Town Centre Regeneration: How Does it Work & What can be Achieved?

7 KEY FINDINGS & RECOMMENDATIONS

7.1 This chapter summarises the important learning points from the study and highlights the research team's recommendations. The draft findings were discussed at a workshop in late April 2011.

7.2 In total there are ten learning points from the study. They are set out as follows:

1 Town centre regeneration is particularly complex and there is a need for whole town strategies;
2 Town centre scale, distinctiveness and context matter;
3 Town centre regeneration needs more than just physical investment;
4 Town centre regeneration requires a shared clear vision, strategy and action plan;
5 Effective and coordinated delivery is essential;
6 Acknowledge the role of small/medium sized town centre businesses and the emerging potential of community ownership of assets in town centres;
7 Improve town centre regeneration project planning: developing results chains and applying Theories of Change;
8 Improve town centre health check assessments and ensure more effective monitoring;
9 Identify and address the limitations of the effective evaluation of town centre regeneration;
10 Address limitations in evaluation by developing and applying Theories of Change early in the project planning process and

7.3 Emerging conclusions on TCRF as a tool for delivering town centre regeneration are outlined in the conclusions.

1) Complex Concept & Whole Town Strategies

7.4 Town centre regeneration is a complex concept that deals with many interrelated and multidimensional issues and challenges that are not easily solved. The literature review and consultations acknowledged that historically there has been a focus on retail-led town centre regeneration. Consultees felt that this may be at the expense of the wider and more diverse role played by town centres.

7.5 There is also a growing recognition that a more integrated, connected and holistic approach to town centre regeneration is needed. This approach takes account of the town centre's distinctive role sometimes as 'the heart of local communities' and an important location for service, cultural, community, leisure and employment functions. This requires a more corporate approach by local authorities, the active involvement of town centre businesses and local communities.

7.6 The whole town approach is an emerging concept which seeks a full range of physical, social, economic and environmental interventions across the wider town rather than just in the town centre. This is valid, as each town creates the place and market conditions for its town centre's success (or failure). On the other hand, for town centres such a broad approach could lead to an even more diffuse spread of scarce resources. This broader approach inevitably increases the level of complexity and so will also require more rigorous project development that identifies clear results chains which link project activities and outputs directly to their anticipated outcomes. (See Sections 7.42-7.45)

7.7 The research team also recognises that the whole town approach is relevant and indeed the case study research (See TCRF Case Studies report) includes contextual reviews of each town as well analysis of its town centre. Here, the research team conclude that integrated town centre regeneration strategies should be nested within whole town strategies.

2) Town Centre Scale, Distinctiveness & Context

7.8 Clearly, very dramatic changes have affected Scotland's town centres and high streets over the last thirty years. Covered shopping centres, out of town retail and outlet centres and the growth of powerful retail chains operating from large premises have had a significant impact. Traditional town centres face stiff competition from established out of town centres as they struggle to face the challenges posed by the current economic recovery and look to the future.

7.9 Now in the twenty-first century the transition to a low carbon economy, higher quality urban design aspirations, the knowledge economy, new consumer markets, transport connectivity, internet shopping and different demographic patterns are driving change. These drivers present real challenges and opportunities to town centre regeneration, but this has often to be set within a ' polycentric network of centres': individual town centres and high streets do not function in isolation. There was a strong view in the consultations that successful town centre regeneration needed to focus on the distinctiveness of the town centre. This included, for example, strengthening the identity of the place and improving the independent retail and visitor offer. Clearly, town centre regeneration interventions need to recognise the scale of the town centre.

7.10 It was also clear from the nine case studies that the spatial boundaries and to some degree the 'centre of gravity' of the town centres had all changed to a greater or lesser extent and were continuing to evolve. In some cases the consequence was increasing proportions of vacant property on the edge of the town centre and a trend of reducing the floorspace in retail use. Placemaking, planning and regeneration policies need to recognise this trend and in some cases encourage changes out of retail use (Class 1) into business (Class 4) and residential (Class 9) ^[6].

