Caerphilly County Borough Council

5. Retailing and Town Centres

OBJECTIVES

To maintain, enhance, and develop a hierarchy of shopping centres which meet the needs of all sections of the population. (aim 3)

To maintain the vitality, viability and character of the County Borough's town centres for the benefit of the community. (aims 1 and 2)

To increase the proportion of residents' retail expenditure spent in the County Borough by encouraging retail growth in the defined retail centres, and by encouraging new retail development on specific sites within or adjacent to the defined retail centres. (aims 1 and 3)

To ensure that out of town retail developments do not undermine the vitality and viability of the existing town centres. (aim 1)

To encourage, where appropriate, the provision of new local facilities to serve communities where they are deficient. (aim 2)

POLICIES

Shopping is an essential community facility and an increasingly important source of employment. The UDP aims to improve shopping provision in the County Borough by maintaining and enhancing existing shopping centres.

INTRODUCTION

5.1

The retail employment sector provides about 3,900 jobs in the County Borough. Shopping is both an essential activity in everyday life and also a growing leisure-time pursuit. As a result, the quality of shopping provision in retail centres makes a major contribution to people's perception of the quality of urban life generally. Several new large foodstores have been attracted to the County Borough in recent years, which are helping to improve and maintain the viability and vitality of the major towns. However, the recent general trend towards larger retail units, both in out-of-centre locations and in the larger town centres, has contributed to the reduction of shops in the smaller local centres.

5.2

This chapter includes the specific policies by which retail applications will be determined. The policies deal with all uses normally found in a shopping centre including services such as hairdressers and building societies. The Proposals Map identifies boundaries for the main retail centres and also identifies land for retail uses where appropriate.

National Policy Background

5.3

The main objectives identified in National Planning Policy Guidance are:

to sustain and enhance the vitality, attractiveness and viability of town and district centres;
to focus development, especially retail and leisure development, in locations where the proximity of businesses facilitates competition from which all consumers are able to benefit and maximises the opportunity to use means of transport other than the car;
to ensure availability of a wide range of shops, employment, services and facilities in both urban and rural areas to which people have easy access by a choice of means of transport; and
to maintain an efficient, competitive and innovative retail sector.

5.4

Planning Policy Wales (March 2002), expects Development Plans to initially consider the need for new retail development, and then to provide a clear strategy for development and for the future of town centres. The guidance also encourages the development of town centre strategies to sustain and enhance the vitality, viability and attractiveness of town and district centres, focusing development in locations where competing businesses facilitate competition and result in an efficient and innovative retail centre.

5.5

The new Planning Guidance identifies town centres as the preferred location for retail development, before other types of location in a stated order of preference. This process of site selection, by which the most acceptable location for new retail development is established, is called the "sequential approach". Adopting a sequential approach means that first preference should be given in the following order:

a town centre location
an edge-of-centre site
an out-of-centre site, provided it is accessible by a choice of means of transport

Thus, in all proposals for large-scale retail development, the onus will be placed on the developer to demonstrate that there is no other more suitable site available. In addition, such proposals will also be assessed against the likely impact on vitality and viability of existing centres, the likely effect on travel patterns, level of car use and the availability of different travel means.

5.6

The Council's retail strategy has followed the sequential approach. The process has been applied in the search for the Plan's retail site allocations and it will be applied to the determination of future retail development proposals as appropriate.

(See paragraphs 5.12 - 5.18 below)

Future Demand

5.7

Projections made indicate that over the plan period there will be growth in all categories of retail expenditure, but it will be particularly substantial in durable goods. The latest URPI ii estimate anticipates rises in UK retail expenditure between 1996 and 2011 of approximately 6% for convenience goods and approximately 76% for durable goods. These figures are based on an average of the long and the ultra long term trends contained in URPI 'Information Brief 98/2'.

5.8

The Borough Council, and its predecessor authorities, commissioned shopper attitude surveys in 1994, 1997 and 2000, which showed that there is a high level of sufficiency in the County Borough for food shopping with about 73% of residents doing their main food shopping within the boundary. Nevertheless, retail forecasts predict that if shopping patterns were to remain unchanged, residents would be spending in the order of £35 million to £40 million (1990 prices) on food purchases in stores outside the County Borough every year by 2011. However, even more significantly, the shopper survey has shown that there is a massive outflow of expenditure on comparison goods, such as clothing and footwear, and furniture and carpets. Again, if shopping patterns were to remain unchanged, residents would be spending in the order of £340 million to £350 million (1990 prices) on comparison goods purchases in stores outside the County Borough every year by 2011 (the public attitude survey found that only 27% of residents shop at centres within the boundary for comparison goods).

