The policies within this Chapter look to achieving the aims and objectives contained in Part 1 of the Unitary Development Plan (UDP). The aims and objectives of the Plan, where they relate to Town Centres and shopping, and therefore these policies, are concerned with consolidating and improving existing shopping provision in the Borough’s town and neighbourhood centres to maintain their position at the heart of the communities they serve.

Shopping is traditionally linked with town centres where many other services and facilities are available. In Halton, all the main shopping facilities are in the town centres of Widnes, Runcorn Old Town and Runcorn New Town. (The last, for many years referred to as ‘Shopping City’, has been renamed ‘Halton Lea’.)

Town centres are the hub of urban life, and represent many years of investment and development. They contribute to the quality of life, with their provision of shopping facilities including specialist shops, banking and business services, catering services and leisure and cultural facilities. They are linked to public transport systems and so are accessible to those without their own means of transport - an important element in considering shopping policies for Halton, where the level of car ownership is relatively low. A thriving town centre acts as a good advertisement for an area, promoting its attractiveness, its sense of worth, and a good image.

Planning Policy Guidance 6 ‘Town Centres and Retail Developments’, (PPG6, June 1996) relates retail development to town centres’ vitality and viability and gives support to the notion of sustaining town centres in their role as a focus for shopping, leisure facilities, restaurants, entertainment, offices and other services, with the retail function continuing to underpin such centres.

In Halton’s case the town centres need to be revitalised if they are to prosper. They need to fulfil a promotional role and provide satisfactory shopping provision for residents. The relative decline of the town centres, through lack of investment shown by the poor range of shops and the declining state of the buildings is being steadily reversed through concerted efforts to improve the qualitative deficiencies in retail provision and the quality of the environment of all three town centres.

RETAIL ISSUES STUDY

In 1995/96 consultants Herring Baker Harris (HBH) prepared a Borough-wide retail assessment which incorporated detailed household surveys on existing shopping patterns and also examined future retail development potential within the three main centres of Widnes, Runcorn New Town and Runcorn Old Town. 

Three years later, it was acknowledged that further information was required on the current situation and the potential for additional retail development in, or close to, the town centres.  The application of the ‘sequential test’, as required by PPG 6, was a pre-requisite to the process of identification of any sites for development for town centre uses. 

To undertake a ‘health check’ on the vitality and viability of the Borough’s three major centres and 34 neighbourhood centres;

To assess the scale and type of additional retail investment which could be supported by the centres;

To evaluate the merits of existing undeveloped sites identified for retail development as well as considering additional sites compatible with PPG6;

To advise on appropriate retail policies for inclusion in the Halton UDP;

This study was further updated in October 2002. The key findings of the studies reflected in the strategic objectives, polices and proposals of the Plan are as follows:

Borough-wide issues

• To protect established centres.
• Re-focus future comparison goods provision to Widnes.
• Pro-active response to future development opportunities and site assembly.
• Consolidation of town centre provision.

• More flexibility for non retail uses in Secondary (other) Shopping Areas.
• General environmental improvements.
• Identify locations for growth in non-food floorspace.

Runcorn New Town

• Little scope for retail expansion after development of Trident Park.
• Pro-active management of the public realm.
• Improve pedestrian circulation.

Runcorn Old Town

• Provide a food store in the  Central Area development site.
• Review Primary and  Secondary (other) Shopping Areas. 
• Resist further expansion of non-A1 uses. 
• Identify sites for non-food goods.

Neighbourhood Centres

• Protect vibrant centres.
• Improve & deregulate centres of average performance.
• Protect centres that serve an important
• Redevelop failing centres.

A further study into Neighbourhood Centres was under taken by consultants Chesterton (Local Centres Study Nov 1999) to assess the relative performance of the centres to determine the extent to which planning policy restrictions on non retail uses should apply.