3) More than Physical Investment

7.11 The literature review highlighted that traditional approaches to town centre regeneration have tended to focus on physical interventions. These can take many forms including public realm investment; acquisition and development of buildings and sites; and installing site services. The TCRF projects are also heavily biased towards physical interventions.

7.12 These physical investments are often justified in terms of acting as a stimulus for further investment in the retail sector or creating the conditions for future commercial and residential investment. Often it is claimed that these types of projects will bring wider economic benefits including the retention of retail spend, the attraction of new visitors and spend into an area or improving perceptions of the place, for visitors and for residents.

7.13 The experience of the case study projects has highlighted a number of issues with this approach:

• Physical investments are largely supply side interventions - this is the case in a number of the case study projects. There is no guarantee that this future activity will take place - and often there is a need for further interventions to ensure that it does ;
• There is a lack of critical thinking about the relationship between the physical intervention and the economic and social benefits it expects to bring. There is little consideration or differentiation between physical projects regarding the timing of benefits that will flow from physical investments;
• Given the wide ranging roles that town centres play and the range of challenges that they face there appears to be a strong case for considering a wider range of interventions as having the potential to contribute to improved performance in a town centre. These could include interventions focused on business growth, business start up, place marketing and community development to support physical interventions. The projects also need to seek to ensure that potential economic benefits from physical investment are captured locally.

4) Need for a Shared Town Centre Vision, Strategy and Action Plan

7.14 The requirement in successful town centre regeneration for a considered forward project planning process that leads to a shared vision with a clear strategy and action plan of projects and programmes emerged strongly from consultations and case studies. These components, however, are often loosely defined and their effectiveness is difficult to prove. Case studies like Barrhead, Govan, Elgin, Kirkintilloch and Jedburgh had a strong strategic regeneration policy context that was often already in place. (See TCRF Case Studies report).

7.15 In these case studies there was a clear TCRF project fit with the regeneration policy context and the specific town centre was identified as a clear priority by political leaders.

7.16 The case studies highlighted the need for a mechanism for interested town centre stakeholders to meet as a group to progress and agree a town centre vision. The stakeholders include a range of interested public, private and third sector organisations. This process is unlikely to happen without external 'cross agency' support to encourage the skills and energy and build capacity in the town centre community and some resourcing to help deliver initiatives.

7.17 Evidence highlighted the need, in some cases, for the emerging town centre regeneration action plan in the short term to focus on a smaller number of priority actions in order to concentrate resources and investment rather than spreading efforts too thinly.

5) Effective & Coordinated Delivery

7.18 Partnerships loomed large in the case studies and some ( e.g. Elgin, Kirkcaldy, Barrhead and Govan) were clearer regarding roles and responsibilities than others. There is a need, however, to critically examine the effectiveness of the partnership over a longer period, regularly ask if it is still required and if the partnership needs to be refreshed.

7.19 The complexity of interventions in town centres means that it is essential to ensure this coordinated delivery across various local authority departments and to work closely with town centre businesses, owners and residents: for example, 'Team Stromness' was established by Orkney Islands Council to assist in coordination and delivery of the town centre regeneration projects.

7.20 Evidence from the consultations and the case studies also highlighted the importance of being specific about what individual partnerships actually deliver and therefore there is a need for more clarity on roles and responsibilities. In some cases this might mean that a single agency contribution rather than joint delivery may be more effective at delivering a particular outcome but this must be clearly articulated. The key challenge here is for individual partners to actually deliver their particular contribution well.

7.21 What is essential for successful town centre regeneration is a strong civic leader and a project champion to prioritise the town centre over a longer period ( e.g. 4+ years). Evidence from the consultations and some of the case studies is that the project champion can initiate and sustain confidence in the vision and maintain momentum on the delivery of action plan.

6) Importance of Small/Medium Businesses & Potential of Community Ownership of Assets

7.22 In Scottish town centres more attention needs to be focussed on small and medium size independent businesses. The case studies highlighted the limited knowledge and data that was available on the businesses that would be affected by particular town centre regeneration projects. Standard retail data does not cover small town centres and independent businesses. The research also identified some good practice examples of new business development initiatives targeted at start up and small town centre businesses, namely 'Retail Rocks' and Scottish Borders Council's new One-to-One Retail Business Support.

