LUTON

Town Centre Masterplan STAGE 1: BASELINE ANALYSIS REPORTJULY 2020

D E L I V E R I N G C H A N G E

1 WHY WE NEED A MASTERPLAN 7

2 EMERGING THEMES 15

3 LUTON TODAY 25

4 LUTON’S PAST 61

5 THE NATURAL ENVIRONMENT 81

6 THE BUILT ENVIRONMENT 107

7 MOVING AROUND 137

8 THE PROPERTY MARKET 155

9 PREPARING FOR THE FUTURE 171

10 UNDERSTANDING WHAT COMMUNITIES NEED 175

11 LOOKING BEYOND 2040 189

12 EMERGING VISION 202

Contents

PROJECT TEAM

Avison Young

Allies and Morrison Urban Practitioners

Urban Flow

Greengage

LUTOND E L I V E R I N G C H A N G E

INTRODUCTION

All photographs have been taken by the project team, unless stated otherwise in the caption. The license for photos on p. 16 and 19 is found here: https://creativecommons.org/licenses/by-nd/2.0/legalcode

No modifications to the material have been made.

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Introduction

Luton Town Centre Masterplan

Luton Borough Council has commissioned a team led by Avison Young and Allies and Morrison Urban Practitioners to prepare a masterplan for Luton Town Centre. The masterplan will comprise an updated Development Framework and Delivery Plan, and will guide how the town centre changes over the next 20 to 30 years.

The Council has played a proactive role in realising many of the ambitions and aspirations which were set out in the original Town Centre Development Framework (2004), and the Masterplan will build on this to set the framework for the decades to come.

This document is the first output from the early stages of work on the study. It is a baseline study which provides a detailed assessment of Luton Town Centre and the immediate hinterland areas with a view to establishing an evidence base to inform a set of principles and priorities for the masterplan which will evolve through an engaging and rich dialogue with the council, local community and stakeholders.

The masterplan presents an exciting opportunity to explore a thoughtful and locally specific response to the issues affecting high streets and town centres across the country, and to embrace the assets and roles which make the town centre such a key positive feature for Luton and its many communities.

The Promise by Mark Titchner and Jonathan Barnbrook in the Luton’s Hat District

This report was produced before the Covid-19 pandemic and the government’s lockdown measures. The masterplanning team is reflecting on and responding to the impacts Covid-19 has had on the town centre, with the aim that the masterplan will assist with the town centre’s recovery in both the short and long term as more data becomes available. This is set out in more detail in the Appendix.

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1 Why we need a masterplan

View to east from Luton railway station (towards Power Court)

Purpose of the study

A new vision for Luton Town Centre

1.1 Luton town centre is at an important juncture in its story. Deciding on its future direction and path necessitates a position with good perspective. The most successful and enduring town centre frameworks and masterplans are informed by a wide frame of reference - one that fully appreciates the challenges of the now, but that also looks back into a place’s history and has an objective eye on the future.

Context

1.2 A framework for the town centre cannot solely look within the town centre boundary. The starting point has to be a wider understanding of the town itself and how the town sits within its context. The physical and economic connections at this wider scale will be important factors in the town centre’s success, as will an understanding of the varied local communities that inhabit this hinterland and their needs and demands on a town centre.

1.3 This wider perspective applies also to policy and strategy. The centre has benefited from a clear framework over the past 15 years. The new vision must pick up from this programme of work and dare to think differently, providing a fresh, but well-informed approach.

Looking back and forwards

1.4 A vision and framework needs to be strongly informed by a place’s history. Primarily to ensure the threads of the town’s historic development that have been enduring assets and underpin the physical ‘bone structure’ of

the town are picked up and continued. But also to learn from the past, to avoid previous mistakes. Recognising the inherent flexibility and adaptability demonstrated by the oldest parts of the centre informs more resilient future development.