5.9

The public attitude surveys found that residents viewed the larger shopping centres outside the County Borough as more attractive destinations than those within the County Borough, mainly because of the better choice of shops. The surveys highlighted the relatively poor shopping provision in the County Borough and the indifferent image of some of its main shopping centres in relation to the competition. There was significant new retail provision in Caerphilly town centre between the 1994 and the 1997 surveys, and the later findings demonstrated an increase in custom at Caerphilly shops as a result. Therefore, the survey findings generally support the Plan's retail strategy of substantially increasing shopping provision in each of the six main town centres.

5.10

Therefore, there is a need to plan for substantial new retail floorspace both to provide for growth and to retain more of the County Borough's expenditure within the local economy. This would create more employment within the County Borough and also be in the interests of sustainability, as it would mean much shorter shopping trips for at least some of the households who currently travel outside the County Borough to do their comparison goods shopping.

Recent Provision and Permissions

5.11

Since the beginning of the plan period, the following large retail developments have come forward in town centres or on sites allocated in the UDP. The south-western part of the County Borough has benefited from the Castle Court development in Caerphilly town centre, which includes a Safeway superstore and 5,300 sq. m. of net comparison goods floorspace in 32 units. The Tesco superstore at Ystrad Mynach and an Asda superstore (Proposal R3(2)), which has recently been built in Blackwood, will together improve the quality of provision for food shopping in the Mid Valley Growth Corridor. Six large retail units have also been built in Blackwood in association with the Asda store, and a Lidl foodstore has opened in the centre of Risca / Pontymister (Proposal R3(5)). There is outline consent for retail warehouse units in a proposed warehouse park south of Blackwood town centre (Proposal R4(1)) where an illustrative layout proposed 9,900 sq. m (107,000 sq. feet) of gross floorspace. A B&Q store has opened at Crossways retail warehouse park in Caerphilly, and on the same retail park there is consent for a further 7,840 sq. m (83,400 sq. feet) of gross retail warehouse floorspace (Proposal R4(2)).

RETAIL STRATEGY

Magnitude of the Shopping Centres

5.12

Although it has the fifth highest population of the Council areas in Wales, Caerphilly County Borough does not contain any higher order shopping centres. There are no regional centres like Newport, nor even sub-regional centres like Merthyr or Pontypridd. Instead there are a large number of smaller centres serving a widely distributed population. Consequently, a large proportion of the resident population's retail expenditure is spent during shopping trips outside the County Borough.

Strategy Objectives

5.13

Therefore, the principle aim of the County Borough's retail strategy is to retain a much higher proportion of the population's expenditure in shops in the County Borough itself, in order to:

Create more service sector jobs in the County Borough;
Reduce the number and length of shopping trips, particularly those made outside the County Borough;
Increase the viability of the County Borough's existing main shopping centres.

Anchor Store Sites

5.14

Although the strategy seeks to upgrade the existing centres, they will still be of a size where their principal anchor stores will be convenience foodstores, rather than department stores, as is the case in higher order centres. Nor will they be able to achieve a size where they can rely totally on the public transport system, rather than access by private cars. Therefore, the Plan allocates sites for new anchor foodstores in those main town centres which are considered deficient. These sites have been selected on the basis of the sequential test as described in Planning Policy Wales (March 2002).

5.15

Because of geographical constraints it has proved possible to allocate sites for major convenience stores only in Caerphilly (Safeway), Ystrad Mynach (Tesco) and Blackwood (Asda). In Bargoed and Newbridge, sites have been identified for much smaller 'discount' foodstores, which nevertheless could greatly increase the proportion of the local population drawn to those centres. A similar small site in Risca / Pontymister has already been developed for Lidl.

Out-of-Centre Sites

5.16

Because historically shopping centres in the County Borough have been quite small, it is recognised that they cannot accommodate sufficient new retail floorspace within their boundaries to fully achieve the aim of the retail strategy. Therefore, comprehensive, but complementary, retail warehouse parks are proposed - one each in Caerphilly and Blackwood. These have been selected in accordance with the sequential test. Neither town centre has a suitable site within it. In Blackwood, an edge of centre site has been identified and allocated, and in Caerphilly, an out of centre site, accessible by a choice of transport modes, has been allocated.