SITE SELECTION AND ASSESSMENT OF NEED

Retail: In Jan 1999 the Council commissioned the Retail Issues Study to appraise the quantitative and qualitative need for retail development in Halton and to assess all potential town centre sites. A sequential approach to site selection was undertaken. After considering the need for retail development in the shopping catchment area of Widnes and Runcorn all suitable and available town centre sites that were identified  were allocated prior to considering suitable edge of centre sites,  then lastly out of centre sites in each town centre. 

Building on the findings of the 1999 study the Council commissioned the Review of Retail & Leisure Issues (October 2002) to examine the potential implications of accommodating additional growth in retail floorspace that may occur between 2011- 2016 (the 1999 study looked only to 2011). This was in response to amending the plan period to be line with Regional Planning Guidance. In addition it was considered that the evidence of shopping patterns used in the 1999 study was becoming outdated. The Council, therefore, funded a household survey with Warrington Borough Council in 2000. The 2002 retail and leisure study used this survey to reassess the need for additional retail floorspace to 2016. Future retail capacity identified by the 2002 Study will be periodically reviewed to reflect changes in retail expenditure estimates and population projections.

Convenience Goods: It found that there is unlikely to be need for additional convenience goods floorspace in Widnes over and above the convenience goods floorspace already present at the three larger format stores at Morrisons, the new Asda and the Co-op and the smaller stores in and around the town centre. It found that in Old Runcorn Town Centre there is a surplus of £2m convenience good expenditure over the £1-1.5m generated by the new 1040 sq m food store as part of the central Runcorn development; assuming the Kwik Save store on Church Street were to close as planned. For Halton Lea it found no quantitative capacity for a new food store but found that the poor performance of the Tesco store impacts on the vitality and viability of the shopping centre as a whole. It concludes, therefore, that there may be a qualitative need to improve convenience good facilities in Halton Lea to help reverse the decline of the centre.

Comparison Goods: As highlighted in the 1999 study the level of retail warehouse provision within the Borough as a whole is limited. To address this limited provision it was assumed that 50% of the growth in capacity for comparison goods should be targeted at the development of bulky goods retail warehousing. The 2002 Study found that there is need for an additional of 13,450 sq m of bulky goods retail warehousing (excluding commitments). In terms of the most suitable locations it concluded “that both the Widnes Eastern Bypass site and the Widnes Waterfront site currently represent Widnes’ best long term opportunities for the expansion of retail warehousing and large scale leisure uses. (paragraph 6.23)

The 2002 study also estimated an additional town centre floorspace requirement (representing the remaining 50% growth in capacity) of 880 sq m for Runcorn Old Town, 2,300 sq m for Halton Lea and 5,300 sq m for Widnes Town Centre up to 2016 (excluding commitments). The report concluded in particular that there was a real need to improve Halton Lea’s market share of comparison goods expenditure from the very low 5.5%. A small increase in market share to 7.5% would translate into a further need for approximately 7,000 sq m over an above the “2,300 sq m (9,300 sq m in total) needed to maintain its existing market share.

TOWN CENTRE SITES

The following sites are considered town centre sites because they are within  designated Primary Shopping Areas.

EDGE OF CENTRE SITES

The following sites are considered to be in edge of centre locations since  they are outside a Primary Shopping Area but within  reasonable walking distance of it. (refer to Planning Policy Guidance Note 6 Annex A for definition of edge of centre locations for retail and leisure proposals)

Land Rear of  59- 69 High Street , Runcorn Old Town: This site is identified in the Runcorn Old Town Centre Strategy (1997) and the Halton Development Partnership’s Four Sites Initiative and appraised in the Retail Issues Study’s (Jan 1999) sequential approach to identifying suitable development sites. It has development potential for a mix of uses including, retail, leisure, offices and food and drink establishments. The development must maximise and enhance its waterside location, face the town centre and establish good physical pedestrian links to the town centre.

