Memorandum by City of Bradford Metropolitan
District Council (MARKETS 14)
Bradford Markets Service has been working to
a five year strategy originally agreed by an all party Council
Executive in February 2003. The Council's Executive not only approved
the current markets strategy but also agreed to a capital investment
plan funded from markets surpluses. The creation of a dedicated
reserve fund generated from annual markets surpluses has to date
delivered valuable and significant capital improvements to the
These improvements have included carrying out
essential maintenance repairs and enhancements/improvements to
the buildings and the planned investment in the service's assets
has enabled significant returns to be realised. Markets overall
income levels have increased significantly over the last five
The strategy was recently reviewed and a second
strategic report for the Service is being compiled. A principle
priority of the new strategy focuses on how the Service could
add value to the regeneration aspirations of the district and,
in particular, Bradford City Centre.
Bradford Markets Service is recognised nationally
as providing and delivering major market style events such as
the Bradford International Market in 2004 and 2006 which
attracted over 650,000 visitors generating £10 million
in economic activity in the City.
I have taken the opportunity to enclose a couple
of CD's which shows a number of Market style events that we have
delivered over the last few years.
1.1 The Council's Markets provision comprises
indoor markets in Bradford, at the Oastler Centre and Kirkgate,
and Keighley; and outdoor markets at Shipley and Bingley.
1.2 The Service also operates a successful
Wholesale Market and organises local produce markets and themed
market events across the District.
1.3 The Service supports over 300 small
businesses and over 800 full and part time jobs, and provides
around 800 lettable units totalling 120,000 sq ft of
retail and wholesale floor space.
1.4 Between eight and nine million visits
are made to the three indoor markets on an annual basis.
(See Appendix A for more detailed information
on Bradford's market operations).
1.5 At its meeting of 18 February 2003,
the Council's Executive approved a five year Markets Strategy
which included approval to retain annual surpluses for reinvestment
into the Service.
1.6 In September 2003 this was enhanced,
approving the creation of a dedicated fund generated from annual
markets surpluses to be used for the future maintenance and development
work on the markets portfolio across the district. As a result,
a rolling 10 year reinvestment programme for the Markets
Service now runs alongside the revenue budget.
2. MARKETS STRATEGIC
2.1 National context
In 2007 an all party parliamentary group
accepted a national markets policy framework which stated:
"Successful markets matter in all their
forms. Whether they are wholesale, specialist, farmers', street
or covered markets, they contribute to the social, environmental
and economic well-being of the nation. They do this by:
Providing a sense of place.
Being part of the nation's cultural tradition.
Remaining an important element of the
economy, particularly in relation to independent retailing, local
employment and business start-up opportunities.
Offering local access to fresh produce
and other commodities.
Reducing environmental impacts eg by
eliminating excessive packaging/waste".
The Strategy Unit of the Cabinet Office produced
a report in July 2008 titled "Food Matter Towards a
Strategy for the 21st Century". The report was in response
to the Prime Minister asking the Strategy Unit to take forward
a project on food and food policy in the summer of 2007.
The report stated "markets can be an important
source of affordable, good quality food including fresh fruit
and vegetables. They can be significantly cheaper than supermarkets
and so provide access to good quality fresh food to those on low
The report also stated "The success of
Farmers' and specialist markets and revitalised large city markets
provide models for greater local engagement with fresh, affordable
food and highlight an opportunity to modernise or develop new
food retail markets. Cities and towns can, through their planning
policies and food strategies, support farmers' markets and traditional
The Council's "Big Plan" (Sustainable
Community Strategy for the district) highlights five priorities
to transform the district:
Regeneration of the city and towns
Improving skills at all levels
Improving education outcomes
And two cross cutting priorities
Cohesion and sustainability
Markets will play a key role in action plans
to deliver against these priorities and in the changing community
leadership role of Local Government addressing community cohesion
and neighbourhood renewal programmes.
The 2006 Government Planning Policy (PPS6)
stated that "Street and covered markets (including Farmers'
markets) can make a valuable contribution to local choice and
diversity in shopping as well as the vitality of town centres
and to the rural economy. As an integral part of the vision for
their town centres, local authorities should seek to retain and
enhance existing markets and, where appropriate, re-introduce
or create new ones. Local authorities should ensure that their
markets remain attractive and competitive by investing in their
2.2 Local context
Further to plans for the development of Broadway
and Park at the Heart the Council has recognised the need to maintain
a strong and cohesive city centre through promoting a commercially
strong, diverse and attractive area at the top of town to encourage
pedestrian movements through the centre from the Broadway development.