5.17

While the retail strategy recognises that the town centres alone cannot provide fully for the retail needs of the resident population, it is determined that out-of- centre retail proposals should be:

Complementary to existing town centre provision;
Large, but very limited in number, to promote ease of comparison between competing stores, and the provision of associated facilities; and
Well planned, with good visual cohesion, attractiveness, and accessibility.

Town Centre Action Plans

5.18

In order to implement the strategy objectives, Town Centre Action Plans are being prepared for five of the largest retail centres to ensure that their viability and vitality are improved for the benefit of the County Borough's residents. These action plans will complement the retail policy framework by promoting pro-active improvements by both the public and private sectors. They will seek to integrate new and older shopping developments with an improved transportation infrastructure and major improvements to the physical environment.

POLICIES

Retail Centre Hierarchy

Note

Policy 1R, the strategic policy which identifies the Retail Centre Hierarchy and promotes support and enhancement of those centres, can be found in Part I of the UDP above. It is repeated here for convenience only so that the following supporting text is set in its context.

PART 1 POLICY

RETAIL CENTRES WILL BE SUPPORTED AND ENHANCED, BASED ON THEIR ROLE WITHIN THE FOLLOWING RETAILING HIERARCHY:

SUB-REGIONAL TOWN CENTRES;

DISTRICT TOWN CENTRES;

LOCAL CENTRES

(Objective 1)

5.19

This Policy establishes the hierarchy of retail centres in the County Borough. It proposes two sub-regional town centres, four district town centres, and fifteen local centres. The local centres comprise the larger of the traditional urban village shopping centres, and are listed in Appendix 6 after the plans of the main retail centres. There is also newer provision in suburban locations, such as foodstores of under 1,000 sq. m floorspace, serving neighbourhood needs. In addition, there are even smaller groups of shops and single neighbourhood stores.

5.20

Beyond this described hierarchy there are a number of existing large stores in locations outside identifiable centres. Their contribution to retail provision is recognised but their locations are not supportive of the defined retail centres in the way that national planning guidance now requires.

Definition of the Retail Hierarchy

THE HIERARCHY OF MAIN RETAIL CENTRES IS DEFINED AS FOLLOWS AND BOUNDARIES ARE IDENTIFIED ON THE PROPOSALS MAP:

SUB-REGIONAL TOWN CENTRES:

BLACKWOOD

CAERPHILLY

DISTRICT TOWN CENTRES:

(Objective 1)

5.21

The main thrust of the retail strategy is to expand overall retail provision in the County Borough through the growth of high quality shopping centres which retain the best existing features combined with provision for new shopping investments and environmental enhancement. Therefore, policies seek to focus retail developments within existing shopping centres and defined edge of centre locations to accommodate specific types of stores.

5.22

Blackwood in the Area of Growth and Caerphilly in the Area of Consolidation, are by far the largest centres in terms of retail floorspace, being an order of magnitude greater than the remaining centres. It may be argued that these two retail centres have not developed sufficiently yet to have reached sub-regional town centre status. They are expected to achieve this status during the plan period as a result of the proposed retail developments represented by the Plan allocations.

5.23

Caerphilly town centre has recently experienced significant new retail development, and therefore the aim here is geared more to maintaining this improvement in its status, viability and vitality. Substantial opportunities exist for new retail development at Crossways retail warehouse park and possibilities exist for redevelopment in parts of the "old" town centre.

5.24

Blackwood, located within the A472 growth corridor, has potential to accommodate significant further retail development which is consistent with the retail strategy. The implementation of these proposals will also contribute to its planned status as a sub regional centre. Retail Policies have been formulated to protect the proposed roles of Blackwood and Caerphilly. Within these two centres three defined primary areas are identified where the retail function is protected even further.

5.25

The "district town centres" at Bargoed, Newbridge and Ystrad Mynach in the Area of Growth, and Risca / Pontymister in the Area of Consolidation, are similarly an order of magnitude greater than the local centres iii. Whilst Bargoed is the largest of these centres, there is little opportunity for new development because of shortage of suitable land, and therefore the policies seek to maintain its important retail role within the locality. The other three centres are under pressure from larger neighbouring retail centres, and existing "out-of-centre" retail developments, and therefore retail policies are aimed at protecting and enhancing their retail vitality and viability.

5.26

The boundaries of the six main retail centres in the defined hierarchy are shown on the Proposals Map. These six boundaries are also shown on larger scale plans in Appendix 6.