Camden Gardens, Runcorn Old Town: The Camden Gardens site is identified in the Runcorn Old Town Strategy 1997 and the Halton Development Partnership’s Four Sites Initiative and appraised in the Retail Issues Study 1999 sequential approach to identifying suitable development sites. The site has Planning Permission for an art centre which commenced construction in summer 2001.

Ex. Crosville Bus Depot Site, Runcorn Old Town: The Ex. Crossville Bus Depot Site is identified in the Runcorn Old Town Centre Strategy 1997 and the Halton Development Partnership’s Four Sites Initiative and appraised in the Retail Issues Study’s (1999) sequential approach to identifying suitable development sites. The site has development potential for leisure and entertainment uses, restaurant/ pubs and roadside uses. All highway access improvement off the Expressway are in place. Any development must make maximum advantage of its canal side location. The site is approximately 300m from the Primary Shopping Area and considered edge of centre but it is important however that new pedestrian links to the town centre across the canal are established and improvements to existing routes are also incorporated.

Site F, Halton Lea: Site F is a former employment site identified in the Urban Capacity Study’s (1997) as having limited potential for employment uses but marketable for town centre uses. It is a gateway site for Halton Lea and has development potential for a restaurant/pub to complement the adjacent leisure and retail uses at Trident Park.

Widnes Road & Broseley Square, North Albert Road and Simms Cross: The following Widnes town centre sites: Widnes Road & Broseley Square, North Albert Road and Simms Cross, were originally identified as potential redevelopment sites by the Widnes Regeneration Partnership, which is made up of key local stakeholders. It produced the Widnes Town Centre Outline Renewal Plan to promote redevelopment of key areas in the town centre for new retail and commercial development. The concept behind the Renewal Plan is to consolidate the town centre shopping environment which has over time migrated to its current position leaving a legacy of vacant and run down shopping areas at its fringes.

The potential to regenerate the town centre fringes was also considered by the Retail Issues Study (Jan 1999) which was commissioned by the Council to consider quantitative and qualitative need for development in all the town centres and assess   all potential town centre development sites for the purposes of the review of the Unitary Development Plan. The study identified the north and south fringes to Widnes’ primary retail area as potential areas where comprehensive land assembly and redevelopment should be considered. It considered that comprehensive redevelopment on these sites; Widnes Road & Broseley Square and Simms Cross immediately south of the primary shopping area and north Albert road site to the north, will provide two anchor retail developments to consolidate the town centre shopping environment, provide attractive gateways for visitors and strengthen linkages within the retail core.

Outline planning permission was granted in September 2000 by the Secretary Of State after a call in inquiry, for a supermarket and mixed retail scheme on the Widnes Road and Broseley Square site linked to the closure of the existing Asda store at Hale Bank through a legal agreement (Section 106 of The Town And Country Planning Act 1990) . Outline planning permission was also granted by the Council for a retail park at the North Albert Road Site in August 2000.

• safeguard the amenity of adjacent residential areas,
• provide a scale of development in context with its surroundings,
• enable a strong physical and visual integration of the development with the town centre and Broseley Square,
• be of a high standard of design and materials,
• be orientated to follow the existing street pattern as  far as possible.
• keep Widnes Road for predominantly pedestrian access
• have elevations of a human scale
• provide a coherent landscape character
• provide appropriate on and off site highway works
• provide pedestrian links to the town centre.

OUT OF CENTRE SITES

The following sites are considered to be in out of centre locations since they are outside the definition of edge of centre in Planning Policy Guidance Note 6 Annex A.

ACTION AREA 3

Land at Venture Fields, Widnes: It is considered that where quantitative or qualitative need for retail and/ or leisure uses can be identified, the sites at Venture Fields, Widnes which are located within the northern part of Action Area 3 ‘Widnes Waterfront’ (Policy RG 3) would be an appropriate location for this need to be fulfilled. This would be subject to the proposals being within easy walking distance of Widnes Town Centre and improved pedestrian and public transport links with the town centre. The development of the Venture Fields area for mixed retail, leisure and employment will enable the Widnes waterfront to be linked to the existing town centre which is a key initiative of the Halton Local Strategic Partnership, and formed the backbone of the Council’s bid for Economic Development Zone funding (New Widnes Waterfront Vision: A Gateway Development For The North West 2001).