1.5 The knowledge and experience of local people and stakeholders is an important resource and insight into understanding how the centre is really experienced today. The centre’s performance can be measured from a desktop, but it is the day-to-day experience of users that gives a more nuanced understanding of where the real changes are needed. Specifically, the masterplan must help make a positive difference to the lives of children and young people in Luton. Their role in shaping the masterplan is key to its success.

1.6 We cannot predict the future, but we can strengthen our perspective by understanding current and possible trends and the potential directions these may take - whether to do with how we move around and access town centres or how we might spend our time.

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vision, plan and framework in place to steer change.

Why now?

1.7 High streets and town centres are facing multiple challenges and Luton is no different. It therefore needs to adapt thoughtfully to ensure it stays relevant and vibrant in the future. The existing Town Centre Development Framework has come to the end of its life and new sites are starting to come forward that will significantly alter the town centre’s role. The masterplan will help to ensure development that comes forward is right for Luton and contributes to the overall vision for the town centre.

1.8 In addition the Council has been establishing its strategy and priorities at a borough level. This work has culminated in two key commitments which are particularly relevant to the town centre. First a commitment to eradicate poverty in the borough by 2040, and secondly the declaration of a climate emergency and a target to achieve net zero carbon by 2040.

1.9 The time is therefore right to review the future direction of the town centre and set a realistic

View south into the town centre from Luton railway station (with Hat District in foreground and Arndale House and Mall in the background)

View to north west from Luton railway station (showing the busway and interchange)

Report scope

1.10 This baseline report provides the initial evidence base for the masterplan project. It seeks to identify the issues the masterplan must address and the opportunities that might shape the centre’s future direction.

1.11 The report is structured under the following headings:

• Emerging themes• Luton Today• Luton’s Past• The natural environment• The built environment• Moving around• The property market• Preparing for the future• Understanding what communities need• Looking beyond 2040• Emerging vision

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Figure 1.1: Image caption

Figure 1.2: (Above) Rail travel time from Luton analysis illustrates how accessible Luton is from LondonFigure 1.3: (Below) Extent of Luton’s urban area and council boundary highlights the growth of the town to the north and west and the adjacency of Dunstable and Houghton Regis to west

Town centre

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Houghton Regis

Luton Borough Council boundary

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Strategic connections

1.12 Luton occupies an enviable but also challenging position. It boasts a fast connection to London – from the town centre to St Pancras is only 23mins, as well as fast international connections via London Luton Airport – in just 70mins you can be in Amsterdam. Infrastructure has been a big theme for the town generally and the town centre over its history of growth.

1.13 Together, the M1, the Thameslink rail line, and London Luton Airport provide high speed connections to and from the town.

1.14 In terms of economic strategy Luton has scope to benefit from the Oxford-Cambridge Arc and the investment associated with this area. This includes Luton DART (Direct Air-Rail Transit), scheduled to open in 2021, and which will speed travellers from Luton

Luton Railway Station is located within the town centre and provides high speed links north and south of the town

Parkway to the terminal of the airport in under four minutes.

1.15 For the town centre, the completed ring road now distributes vehicular traffic around the central area, removing much of the traffic movement from the core of the town centre. The Luton Dunstable Busway now provides fast bus access into the town centre from Dunstable and the west of the town (and from the airport to the east). The Thameslink rail line provides rail access into the town centre via Leagrave station.

1.16 The town centre masterplan must make the best of Luton’s strategic connections for the benefit of the whole town. Opportunities to enhance access to the town centre will help support increased use of the town centre and attract new investment and businesses.

Local authorities forming part of the Oxford-Cambridge Arc which strategically reaches down to Luton

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Masterplan study area boundary

1.17 There is no hard and fast boundary for the town centre masterplan. For the analysis we have used the ring road as a functional boundary as this contains all that most stakeholders would associate with the town

Figure 1.4: Plan showing the core study area for the masterplan and a wider zone of interest and analysis

centre. However, we have also looked one or two blocks out from the ring road. This zone is seeing significant change and is most immediately affected by the ring road itself.

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Bird’s eye view across the town centre looking south

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