Retail Centre Enhancement

ENHANCEMENT OF THE INFRASTRUCTURE, AMENITY AND ENVIRONMENT OF TOWN, DISTRICT AND LOCAL CENTRES, BY MEANS OF APPROPRIATE REDEVELOPMENT, REFURBISHMENT OR ENVIRONMENTAL IMPROVEMENT SCHEMES, WILL BE FAVOURED, PROVIDED A TOWN CENTRE ACTION PLAN IS NOT UNDERMINED

(Objective 1)

5.27

This Policy develops one of the aims of the retail strategy and Policy R1. It is the Plan context for the Town Centre Action Plans and for future enhancement proposals in the defined retail centres. These proposals would include enhancing the amenity and environment of town centres, through the introduction of measures such as pedestrianisation, urban design, landscaping, provision of public open space.

New Retail Development Sites

A TOTAL OF 8.6 HECTARES OF LAND IS ALLOCATED FOR RETAIL DEVELOPMENT IN THE FOLLOWING LOCATIONS:

		Ha	Brownfield
1	SOUTHERN CAR PARK, BARGOED	0.5	YES
2	NORTH BLACKWOOD	5.3	YES
3	COAL YARD, NEWBRIDGE	0.9	YES
4	PENGAM ROAD, YSTRAD MYNACH	0.8	YES
5	CROSSKEYS COLLEGE ANNEX, RISCA / PONTYMISTER	1.1	YES

(Objectives 2 and 3)

(Site descriptions are in Appendix 5)

5.28

The assessment of convenience goods and non-bulky comparison goods retail demand, and hence need, is contained within Topic Paper 4, Retailing & Town Centres. Attention is also drawn to the section on the County Borough Council's "manage and monitor" approach, outlined in paragraphs 5.55 to 5.58 below and also contained within the Topic Paper.

5.29

As a result, new retail sites intended for foodstores have been identified in four of the sub-regional and district town centres, in order to maintain and enhance their viability and vitality. The site in Ystrad Mynach is more suitable for a comparison goods development linking the Tesco foodstore with the existing town centre area. The development of these sites will ensure that residents will have more modern retail facilities closer to home. Some of these sites have now been developed, and further description of them appears in Appendix 5.

5.30

These proposed allocations were chosen because they best satisfy the sequential test and the retailing, transportation and environmental considerations in each centre. All of them are easily reached by public transport. They are also located on brownfield sites; namely land formerly used as a car park (Proposal R3(1)), a household refuse tip (Proposal R3(2)), a coal yard (Proposal R3(3)), a police station (Proposal R3(4)), and a college building (Proposal R3(5)).

Retail Warehousing

A TOTAL OF 15.4 HECTARES OF LAND HAS BEEN ALLOCATED FOR RETAIL WAREHOUSING STORES SELLING DURABLE GOODS IN THE FOLLOWING LOCATIONS:

		Ha	Brownfield
1	SOUTH OF THORNCOMBE ROAD, BLACKWOOD	5.7	NO
2	CROSSWAYS EXTENSION, CAERPHILLY	9.7	PARTLY

POTENTIAL DEVELOPERS WILL BE REQUIRED TO DEMONSTRATE THAT RETAIL WAREHOUSE PROPOSALS AT THESE LOCATIONS DO NOT UNDERMINE THE VITALITY AND VIABILITY OF EXISTING TOWN CENTRES

(Objectives 2 and 3)

(Site descriptions are in Appendix 5)

5.31

The assessment of bulky comparison goods retail demand, and hence need, is contained within Topic Paper 4, Retailing & Town Centres. Attention is also drawn to the section on the Borough Council's "manage and monitor" approach outlined in paragraphs 5.55 to 5.58 below and also contained within the Topic Paper.

5.32

Not all of the County Borough's retail needs for the future can be met within the defined town and local retail centres, particularly those stores selling bulky items such as DIY goods, carpets and furniture. Retail warehousing is a sector which is very much under-represented in the County Borough area. Accordingly two areas have been identified for such stores at Crossways retail warehouse park in Caerphilly, (as an extension to the existing site), and on land at the southern edge of Blackwood town centre, (part of a mixed retail / leisure use development).

5.33

These proposed allocations were chosen because they best satisfy the sequential test and the retailing, transportation and environmental considerations in relation to each proposed sub-regional town centre. The Blackwood allocation is easily reached by public transport, because a number of routes pass along the length of the site. The Caerphilly site is also accessible by public transport, and it will contain a bus stop-over facility when fully developed. The Blackwood site is greenfield, while the site at Crossways is partly brownfield and partly greenfield. The nature of such proposals, in terms of their required size and adherence to national planning guidance on acceptable locations, means that it has not been possible to identify suitable sites for this purpose which are wholly brownfield.