7.23 Community-led initiatives to take ownership of iconic and often listed town centre buildings at below market value as community assets are also starting to emerge and will need to be evaluated in due course. These aim to play a catalytic role in successful town centre regeneration by initiating third sector businesses, bringing new economic uses into redundant but important buildings in the local townscape and generating civic pride. This trend of community ownership of some town centre buildings is likely to continue in the future with the public sector looking to divest of a variety of different types of property in a range of town centres. It is still early, but community-led initiatives could in some cases produce positive town centre regeneration outcomes. This is in line with the integrated town centre approach highlighted above. (See Sections 7.4 -7.7)

7.24 In the next few years more could be done to assist communities to explore the feasibility of the community owning and operating these kinds of assets. Local authorities and the public sector need to take a more strategic view in prioritising asset transfer in town centres and assisting communities where demand exists. Communities will need assistance from agencies like the Development Trusts Association to raise awareness, assess risks, quantify benefits, provide appropriate training and to disseminate emerging good practice examples.

7.25 Overall it is also vital to acknowledge that town centre regeneration is a long term process and patience is needed. This is increasingly difficultly given the emphasis on physical interventions and the traditionally short term property perspectives. Investing in business development, business start up and social capital may be as important as the physical investment. The complexity of integrated town centre regeneration and the lack of an explanation of links between activities and longer term anticipated outcomes, however, mean that this is difficult to prove and often not understood.

7) Improving TCR Project Planning: Developing Results Chains and Applying Theories of Change

7.26 The literature review highlighted limitations in the planning of town centre regeneration projects generally. The survey, typology development and the case studies confirmed that these limitations also existed within the TCRF projects. The main limitations are that TCR programmes rarely use results chains which link their activities and outputs (the things they deliver) directly to their anticipated outcomes (the changes in the wider social and economic groups or local environments that they seek to achieve).

7.27 Added to this, activities tend not to be described in detail nor specify whose behaviour they are targeted at changing. The outcomes that are listed often lack clarity in terms of when they are expected to be delivered or the type and level of change that will be achieved ( e.g. increased tourists or residents and percentage change in visits or spend).

7.28There is a need for a fresh and more thorough approach to planning of town centre interventions. This will involve applying critical appraisal tools at the project development stage and subjecting these draft plans to critical examination.

7.29 The Scottish Government and other funders of town centre regeneration have a role to play in achieving this change. There should be a clear requirement to demonstrate the use of tools such as logic models and planning frameworks like Re-Aim (See Chapter 6) as part of funding applications. These tools should then be used to critique submitted proposals where feasible and provide constructive guidance to the most promising projects to encourage the development of well specified results chains prior to funding.

7.30 Future TCR programmes should as a consequence have outcome focused plans that have clear prospective results chains that link activities and outputs via short and interim outcomes to long term outcomes. These results chains would provide more details of planned activities and who they are targeted at as well as more clarity over the intended outcomes (and timelines and thresholds for these).

8) Improving Approaches to Town Centre Health Check Assessment & Monitoring

7.31 The research has confirmed that the approaches to monitoring the health of town centres vary considerably across the case study towns. The experience of the Scottish Government Town Centre and High Street Learning Network and the research team's survey of local authorities confirms that this is an issue that is shared beyond the TCRF projects and case study towns.

7.32 The study has confirmed some of the reasons why this inconsistency exists and why monitoring the health of town centres can be difficult:

• There is no one agreed way of carrying out town centre health checks. This is partly a function of the varying roles that different town centres play - no one-size fits all - but also the result of different public and commercial organisations developing and selling different approaches to health check assessment.
• Data availability for routine monitoring is often limited. Much of the public data that could be used to track performance in a town centre over time ( e.g. employment or population data) is not available and/or not robust for small areas. The availability of commercial data usually has cost implications and is also limited for smaller town centres.
• This means that monitoring of town centre health and performance often relies on primary research including the use of surveys and raises issues around gathering only essential data particularly in an 'era of austerity' as well as the need for a consistent approach to town centre health check assessments. Primary research and survey evidence is expensive and has staff resource and skills implications.