The Markets have a key role to play in the area
known as the Markets Quarter within the City Centre Masterplan
for which we have a local development planning framework which
identifies it as an area for mixed use development. One scenario
is that the two Bradford retail Markets will consolidate in this
area and focus on speciality products including an emphasis on
fresh produce and ethnic products and foods. The area is central
to the "World Mile" proposals continuing the ethnic
theme along White Abbey Road. A Development Brief is being prepared
in conjunction with Bradford Centre Regeneration which will look
at opportunities the area offers to create a unique regional if
not national visitor attraction and destination.
As the Westfield Broadway shopping centre makes
progress on site it is important to take forward the aspirations
for the Markets Quarter to maintain a city wide regeneration programme.
Markets also address the health and well-being
agenda through the development of new markets for regional and
local food at wholesale level, the fruit and vegetables into schools
schemes, creation of food business start ups particularly in relation
to BME communities, and at retail level ensuring local communities
have access to fresh produce.
Regarding growth in the local economy the future
of markets rests in its ability to develop small businesses and
offer less well off sections of the community (which includes
migrant groups) the opportunity to become economically active.
A key strength of the service, particularly
amongst tenants and traders, is the equality of opportunity and
fairness attributed to Council run venues and their key contribution
to the cohesion agenda. The Service generates welcoming environments
and demonstrates the strengths of a multi-community in a commercial
environment and sustains shopping venues for the less well off
in the community. In addition market style events on both a large
scale and within communities have added to a feeling of local
On environmental issues the Markets Services
has introduced a range of initiatives reducing packaging and increasing
waste recovery and recycling. The markets are significantly contributing
towards two of the Government's national indicators on climate
change NI 185 & NI 186 by identifying
means of reducing energy consumption at all of their properties
and reducing mileage travelled for business across the district.
3. SERVICE AREA
3.1 The 2003-08 Markets Strategy took
the evolving role of the Local Authority and set the commercial
world of the markets against the Council's priorities and its
long term vision.
3.2 The case for the Council providing the
Markets service was made along the lines of their ability to:
Be community builders, restoring pride
and sense of ownership in the local population.
Be a nurturing ground for small businesses
to start up and grow.
Add value to the leisure repertoire of
town and city centres and tourist locations.
Provide employment opportunities for
a wide range of local people.
Add value to the economic activity of
urban centres and be an essential link in local commercial supply
Be commercially profitable.
Be the innovators and creators of themed
events as proven mechanisms for enlivening urban centres and generating
a community "feel good" factor.
3.3 The 2003 strategy created a five
to six year plan for the markets based on reinvestment in core
business and an expansion programme into themed events across
3.4 The key areas addressed over the last
five years with some considerable degree of success are:
To provide attractive, clean and safe
shopping environments for the public, traders and tenants of Bradford.
Maintain and where possible increase
the trading surplus of the Markets Service by improving revenue
income and controlling costs by efficiency gains.
To provide suitable opportunities and
advice for the establishment and nurturing of small businesses
as well as raising the standard, variety and quality of current
To support the achievement of the Council's
Vision and Corporate Plan for the region of Bradford through an
holistic approach to the provision of a Markets Service.
3.5 Achievements from 2003 include:
March 2004Highly commended LGC
Awards Management Team of the Year category, when in Customer
August 2004Bradford International
Market Festival attracted over 600,000 visitors and was the
biggest and first event of its kind ever hosted by Bradford Council.
July 2005Achieved ISO 9001 accreditation
for operational and financial procedures.
September 2005Short listed White
Rose Awards for TourismBest Tourism Experience of the Year.
August 2006Bradford International
Market attracted over 700,000 visitors over four days (over
200,000 tourists from o/s the District) and over £10m
in local economic activity generated.
Jan 2007Commended, NABMA Market
of the Year Award.
March 2007Winner ATCM Yorkshire
Regional Award for Enhancing the Retail Offer with BIM 2006.
March 2007Bradford Markets Management
Team delivered a one day training seminar on Markets Management
Best Practice to market practitioners from across the UK.
April 2007Short listed Yorkshire
Digital Awards in business to business category for Markets Website.
May 2007Achieved ISO 14001 EMS
accreditation for Environmental Good Practice.
June 2007Winner and case study
provider, IEMA Awards for Environmental Good Practisewaste
recycling at the Wholesale Market.
June 2007IIFA Bollywood Fringe
Festival (as part of the Yorkshire IIFA Awards) attracting over
30,000 visitors and generating over £300k in local economic
June 2007Short listed SCEPTRE
Awards with Kirkgate Shopping Centre recognising environmental
best practice in Envirowise Managed Shopping Centre Scheme.
Sept 2007Short listed White Rose
Awards for Tourism Best Customer experience.
March 2008Bingley Open Market
re-launched on the new town square.