5.34

The development of these sites for bulky comparison goods retail stores will contribute to achieving the status of Caerphilly and Blackwood as sub-regional town centres. Once developed, the remaining retail warehousing land at Crossways will attract many shoppers from the local catchment area. The proposal at Blackwood will also enhance the town as a sub-regional centre. It should be noted that the Borough Council considers that the Crossways site should be released in two phases. It will assess the viability and impact of the 8,250 sq. m retail warehousing recently given permission before releasing the remainder of the site area. Further descriptions of these sites appear in Appendix 5.

5.35

The Council seeks to concentrate development of such stores on these two sites, rather than allowing further free-standing single stores, in order to facilitate competition and comparison between stores as well as minimise journeys by car.

5.36

For the purposes of this Policy, retail warehousing stores selling durable goods are generally defined as those of 1,000 sq. m. or more, gross floorspace.

New Large Retail Proposals outside Defined Centres

PROPOSALS FOR NEW LARGE RETAIL STORES IN LOCATIONS OUTSIDE THE TOWN, DISTRICT AND LOCAL CENTRES DEFINED IN POLICIES 1R AND R1 WILL BE CONSIDERED IN ACCORDANCE WITH THE SEQUENTIAL APPROACH, AND WILL NOT BE PERMITTED WHERE:

THE VITALITY AND VIABILITY OF NEARBY DEFINED TOWN, DISTRICT AND LOCAL CENTRES ARE LIKELY TO BE UNDERMINED, TAKING INTO ACCOUNT THE CUMULATIVE EFFECTS OF OTHER APPROVED RETAIL DEVELOPMENTS, RECENTLY COMPLETED DEVELOPMENTS AND PLAN COMMITMENTS; OR

THEY WOULD UNDERMINE THE COUNCIL'S RETAIL STRATEGY; OR

THEY WOULD UNDERMINE A TOWN CENTRE ACTION PLAN

(Objectives 2 and 4)

5.37

In accordance with national planning guidance, the retail strategy of the Plan aims to maintain strong town centres and concentrate retail growth in and adjacent to those centres. Where there is insufficient room for further expansion in or adjacent to the town centres, two out of centre areas have been identified in which retail warehousing should be concentrated. These sites, Proposal R4(1) and Proposal R4(2), are in accord with the Plan's retail, transportation and environmental objectives.

5.38

Proposals for large retail developments in the context of this policy will need to prove that the viability and vitality of the adjacent town centre are not undermined. During the plan period, sites which are outside defined retail centres could come under pressure, for either the development of a major new shopping centre, or a new retail park, or for a new large unit selling food or durable goods. In considering such a proposal, the sequential test will be applied as set out in national planning guidance and also summarised in paragraph 5.5 above. It should also be noted that large retail proposals of this nature must be accompanied by a full traffic impact assessment (Policy T3) as well as a retail impact assessment.

5.39

Therefore, such proposals will only be granted once the sites identified in Policies R3 and R4 have been considered and there is no appropriate location elsewhere within the defined retail centres. For the purposes of this policy 'large retail stores' are defined as those over 1,000 sq. m. net floorspace and the types of retailing to which it applies are also to include discount and club shopping and warehouse clubs.

5.40

The Borough Council will resist attempts to develop or convert to retail use, individual free-standing units, unless they are small foodstores (i.e. less than 1,000 sq. m) serving a local catchment and which do not conflict with Criterion 'A' of this policy. If durable or comparison goods stores locate close to other stores of a similar type in the defined retail centres, then the number of car journeys generated will be much reduced to the benefit of the environment, and competition and ease of comparison enhanced, to the benefit of consumers.

Small Retail Proposals outside Town, District and Local Centres

OUTSIDE THE TOWN, DISTRICT AND LOCAL CENTRES DEFINED IN POLICIES 1R AND R1, NEW SMALL RETAIL UNITS, OR PROPOSALS FOR CHANGE OF USE TO SMALL RETAILING UNITS, WILL NOT BE PERMITTED IF THE PROPOSAL, EITHER IN ITSELF, OR CUMULATIVELY WITH OTHER APPROVED RETAIL DEVELOPMENTS, RECENTLY COMPLETED DEVELOPMENTS, AND PLAN COMMITMENTS WOULD UNDERMINE THE VITALITY AND VIABILITY OF THOSE DEFINED CENTRES:

UNLESS THE PROPOSAL IS TO SERVE NEIGHBOURHOOD NEEDS, OR;

UNLESS THE PROPOSAL IS ANCILLARY, AND APPROPRIATE, TO ANOTHER COMMERCIAL USE

(Objectives 2 and 5)

5.41

Many of the villages in the County Borough have well-defined shopping centres within which local retailers are expected to locate. These local centres play an important role in servicing their communities. However, for many years they have been under competitive pressure from larger retailers and bigger centres. As a result they suffer from high vacancy rates or a high level of residential conversions, and ever fewer retail outlets. In these circumstances, if sporadic retail developments were allowed, it would result in increasingly disjointed provision.

