level bridges.  Further development in the complex will be carefully controlled so as to ensure a high standard of appearance which complements that obtained in recent developments such as the adjacent St. Mary’s Way car park.

Situated at the focus of the local transport network, the City Centre is well located as a hub for commerce; furthermore many of the City’s best residential areas are situated close by, where a high proportion of residents are employed within the banking, finance, government and business service sector.  The area proposed for financial and professional office and appropriate business uses includes the main shopping and office locations.  It is within the Ring Route, so minimising the need for customers, workers and others to cross, thereby ensuring easy and safe access to offices as well as other City Centre facilities.  It can be made even more accessible by the creation of attractive direct links leading to the primary shopping areas e.g. The Bridges.

• listed buildings deter potential developers who are concerned about incurring high maintenance costs;
• the perpetuation of architectural styles can involve developers in increased costs;
• buildings having small plots, in relation to their overall size, may make individual projects difficult to fund on a speculative basis;
• blocks may often be in multiple-ownership;
• access difficulties for service vehicles are common, together with limited space for car parking; and
• the cost of conversion increases considerably over time, due to the physical deterioration of properties which stand vacant.

It is necessary to control the location of professional and service offices, in order to ensure that they take place within the area defined in SA60 (for the reasons stated and to avoid problems in respect of amenity of adjacent or residential properties).  In the light of there being sufficient centrally-located sites to cater for the anticipated increase in office floorspace, it is considered unnecessary and indeed undesirable, from the point of view of pedestrian movement, for major new developments to locate in the area outside the Ring Route, with the exceptions referred to.  Furthermore, the exclusions referred to in (i) and (ii) above will allow for the continuation of existing businesses, whilst limiting their impact on the environment and amenity of neighbouring uses; especially where in close proximity to residential accommodation.

For a number of reasons - its location at the hub of the local transport network, its historic character, its range of attractive buildings - the City Centre is a particular focus of tourist activity.  Tourism can play a significant role in the regeneration of the City’s economy, therefore it is important to maximise the potential of those facilities which attract visitors.  This will be achieved by supporting or undertaking initiatives to maintain or enhance facilities and their settings by utilising Central Government grants.  Funding may also be available from the Single Regeneration Budget or National Lottery/ Arts Council sources.

There is a shortage of accommodation in the City Centre for middle aged/ older persons and the disabled.  There is furthermore a need to retain and increase the number of small units suitable for single persons or childless couples, notably to serve the needs of University students.  Such accommodation is of benefit particularly to the low paid; it could provide ease of access to work or college, to City Centre facilities and to the focus of the public transport system.  Additional residents will also strengthen life in the Central area outside the normal working day, possibly leading to more evening opening of some services.  The environment of the City Centre, lacking open space or gardens, mitigates generally against the encouragement of family housing though larger ‘windfall’ sites could be considered for limited family accommodation on the south and west peripheral locations.  Around 1998 housing associations and - to a limited extent - the private sector are seen as the main implementing agencies.

Sites for new housing are proposed at two locations; Cresswell Villas and Egerton Street.  Due to their inner locations, higher densities of development could be acceptable on these sites (40 units to the hectare average).  In all cases, the design, layout and amenity considerations relating to these schemes will need to comply with the guidelines in the Development Control Guidance.

Implementation will primarily be through the development control process, though single flats above shops are now permitted development (General Permitted Development Order 1995).  Financial assistance may also be available in the form of grants towards residential accommodation over business/ commercial uses.  New dwellings on vacant sites or open space land will be subject to Proposal SA68, which tries to maximise environmental/open space enhancement.

Despite recent internal improvements, the environment of some of the terraced twilight housing areas in the City Centre is generally poor, few having more than a minimal front garden.  It is characteristically drab as a result of the lack of greenery in combination with an often poor external appearance.  It is made less attractive by excessive amounts of traffic, on-street parking, small vacant sites and the incidence of a few incompatible uses.  These City Centre housing areas adjoin, and are similar in nature to, larger areas referred to in Proposal SA10; likewise in these localities, the Council will seek to maximise benefits in the form of additional open areas and community facilities (e.g. facilities for the disabled, crèches) from sites to be redeveloped or substantially renewed.

One of the primary objectives is to improve the environment of the functional areas, such as housing.  Certain housing locations however suffer from a wide set of problems relating not only to the environment, but to social aspects and the quality of dwellings themselves: many are in an apparently poor physical condition, exhibiting a low standard of maintenance, lacking modern facilities (central heating), a significant number being in multiple occupation.  Priority for environmental improvement will be given to such areas.  Consideration of the need to take comprehensive action on these areas will be considered in relation to wider priorities for area-improvements, particularly in regard to the investigation of Housing Renewal Areas. 