August 2008Bradford Market Service
cited as a good example of partnership working between public
and private sector in the All Parliamentary Urban Development
Group's report on "Greening UK Cities" buildings.
September 2008Invited to run a
workshop at an environmental conference hosted by the Institute
of Environmental Management and Assessment (IEMA) and DEFRA in
November 2008Short listed by the
Chartered Institute of Waste Management in its awards for Environmental
Excellence, in the category of sustainable facilities management,
specifically for the work undertaken at St James's Wholesale Market.
3.6 Over the last three to four years the
Service has responded to requests from other Authorities and has
advised and assisted in the development and delivery of themed
market events. Commissions continue to be received and support
is provided to other Authorities subject to capacity.
3.7 The Service has regularly compared its
performance with other Authorities in various benchmarking exercises.
The most recent 2007-08 model (below) indicates the balance
in Bradford of market days provided, innovative management and
effective reinvestment planning has resulted in comparatively
successful levels of shoppers visiting, occupancy levels and surpluses
2007-08 BENCHMARKINGY&H MARKET
|Visits (per 1,000 population||1,740
|Stall Days provided (per
|Rent, inc arrears||1.99%
|Investment per 1,000 population||£1,211
3.8 The Service's key performance indicators and business
drivers since 2003-04 are detailed at Appendix B.
4. FINANCIAL POSITION
In February 2003 Executive approved the current markets
strategy and approved a capital investment plan to be funded from
markets surpluses. In September 2003 Executive further resolved
that the "creation of a dedicated reserve fund generated
from annual markets surpluses be approved to be used for future
maintenance, re-investment and development work on the markets
portfolio across the district".
As a result of these decisions an investment programme has been
implemented and to date delivered valuable and significant capital
improvements to the markets facilities. These improvements have
included carrying out essential maintenance repairs and enhancements/improvements
to the buildings.
This planned investment in the service's assets has enabled significant
returns to be realised. Markets overall income levels have increased
significantly over the last five yearsalthough a note of
caution must be expressed as the economic downturn begins to impact
on the Service.
In 2006-07 the markets accounts were transferred into
the Council's general account from the trading account. From that
date the annual surpluses have been taken into the general account
to meet a budget surplus target (in 2007-08 £505k).
The amount now available for reinvestment is any variation from
this budget target and a commuted sum of £400k per annum
from the Council's trading account.
4.2 Markets Capital Investment Programme2003 to
Funding was prioritised towards the refurbishment of Keighley
Market and a phased programme of works was prepared by the Council's
external architects, Wm Saunders Partnership highlighting both
essential and enhancement works that were needed to be undertaken
to provide more modern shopping facilities.
Refurbishment works has been ongoing taken place since 2004 and
have included a new roof, entrances, lighting, heating and ventilation,
internal decoration, new fire and security systems, new electrical
supply and the installation of a ramp leading from the rear entrance
Currently a £500k market canopy is being constructed
in front of the main entrance partially funded though a successful
£220,000 application from the Local Enterprise Growth
Initiative (LEGI) funded programme.
Other areas of refurbishment that have taken place are internal
repainting and new lighting schemes at Kirkgate Market and the
installation of a new fire alarm system and roofing works at St
James Wholesale Market.
|St James Wholesale Market||11
|Oastler Shopping Centre|| 7
|| 10|| 7
|Keighley Market Hall||6
|Other Environmental Initiatives||
4.3 Markets Capital Investment Programme2009 to
Future development work envisaged for the next five years
will see the continued refurbishment of facilities at St James's
Wholesale Market, new stalls and flooring at Keighley Market,
development of Local Produce and Fine Food Festival Markets across
the district, upgrading of stalls at Shipley Open Market and major
redevelopment work at Kirkgate Market and Oastler Shopping Centre,
the latter subject to the City Centre regeneration masterplans
|St James Wholesale Market||145
|Oastler Shopping Centre||80
|Keighley Market Hall||269
|Markets Style Events Programme||100
5. CURRENT TRADING
Keighley Market continues to trade successfully attracting
in the region of 50,000 shoppers per week. The Market is
fully let and is an important addition to the town's retail offer.
Recent capital investment has helped to maintain the Market's
popularity with shoppers and traders and next year a new £500,000 extension
to the market will be built with funding of £220,000 from
the Local Enterprise Growth Initiative (LEGI) programme.
Bingley Market has recently relocated to an open air venue
on the newly constructed Town Square as part of the proposed Myrtle
Walk redevelopment. The opening event was a great success and
the market continues to be well received by local business and
residents. The market regularly attracts over 30 stalls each
market day. (three days per week)
The open market in Shipley Market Square will form an important
part of the future redevelopment of the town centre for which
a masterplan is being worked on.