5.42

New small-scale retail developments or proposals for change of use to retail purposes are still forthcoming from time to time. Normally, these will only be acceptable in planning terms if they are within the local retail centres as they will contribute to their vitality. A clear case would therefore need to be made for local retail provision elsewhere, and this policy sets down the conditions to be satisfied by such proposals for them to be considered. This Policy is not intended to restrict special types of retailing activity which are related to, and purely ancillary to, another land use on a site such as agriculture, forestry, manufacture or tourism, unless the retail proposals were not connected to such main uses, or became more significant than those uses. For the purposes of this Policy, a 'neighbourhood shop' is considered to be one serving a purely local catchment, and under 1,000 sq. m. gross floorspace.

Rural Retailing

THE CHANGE OF USE, CONVERSION, OR REDEVELOPMENT OF A VILLAGE SHOP OR PUBLIC HOUSE FOR ANOTHER PURPOSE WILL ONLY BE PERMITTED WHERE:

THE LOCAL COMMUNITY WOULD CONTINUE TO BE SERVED BY ANOTHER COMPARABLE FACILITY WITHIN THE VILLAGE OR THERE IS SUCH PROVISION AVAILABLE IN A NEARBY VILLAGE OR SETTLEMENT TO WHICH THERE IS EASY AND CONVENIENT ACCESS FOR THE LOCAL COMMUNITY INCLUDING BY MEANS OTHER THAN THE PRIVATE CAR; OR

THERE IS EVIDENCE THAT THE CURRENT USE IS NOT, AND COULD NOT REASONABLY BE EXPECTED TO BECOME, FINANCIALLY VIABLE OR THE PREMISES, IF NON-OPERATIONAL, HAVE BEEN VACANT FOR A LONG PERIOD OF TIME; AND

THERE IS EVIDENCE THAT THE PREMISES, WHETHER IN USE OR VACANT, HAVE BEEN ACTIVELY MARKETED FOR THAT USE FOR LEASE OR SALE OVER A REASONABLE PERIOD OF TIME AT A REASONABLE RENTAL OR PURCHASE PRICE

(Objectives 1 and 2)

5.43

There is a need to ensure that shops and public houses which provide a benefit to the local population and help make rural communities sustainable receive appropriate protection. This Policy is in accord with the guidance provided in Planning Policy Wales (March 2002), paragraph 10.1.4. As a result, it is intended that the provisions of this Policy be applied to applications for change of use regarding those relevant premises which are defined as being within the eligible areas for the rural rate relief scheme for businesses. A list of the communities to which the rate relief scheme currently applies is to be found in Appendix 6.

5.44

The application of the specified criteria within the Policy are intended to prevent the loss of such businesses in rural communities by change of use which otherwise would remain financially viable and/or could be sold to a new operator who would continue the service.

Protection of Primary Areas of Sub-Regional Town Centres

LINK TO MAP

CHANGE OF USE OF THE GROUND FLOORS OF CLASS A1 RETAIL PREMISES TO NON-RETAIL PURPOSES WILL NOT BE PERMITTED WITHIN THE FOLLOWING DEFINED PRIMARY RETAIL AREAS UNLESS THE VACANCY RATE HAS BEEN HIGH FOR A LONG PERIOD:

HIGH STREET, BLACKWOOD

CASTLE COURT, CAERPHILLY

CARDIFF ROAD, CAERPHILLY

(Objective 2)

5.45

It is appropriate to identify Primary Retail Areas in certain town centres where protection of the retail function is intended to be absolute, in order to ensure the maintenance of shopping interest and vitality. The further concentration of service outlets (A2 uses) such as banks, building societies and estate agents, and food and drink establishments (A3 uses) in the heart of shopping centres would result in a loss of retail units and the risk of creating 'dead frontages'. In order to strike a policy balance between protection and flexibility, Primary Retail Areas have only been identified for the Caerphilly and Blackwood sub-regional retail centres, because they are vibrant enough to maintain full occupancy of A1 retail units within their cores. Elsewhere, there is a danger that such restriction of use could result in an increase in vacant premises.

