I think my main complaint about that is the linking of rates to sales.
No **** that rates in out of town areas is lower than those in the centre of town. I imagine it'd be similarly low for supermarkets out of towns too.
About 15 years ago, that is exactly what happened. The ‘high street’ perpetually complained they were being driven out by out of town shopping complexes/retail parks. One of the complaints was about the lower rates for out of town.
In reality it has more to do with convenience, out of town shops are bigger, have free parking outside the front door etc etc.
Now online is even more convenient and the out of town places are also suffering.