St James's Wholesale Market is trading extremely well and
its 66 units are fully let. The market employs over 400 people
and it is estimated that the market generates around £40 million
in turnover and supports over 600 local and regional businesses.
Declining confidence, the levels of shop vacancies in the
city centre and the economic downturn are critical issues particularly
to both the Oastler Shopping Centre and Kirkgate Market. Worryingly
there is an increasing trend showing a reducing footfall and an
increase in unit vacancies, particularly at Kirkgate Market where
there are xxx no of vacant stalls. This market has been severely
affected by the decline in non-food sales over the last 2/3 years
and competition from major low value retailers particularly Primark
who are located in the Kirkgate Centre.
The trend of increased unit vacancies in Kirkgate Market
will continue and the long term future of the market will heed
to be addressed as part of the ongoing master plans for the City
Centre. The strategic direction for the two city centre markets
is o combine into one trading location, preferably around a remodelled
Short term actions/interventions are being undertaken by
the Council to support footfall levels and trader confidence.
However, there is a fundamental need for a proactive approach
to address the level of shop vacancies in parts of the city centre.
Discussions are ongoing regarding the future of the Morrison's
Westgate store to ensure its redevelopment contributes to aspirations
for the area. A recent survey of shoppers revealed a predicated
significant drop in footfall per year at the Oastler Centre if
the supermarket were to close.
The Markets Service has entered into a partnership with the
Council's Regeneration Department to support the Bradford Kickstart
programme. A Local Enterprise Growth Initiative (LEGI) funded
programme has made available start up units in the Oastler Shopping
Centre. The test trading opportunity will allow for the nurturing
of new businesses that may be otherwise put off by the risks/costs
of starting up a new business and will provide the first step
on the retail ladder that may allow their development into other
opportunities such as an indoor market or retail shop
The Markets Service works with new businesses providing them
with a fitted out trading unit complete with signage, point of
sale material and public liability insurance.
A local business counsellor will work closely with Market
Officers to identify and select potential new businesses and arrange
for them to commence trading. Monitoring and advice will be given
to each new business during the initial 12 week trading period,
including assistance to relocate to other market properties, where
The service sets itself high standards and has achieved ISO
9001 for its Quality Management Systems which includes recycling
initiatives in partnership with SME's, and 14001 accreditation
for its Environmental Management Systems. This year, the service
is aiming to seek accreditation in BS 18001 for Occupational
Health & Safety Management Systems.
6. MARKET STYLE
As well as delivering its core business of operating three
indoor retail venues, a wholesale market and open markets the
service also delivers market style events throughout the district.
There has been a considerable growth in speciality markets
such as Continental Markets, Christmas Markets, Farmers' Market
and specialist Food Markets throughout the UK in recent years.
The "signature" event that the Markets Service
has delivered was the Bradford International Market held over
the August bank holiday week-end in 2004 and 2006.
In 2004 a four day celebration of European style street
trading attracted over 650,000 visitors generating £10 million
in economic activity in the City.
In 2006 the International Market attracted almost a
metric mile of market stalls from across the continent and beyond
to a "traffic free" City Centre. To accommodate the
event 10 City Centre roads were closed to traffic, nine bus
stops were moved and 21 bus routes were reconfigured; the
whole of Bradford's central retail footprint was pedestrianised.
To support the introduction of this unique retail offer,
two temporary park "n" ride sites were also installed.
To complete the product a giant fun fair and over 60 hours
of world class street theatre, entertainment and music was also
commissioned for the four day event.
The event attracted over 700,000 visitors to Bradford
City Centre, with an average dwell time of around 5 hours
and was estimated again to have generated almost £10 million
in economic activity for the City.
The Service has also delivered a programme of local events
across the district which has included the following:
Ilkley Festival (markets element).
Bradford Mela (markets element).
Saltaire Festival (markets element).
Monthly Farmers' Market at Bradford City Centre and
Keighley St George's Day Market.
Bradford Classic Car Event (continental market element).
Keighley Continental Market.
Bradford Christmas Market.
The Service supports and advises on the delivery of themed
market events for other local authorities. In 2008-09 commissions
have been received from Kirklees, Rochdale, Leeds and Wakefield.
In order to build on the success of these events it is proposed
to extend the concept of food festivals across the district where
quality locally sourced foods is made available. These events
are complemented with cooking demonstrations by local, and celebrity
chefs, a model that was well received when over 20,000 people
attended the two day event in Bingley over the Easter week-end.
It is proposed the programme would be partially funded by
the markets re-investment allocation and external funding (eg;
Working Neighbourhoods Fund, RDA).