7.33 The research team would recommend that agreement is reached in conjunction with town centre interest groups on a 'must-have minimum set' of routinely collected data that should be monitored to assess town centre health and performance. This assessment should include measures that move beyond a narrow retail focus to also include employment and other town centre uses and should be based as far as possible on readily available data.

7.34Some investment and support will need to be put in place to ensure that these data sets are available for the smallest centres. This could take the form of working with data providers to improve availability and robustness, or establishing consistent protocols for local data collection. Examples of indicators include employment levels, vacancy rates, occupancy by type of business, resident/visitor/business perception and footfall at key locations within town centres.

7.35 It is important that the development of a simplified, but comprehensive set of data indicators for town centre health assessment is not seen as 'dumbing-down'. The research team recognise that some town centres will want to go further than the core indicators. Where this is the case they could be supplemented by a set of discretionary indicators that could be used in larger centres, or where additional evidence is needed.

7.36Improving the consistency of town centre health check assessment between town centres and over time would bring a number of benefits for more effective evaluation of town centre regeneration activity.

• It would allow individual towns to develop useful baselines which would contribute to assessing the effect of town centre regeneration projects over time;
• It would allow comparison of the performance of different town centres within local authority areas and assist in the identification of priorities;
• It could assist future TCRF case study work and longitudinal research by providing a basis for developing meaningful comparisons between similar types of towns in different parts of the country.

9) Effective Evaluation of Town Centre Regeneration: Limitations

7.37 The literature review, consultations and case studies highlighted some significant weaknesses in approaches to the evaluation (rather than simply monitoring) of town centre regeneration projects. Some of the factors that contribute to this have been highlighted above, including the lack of consistent baselines and monitoring of routinely available data against which to judge project progress, and a lack of critical thinking at the project development and appraisal stages.

7.38 The lack of detailed results chains and in particular the poor specification of outcomes (in terms of timelines and thresholds) makes evaluation of TCR projects problematic. Routine data such as health checks tends to provide learning about interim or longer term change. Often, this learning is only available beyond the policy or funding period. When it is available within appropriate time frames it may still be difficult to illustrate that any changes that have occurred are as a direct result of the TCR activities that have been delivered ( e.g. attribution of the changes in outcomes to the programme).

7.39 In order to improve the ability to measure the impact of TCR programmes on outcomes (effectiveness) there is a need to be able to provide monitoring data on programme implementation (process data on numbers and quality of activities and outputs and uptake of services) and to link this to both routine monitoring and evaluation data on outcomes. Given this, projects will require some primary data collection to address their key evaluation questions.

7.40 Impact evaluations (that judge effectiveness) link process data to outcome data to show that the changes found can be attributed in some degree to the programme activities. Impact evaluations must also take cognisance of other possible explanations for the changes in outcomes that have occurred in considering the likely contribution of the project. Integrating this data helps to address questions about how and why changes in outcomes have occurred as well as whether they have. Where feasible and appropriately resourced, comparison areas, sites or projects might feature as part of the evaluation design.

7.41 A key message from the initial consultations with case study projects was that the short timescale for the development of TCRF applications and the short period for the delivery of projects mitigated against the development of comprehensive monitoring and evaluation plans. (See TCRF Case Studies report). It would appear though that with some notable exceptions ( e.g. Barrhead: see Chapter 6) the passage of 18 months since the awarding of funding has not led to significant improvements in approaches to evaluation.

7.42 An additional explanation for the weaknesses in evaluation may lie in the limited skills base in terms of evaluation in the town centre regeneration sector. This, in some respects, should not be surprising: the multi-disciplinary nature of town centre regeneration means that it draws on a range of generalist skills.