5.46

The boundaries of the Primary Retail Areas have been tightly drawn in order to permit the accommodation of new A2 and A3 uses within the large remaining portion of these two retail centres. Therefore, the policy does not limit these uses, because they also have their role to play in creating vibrant town centres, but it lessens their adverse cumulative impact in the shopping cores. At Castle Court, in the northern Caerphilly Primary Retail Area, up to three units may be occupied by Class A3 use proposals in accordance with the planning permission. In the case of an application for Change of Use from Class A1 Use of a property located within one of the Primary Areas of Blackwood and Caerphilly town centres, the proposal would need to meet both the requirements of this policy and Policy R9 in order to be considered favourably.

5.47

For the purposes of this Policy, a "high vacancy rate" is defined as greater than 10% of commercial properties within the particular defined primary area boundary and a "long period" is defined as more than one year. The boundaries of the three Primary Retail Areas are shown on the Proposals Map. They are also shown on the larger scale plans of the relevant town centres in Appendix 6.

Protection of District and Sub-Regional Town Centres

CHANGES OF USE OF THE GROUND FLOORS OF CLASS A1 RETAIL PREMISES TO A USE OUTSIDE THIS CLASS, WITHIN THE DEFINED DISTRICT OR SUB-REGIONAL TOWN CENTRES, WILL NOT BE PERMITTED WHERE A CONTINUOUS FRONTAGE OF THREE OR MORE PREMISES WITHOUT WINDOW DISPLAYS WOULD BE CREATED

(Objective 2)

5.48

Office uses at ground level, such as Solicitors and Building Societies, can sometimes 'outbid' class A1 retail centre shops to such a degree that they come to dominate town centres, creating an undesirable area of 'dead frontage' in what should be the liveliest part of an urban area. In order to prevent a group of non-retail units dominating a town centre, it is considered that no more than three such units should be allowed to form a continuous frontage without display windows. It is not intended to place a complete embargo on the introduction of non-retail uses per se, but to ensure that such uses provide a window display which would contribute to a lively and attractive shopping environment. In the case of an application for Change of Use from Class A1 Use of a property located within one of the Primary Areas of Blackwood and Caerphilly town centres, the proposal would need to meet both the requirements of this policy and Policy R8 in order to be considered favourably.

Conversion of Retail Units to Residential

R10

THE CONVERSION OF THE GROUND FLOOR OF SHOPS OR THE REDEVELOPMENT OF COMMERCIAL BUILDINGS OR SITES TO RESIDENTIAL USES WILL ONLY BE PERMITTED WHERE A RESIDENTIAL FRONTAGE IS INCLUDED IN THE DESIGN, WHERE IT CONFORMS WITH POLICY R7 IF APPLICABLE, AND EITHER:

THE UNIT OR SITE IS LOCATED OUTSIDE THE DEFINED SUB-REGIONAL AND DISTRICT TOWN CENTRES; OR

THE UNIT OR SITE IS WITHIN A DEFINED DISTRICT TOWN CENTRE, OR WITHIN THE DEFINED SECONDARY AREA OF A SUB-REGIONAL TOWN CENTRE, WHERE:

1 THE VACANCY RATE OF THE CENTRE HAS BEEN HIGH OVER A LONG PERIOD; AND

2 THE PROPERTY IS ON THE EDGE OF THE CENTRE

(Objective 2)

5.49

The conversion of shop units to residential uses would normally have the effect of breaking up the commercial frontage, to the detriment of the shopping centre as a whole. However, the use of upper floors in retail areas for residential use is considered an efficient and sensible use of space, and can lead to a livelier town centre. Proposals of this nature are controlled by Policy H6.

5.50

Conversions of ground floor retail premises to residential use need planning permission. Conversion may be granted where the long-term vacancy rate of the retail centre becomes high and the centre is in decline. In such circumstances, conversion of vacant shop units to residential use can considerably improve the environment of these areas, provided that a residential frontage is included in the design which complements the appearance of the building as a whole.

5.51

For the purposes of this Policy, a "high vacancy rate" is defined as greater than 15% of commercial properties within the defined retail boundary and a "long period" is defined as more than one year. The "edge" of the defined retail centre is taken to mean at or near the point where the retail frontages of the shopping area meet predominantly residential frontages, such as often occurs in older linear shopping centres comprising rows of terraced units.