An edge of centre location is identified in PPG 6 for shopping purposes as one that constitutes easy walking distance from the Primary Shopping Area, between 200-300m. The limits to what constitutes easy walking distance will be determined by the local topography, the barriers to pedestrian movement, the shopping appeal of the centre and the attractiveness of the route to and from the centre.

Retail proposals to the edge of the retail core of existing centres, defined on the Proposals Map as the Primary Shopping Areas and Neighbourhood Centre boundaries, will be required to demonstrate that there is quantitative and qualitative need for the additional facilities and that there are no suitable sites available within the retail core of the centre in question.

This site is identified in the Halton Local Plan (April 1996) as an area of special development opportunity and in the Council’s Widnes Town Centre Strategy (March 1997) as being suitable for the following uses; retail warehousing, leisure/entertainment and offices. The site was considered in the Retail Issues Study (Jan 1999) and the review of UDP Retail and Leisure Issues (2002) as being suitable for bulky goods retail warehousing but both these studies counselled that public transport and pedestrian links across the Eastern Widnes Bypass would be essential to link the site with the town centre. 

The Warrington Road\ Eastern Widnes Bypass site is currently in operational use and there is no commitment that it would become available for retail or leisure development before 2011. It therefore cannot be allocated. A further review of the Plan would reconsider allocating this site subject to an assessment of need. This policy however recognises the suitability of this site for retail warehousing, which would be permitted subject to compliance with the specified criteria of the policy.

REQUIREMENTS FOR RETAIL DEVELOPMENT

Retail development shall include extensions to existing buildings, material change of use to existing buildings or land and erection of new buildings for retail trading.  In line with requirements of Planning Policy Guidance Note 6 ‘Town Centres and Retail Developments’ (PPG6 June 1996) to sustain and enhance the vitality and viability of existing town centres, retail proposals should be directed to the retail core of existing centres defined on the Proposals Map as the Primary Shopping Areas and Neighbourhood Centre boundaries, in order to strengthen existing facilities.

The main consideration in dealing with planning applications for retail development will be the likely effect of the proposal on the vitality and viability of the relevant town centre(s), and also on the prospects of enhancing vitality and viability.  The Council intends to strengthen the shopping function of the centres by keeping them compact and well defined, As such the scale and character of the proposals will be important considerations.

The most appropriate location for the majority of local shops will be in existing  neighbourhood centres which are the focal points for the local community and already provide a range of shops, services, leisure and community facilities. Consolidating facilities in these centres will both ensure their continued vitality and viability and enhance existing public transport links.

Retail development should contribute positively to environmental quality of the Borough’s town centres as well as develop and enhance local character. Retail schemes of good design will help to strengthen and promote the town centre’s viability and attractiveness. Providing recycling facilities for glass, cans, plastics and newspapers into the design of new superstores and supermarkets with dedicated car parks is advocated in PPG6 (para.2.39), in the interests of conserving resources and encouraging linked trips. To avoid creating an unsightly area as well as to avoid conflict with cars and pedestrians, the recycling area should be a purpose built facility dedicated to recycling and appropriately designed to ensure ease of use and servicing.

The Plan is clear in its aims and objectives that retail development should be within existing town centres in order to safeguard the continued viability of those centres and to help their regeneration through enhancing their vitality and viability. The Halton Retail Issues Study 1999 undertook an assessment of demand and capacity for retail development within the Borough and reviewed all of the available town centre sites. The result is the allocation of sites for retail development in Policy TC1. However it is recognised that sites may become available during the Plan period and therefore this policy sets out criteria against which development proposals in out of centre locations will be judged.