10) Addressing These Limitations in Evaluation: Applying Theory of Change

7.43 Theories of Change is an approach to evaluation which aims to enhance project planning, to help build monitoring and evaluation frameworks and to improve attribution (confidence that the changes in outcomes found are a result of the programme activities). It uses tools such as logic models to support planning (or where evaluators are not involved at the planning stage to understand the programme that is/has been delivered). The logic models are seen as a representation of the programmes' theories or results chains. These results chains are critiqued by evaluators to check whether they are plausible (based on evidence or logic), doable (programmes have sufficient resources time and skilled staff to deliver it) and expressed in a way that makes them evaluable (outcomes have timescales, thresholds and indicators that can be evaluated). This learning is used to identify key evaluation questions and to develop appropriate designs, methods and measurement tools. An example of how this is done is illustrated in Chapter 6.

7.44 Theories of Change has much to offer TCR and this has been reinforced by the work with the case studies. Applying the approach or even some of its tools and thinking can help address many of the planning and evaluation problems highlighted above.

7.45 Elements of this approach were applied in this research to develop draft template theories of change for TCR programmes. These templates (and in particular the public realm model) were used by some of the case study areas to improve the detail of their activities and to map out short and interim outcomes which were absent from their initial plans. These models were also used by some case studies to support them in identifying project specific evaluation questions and measures. These improvements to the models should help to strengthen the earlier monitoring and evaluation plans to some extent in these case study areas.

7.46 There is scope to encourage further use through advocacy and/or training in how to apply these tools or this approach with practitioners within wider TCR programmes and also local elected members. This would build evaluative thinking into programmes at the planning stage which should enhance both programme delivery and future monitoring and evaluation. This approach is likely to take some time and would require to be accommodated in an extended programme for 'challenge fund' type bids. More significant use of the tools, however, is likely to require funders to make greater demands for plans and monitoring and evaluation frameworks informed by results chains. In addition, the skills and capabilities of practitioners will need to be developed so they can respond to these demands.

TCRF as a Tool for Delivering Effective Town Centre Regeneration

7.47 The consultations and the case studies have demonstrated that the 2009/10 TCRF programme has generated more confidence in specific town centres and mobilised local business groups. The tight bidding and delivery timescales meant that in most cases this was achieved by the funding accelerating the actual delivery of schemes that were already worked up with stakeholder buy in and the necessary 'in principle' approvals in place. On the other hand, this meant that in some of the case studies, projects that had been 'just talk' did become real and tangible. As a result, implementation on the ground had a clear impact on business and resident confidence as demonstrated by perception surveys in, for example, Govan and Barrhead. In Barrhead and Govan this had given partners the confidence to start to consider exploring BID status as a way of maintaining momentum. In Elgin the case study consultation suggested that the successful execution of the Elgin TCRF project has enhanced the reputation of the newly formed Elgin BID and it is now acknowledged that the BID can have a positive impact on the town centre.

7.48 The weaknesses of the 2009/10 TCRF programme included the short timescale for bids/delivery; capital only eligibility criteria; competitive bidding arrangements that were sometimes inefficient; the lack of consistent baselines and the lack of detailed results chains at the early project planning stage, in particular, the poor specification of outcomes that makes evaluation problematic. (See Sections 7.36 -7.41 above)

7.49 Looking forward, were a programme like TCRF to be repeated then this research (the case studies in particular) have highlighted the need for town centre regeneration practitioners to learn to use Theories of Change as part of the project planning process and to follow through on monitoring and evaluation. Scottish Government and funders need to commission programmes and projects that include Theories of Change that they would like tested. It will also be essential to ensure that project planning, monitoring and evaluation are emphasised more strongly in future programmes.

TABLE 7.1: LEARNING POINTS:

KEY FINDINGS & RECOMMENDATIONS: SUMMARY

Issue: Learning Point	Finding	Final Report Reference	Recommendation: Responsibility
1. Complex Concept & Town Centre Regeneration Strategies Should Be Integrated and Sit Within Whole Town Strategies	Town centre regeneration is complex. It deals with interrelated and multi-dimensional issues that are not easily analysed or solved, and furthermore are driven by the wider economic and other factors associated with the town (and for some larger towns the sub-region). An integrated/holistic approach is required across local authority functions, businesses and communities and beyond just physical (typically retail) projects. Need to focus on services, cultural, civic, community and visitor assets. Town centre strategies should sit within whole town strategies.	Chapter 3 and Case Studies	Ensure town centre regeneration strategies sit within whole town strategies. Continue to disseminate good practice on successful integrated/holistic approaches. Scottish Government Local Authorities A+DS
2. Recognise Scale & Distinctiveness of Town Centre: In A Changing Wider Context	Twenty-first century drivers like the transition to a low carbon economy, higher quality urban design aspirations, the knowledge economy and the internet present real challenges and opportunities to town centre regeneration. It is essential to identify the particular distinctive features of the town centre. Town centres have evolved and will continue to change to take account of structural economic change and there are clear implications for town centre regeneration.	Chapter 4 and Case Studies	Continue to disseminate good practice In the medium term look to identify 'model types' of town centre Local Authorities Scottish Government
3. Town Centre Regeneration Needs More Than Physical Investment	Traditional approaches to town centre regeneration focus on physical interventions. The TCRF has followed this path. Physical investment is often justified in terms of it stimulating demand for further investment, protecting retail, attracting visitors and developing civic pride. There is a clear case for considering other types of intervention alongside physical investment, including measures to directly support businesses, stimulate business growth, attracting visitors or encourage pride in the town centre.	Chapter 3/ 4 and Case Studies	Develop more detailed appraisal criteria to articulate links between physical investment and other town centre regeneration activity. Critically appraise emerging town centre projects against these criteria. Scottish Government A+DS Funders like Heritage Lottery Fund & Business Improvement Districts Scotland RICS/ RTPI
4. Need A Clear Shared Vision, Strategy & Action Plan	In most cases successful town centre regeneration requires a clear vision, strategy & action plan to provide a strategic fit for project interventions. These terms are often loosely defined and therefore more difficult to monitor and evaluate particularly in the absence of the use of Theories of Change.	Chapter 4 and case studies	Continue to disseminate good practice Scottish Government Funders like Heritage Lottery Fund & Business Improvement Districts Scotland
5. Partnership Is Not An Outcome: Effective & Coordinated Delivery Is Essential	Delivering projects in town centres requires coordination with partners and within local authorities. Partnerships are common place but need more clarity on roles and responsibilities. Resources are often committed over timescales that are too short for realistic change in town centres. Need civic leaders/project champions to prioritise town centres over a longer period to initiate confidence in vision, strategy and delivery of action plan.	Chapter 4 and case studies	Continue to disseminate good practice Scottish Government Local Authorities Improvement Service
6. Importance of Small/Medium Businesses & Potential Of Community Ownership of Assets	The case studies highlighted the limited knowledge and data that was available on the small/medium businesses that would be affected by particular town centre regeneration projects. Only in very few examples were one on one discussions undertaken with local and often independent businesses. Community-led initiatives to take ownership of iconic and often listed town centre buildings at below market value as community assets are starting to emerge and will need to be evaluated in due course.	Chapter 4 and case studies	Disseminate good practice Evaluate new and emerging interventions to test hypotheses. Scottish Government Business Improvement Districts Scotland Development Trusts Association Scotland Local Authorities
7. Improving TCR Project Planning: In Most Cases No Clear 'Results Chain' Has Been Identified	The research highlighted limitations in project planning within town centre regeneration/ TCRF interventions. These include a lack of results chains which link activities and outputs (the things they deliver) directly to their anticipated outcomes (the changes environments and ultimately people). Activities tend not to be described in detail nor specify whose behaviour they are targeted at and outcomes often lack timescales or thresholds (the type and level of change that will be achieved). A fresh and more thorough approach to planning of interventions is needed. This would also help address many of the limitations in monitoring & evaluation detailed in learning points 8, 9 & 10 below. Logic models should be employed to develop a prospective results chain (theory of change). This would provide more details of planned activities and targets as well as more clarity over intended outcomes and thresholds.	Chapter 5/ 6 and Case Studies	Needs application of appraisal skills at the projects development stage, prior to the funding stage. Commissioners should encourage the use of tools such as Logic Models to develop detailed results chains in funding submissions. These tools enhance planning, support the development of monitoring and evaluation frameworks and aid attribution. The commissioning process where feasible should critique early plans and provide feedback to promising projects on how to strengthen their results chains and improve monitoring and evaluation plans. Scottish Government Funders like Heritage Lottery Fund & Business Improvement Districts Scotland