The necessary finance will be bid for through the City Council’s Housing Investment Programme, priorities being dependent on monies available.  External and internal improvements to the private rented housing in the Argyle Square/ Azalea Terrace area are being funded by means of grant assistance through the Approved Landlords Partnership Scheme (ALPS) which was approved by members in February 1994.

The principal shopping area has been defined in order to consolidate the City Centre retail function, whilst retaining its compactness.  Certain sections of the boundary are clearly demarcated as barriers to pedestrian movement e.g. the Inner Ring Road and railway cuttings.  Those streets to the north and east of the primary core are included as one of a number of measures seeking to halt the decline in the retail/commercial function of this locality.  The influx of shops into Low Row and Green Terrace on a large scale is considered inappropriate by virtue of the type and scale of the property and its inclusion in the Bishopwearmouth Conservation Area.  Similarly Mary Street has been excluded as general retailing could require major alterations to frontages in a block of architectural and historical interest.  Park Lane Bus Station and the railway airspace south of Holmeside have been included in view of the interest expressed by their owners.  However, the southern section of John Street and the area to the east, i.e. in the Central Conservation Area, are not considered appropriate for more than a marginal introduction of general retail uses (see SA63) associated with conserving premises.

Within the defined area not all sites identified as having development potential are considered suitable, as this could lead to over-provision and inadequate scope for other uses.  (See SA54)  Extensions to existing shops will normally be permitted as will the development of new or replacement shops.  The location of major additional shopping developments has been controlled, in order to ensure it takes place within the central part of the retail area.  This does not preclude the establishment of retail use on a limited scale as part of mixed use developments.  The location of certain larger retail developments, specified above, however, do merit exemption.  In particular, the site requirements of ‘bulky goods’ outlets e.g. DIY stores, garden centres, builders merchants, together with the amount and type of traffic which they generate, are generally such as to make them inappropriate in the principal shopping area, but more appropriate on fringe locations where suitable access and parking can be provided.

One of the City Centre’s main strengths is the compactness of its retail area.  It is essential that retail facilities in the City Centre remain concentrated, thus ensuring the provision of a convenient and accessible shopping service.  If unregulated there is a risk that the introduction of other uses, such as those within Use Class A2 (banks, building societies, estate agents) and A3 (cafes and restaurants) will reduce the potential for shopping uses and therefore weaken the retail function.

Central Government guidance (PPG6 - 1993) states that variety and activity are essential elements in a town centre and that local authorities “should therefore encourage diversification of uses in the town centre as a whole”.  Importantly, PPG6 also states that “local branches of banks and other financial institutions... can be well located in town centres, but should not be allowed to dominate primary shopping areas in a way that undermines the retail function.”

In this context the City Council commissioned a consultant’s study into the matter of non-retail uses in the City Centre.  This examined a number of important indicators of vitality and viability including rental levels, pedestrian flows, retail demand and levels of vacancy.  This policy is based on the findings of this study.  (Although PPG6 was subsequently revised , it still refers to problems being caused by “concentrations of single uses” which cumulatively can cause a loss in retail outlets).  Overall it is considered that a combination of strict controls in a “prime” shopping area, coupled with greater flexibility in other areas is the most appropriate way to maximise the overall strength and vitality of the centre as a whole.  The City Centre has therefore been divided into three distinct areas:-

• Prime Shopping Area - Comprises the covered malls of The Bridges as well as High Street West and Union Street/ Market Square.  It is where chain stores, department stores, national multiple and most local multiples are located; it exhibits relatively high rental levels, high pedestrian flows and below average vacancy rates.  It is considered that the predominantly retail nature of this area should be retained and enhanced; it is important that the ‘core’ remains strong if the overall vitality and viability of the centre as a whole is to remain healthy.
• Main Shopping Area - Comprises Blandford Street and part of Waterloo Place/ Athenaeum Street.  This area is considered to be in a period of transition following completion of its pedestrian and environmental improvements; efforts will be taken to seek to sustain its predominantly retail character.
• St. Thomas Street Area - St. Thomas Street provides a strong pedestrian link between The Bridges and the Joplings department store - more so in the light of the current pedestrianisation scheme for the western part of the street.  In order to maintain shopping interest it is considered that no additional non-retail uses should be allowed.