Retail Markets

R11

RETAIL MARKETS WILL ONLY BE PERMITTED WHERE THEY ARE LOCATED WITHIN, OR ON THE EDGE OF, A TOWN, DISTRICT OR LOCAL CENTRE, AND WILL NOT UNDERMINE THE VITALITY AND VIABILITY OF THAT CENTRE

(Objective 2)

5.52

Open-air retail markets can be lively and appropriate activities which increase the attractiveness and viability of traditional shopping centres. However, if inappropriately sited, they can detract from the viability of shopping centres and take the form of ad-hoc retail provision rather than contribute as an added attraction. Therefore, markets will not be permitted unless they are within a convenient walking distance of a defined retail centre.

Food and Drink Retailing

R12

NEW PROPOSALS FOR A3 USES, OR CHANGES OF USE TO A3 USES, WILL ONLY BE PERMITTED WHERE:

THEY ARE IN ACCORD WITH THE REQUIREMENTS OF POLICIES R8 AND R9 IF APPLICABLE; AND

OPENING TIMES OF HOT-FOOD TAKEAWAYS ARE RESTRICTED TO REASONABLE HOURS, PARTICULARLY WHERE RESIDENTIAL PROPERTIES ARE NEARBY; AND

THE PROPOSAL WOULD NOT RESULT IN AN UNACCEPTABLE LOSS OF RESIDENTIAL AMENITY BY VIRTUE OF NOISE, SMELL OR OTHER NUISANCE

(Objective 5)

5.53

The sale of food and drink for consumption on the premises and hot food off the premises comprise the Class A3 Use and include cafes, restaurants, pubs and take-aways. These are essential facilities serving a local need, but they can create concern if the smells and noise from their operations affect nearby homes or other commercial premises. Therefore, some measure of control and sensible guidelines are required when considering applications for development of, or change of use to, Class A3 Use.

5.54

For the purposes of this Policy, the definition of "reasonable hours" is taken to mean midnight in retail areas where there are few residential properties, reducing to 23:00 hrs where there are residential properties in close proximity. On Sundays these times would be limited to 23:00 hrs and 22:00 hrs respectively.

Retail Sites Review: the manage and monitor approach

5.55

Planning Policy Wales (March 2002), (para. 10.2.10)" states that: "In deciding whether to identify sites for retail and leisure developments local planning authorities should in the first instance consider whether there is a need for additional provision for these uses". In Topic Paper 4, Retailing & Town Centres, the Borough Council has made an assessment of the demand for, and the supply of, retailing provision in the County Borough.

5.56

However, assessing the need for different types of retailing in the future is notoriously difficult, as it is reliant on a great many assumptions which in turn are based on data which is open to question. In implementing its retail strategy, the Borough Council therefore will adopt a "manage and monitor" approach rather than the "predict and provide" approach, which relies solely on forecasts of future demand and supply.

5.57

The County Borough's "manage and monitor" approach will involve the following process:

Setting 'targets', including the proportions of the County Borough's population purchasing various types of goods within the County Borough as a whole and measurements of the vitality and viability of each of the principal shopping centres.

Making an initial, statistical assessment of the need for various forms of retailing, by reference to existing provision, future growth forecasts and the retail 'targets'.

Make allocations in the development plan sufficient to meet the calculated need, on a phased basis.

Monitor shopping patterns in the County Borough at three to four yearly intervals, to check if targets are being achieved.

Review targets and repeat the cycle 1-4 above.

5.58

Using this method, it is anticipated that the danger of over-allocating retail floorspace, and then seeing town centres undermined if assumptions turn out to be false, will be avoided.

Use Class and Plan Policies

5.59

The following table shows the relationship between the proposed use classes and the Plan policies.

Use Class	In Town, District and Local Centres *	Outside Town, District and Local Centres
A1	R3, R11	R4, R5, R6, R11
A2	R8, R9	R7
A3	R8, R9, R12	R7, R12
Residential	R8, R9, R10	R7, R10, Housing Policies

* Note that Policy R7 also applies to proposals for change of use to Use Classes A2 & A3 and to residential use in Pontlottyn. This is both a local centre and a settlement to which the rural rate relief scheme applies.

(See Appendix 6)

i Planning Policy Wales (March 2002), Chapter 10 and 'Technical Advice Note (Wales) 4 'Retailing and Town Centres', November 1996

ii Unit for Retail Planning Information

iii Nelson and Rhymney, the largest of the local centres, are nearly four times smaller than the district centre average

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