8. Improving Approaches to Town Centre Health Check Assessment and Monitoring	The research has confirmed that there is a lack of consistency in approaches to monitor the health of town centres. There is often inconsistency across local authority areas and only rarely can meaningful comparisons be made between different town centres in different parts of the country. While monitoring town centre health is challenging, improving approaches and developing consistency is crucially important. Without it, it is difficult to make evidence based judgements on prioritising need, nor is it easy to make judgements on the success of projects.	Chapter 5 and Case Studies	Provide guidance to town centres on the key indicators that should be monitored 'as a minimum' to assess town centre performance Examine how Government collected routine data relevant to town centres can be made more available, timely and robust at small area levels Provide training and support to town centre managers on delivering effective health checks. Scottish Government Improvement Service Business Improvement Districts Scotland Local Authorities
9. Effective Evaluation Of Town Centre Projects: Limitations	The evaluation base around the effectiveness of town centre regeneration is poorly developed. There is a lack of critical longitudinal evidence on the difference that town centre regeneration can make. In addition, evaluation within the TCRF projects was not seen as a priority. This is partly related to the lack of time to fully develop projects/result chains, but is also a result of a lack of evaluation skills in the sector. These are serious issues which will continue to undermine the town centre regeneration sector if not addressed.	Chapters 5/ 6 and Case Studies	There is a need to develop critical evaluation and appraisal skills within the regeneration sector. This could be done by accessing corporate resource within local authorities, or by developing sectoral expertise through e.g. the Improvement Service and evaluation specialists Local Authorities Improvement Service Evaluation Specialists
10. Addressing Limitations In Evaluation: Applying Theories of Change	To demonstrate the impact of town centre regeneration programmes on outcomes (effectiveness) there is a need to be able to provide monitoring data on programme implementation (process) and to link this to both routine monitoring and evaluation data on outcomes. For most programmes, routine monitoring data alone will not be sufficient to show changes in either short or interim outcomes; especially those which are unique or particular to certain types of programmes. It is likely that projects will require some primary data collection to address their key evaluation questions and to improve attribution. Theories of Change is an approach to evaluation which aims to enhance project planning, to help build monitoring and evaluation frameworks and to improve attribution (confidence that the changes in outcomes found are a result of the programme activities). A Theories of Change approach has much to offer town centre regeneration. Several case studies perceived the approach as adding value to their monitoring and evaluation plans and for future project development.	Chapter 6 and Case Studies	Applying the Theories of Change approach or even some of its tools and thinking can help address many of the planning and evaluation problems highlighted above. These approaches should potentially be included in the training and support programmes referred to above. Scottish Government Improvement Service Business Improvement Districts Scotland Local Authorities
TCRF As A Tool For Delivering Town Centre Regeneration	TCRF was an important intervention in generating confidence and mobilising business groups in town centres. The tight bidding and delivery timescales meant that In most cases this was achieved by the funding accelerating the actual delivery of schemes that were already worked up with stakeholder buy in and the necessary 'in principle' approvals in place. On the other hand, this meant that in some of the case studies, projects that had been 'just talk' did become real and tangible and implementation on the ground had a clear impact on business and resident confidence. The weaknesses of the 2009/10 TCRF programme included the short timescale for bids/delivery; capital only eligibility criteria; competitive bidding arrangements that were sometimes inefficient; the lack of consistent baselines and the lack of detailed results chains at the early project planning stage.	Chapters 6/ 7 and case studies	If a programme like TCRF is to be repeated then there is need for town centre regeneration practitioners to learn to use Theories of Change as part of the project planning process and to follow through on monitoring and evaluation. Scottish Government and funders need to commission projects with the Theories of Change that they wish tested in mind. Scottish Government Funders like Heritage Lottery Fund & Business Improvement Districts Scotland