• an assessment of the physical capacity and demand for the proposed development;
• how the development will tackle the qualitative deficiencies in both the  existing retail provision and the shopping environment;
• compliance with the Council’s adopted regeneration objectives as set out in its Regeneration Strategy ( March 1998)

The Council considers that major retail development proposals in out of centre locations have the potential to have a significant impact on Halton’s existing town and neighbourhood centres. As such the applicant will be required to fully justify the proposals. This should include evidence on:

• Possible harm to the development plan strategy.
• The adoption of a sequential approach to site selection as defined by PPG6 paragraph 1.10 and the availability of suitable alternative sites.
• The likely economic impacts of the Borough’s town centres including the accumulative effects of recently completed developments and outstanding planning permissions.
• Meeting sustainable travel objectives of reducing the need to travel by car and increasing the use of other modes of travel presented in a PPG 13 Travel Plan.
• Likely changes in travel patterns over the catchment area; and
• Significant environmental impacts.

In circumstances where existing neighbourhood centres are not meeting the needs of local people by virtue of their location, retail mix, remoteness or condition, the provision of new local shops outside existing shopping centres and within Primarily Residential Areas may be considered appropriate.  Moreover new areas of housing development may create sufficient demand for the provision of new local shopping facilities to meet a demand for local facilities. The provision of retail services in employment areas may also be beneficial to employees where existing retail services are not within reasonable walking distance from the site of employment. (considered to be a 10-minute walk or a distance of 400m). The provision of small scale complementary facilities such as banks and shops, or food outlets may be appropriate. Policy E4 Complementary Services and Facilities within Primarily Employment Areas, will also apply. In all cases the applicant must demonstrate that nearby designated neighbourhood centres listed in Policy TC9  (paragraph 1 & 3) would not be detrimentally affected, through loss of trade or deterrence of investment. In all cases the effect of the proposal on residential amenity as defined in Policy H8 Non Dwelling House Uses will be a primary consideration.

The use of conditions will be considered to control the impact of a development on the vitality and viability of established shopping centres, to include restrictions on the types of goods to be sold.

NON-RETAIL USES

In the interests of fostering sustainable communities the Council wishes to protect small - scale shopping facilities to meet local needs. Such facilities are of particular value to elderly people and those without a car. They can provide an important service within a local community and help reduce the need to travel.

Non-retail uses other than a shop (Class A1), which would be appropriate within a town centre, are Class A2 (professional and financial services), Class A3 (sale of hot food) and some Sui Generis uses (e.g. amusement arcades, launderettes).

One of the aims of the UDP is the regeneration of town centres, and the Council considers that a healthy shopping role for established centres will contribute to their vitality and viability. Although non-retail uses within town centres can complement and strengthen the function of the centres, a balance needs to be achieved in order to retain their essentially retail nature. While the Council has no control over the distribution of different kinds of shops, it can seek to ensure that a disproportionate level of non-retail uses does not occur and stultify the vitality of centres.

There is support for this approach in PPG6, (Annex B, Para.8), which states that Development Plans may distinguish between Primary and Secondary frontages and that Primary frontages may be restricted to a high proportion of retail uses (A1), while in Secondary frontages, there is scope for more flexibility.

In the Primary Shopping Areas of Widnes and Runcorn Old Town, the Council wishes to rigorously protect the retail function of the centres and considers that in their present state, a level of around 20% is as far as the non-retail uses could reach before having an unacceptable effect on the vitality and viability of these centres.  Within the Primary Shopping Area of Widnes three distinct frontages have been identified, Widnes Road, Albert Square and the Windmill Centre. These are shown on Map 9 The percentage restriction on non retail uses will be applied to outlets within each frontage.

In the case of the Widnes Secondary Shopping Area there is no restriction on non retail uses. Reference should be made to Policy RG 2 Action Area 2 that advocates a mix of uses in line with the regeneration objectives for the area.

In the Runcorn Secondary Shopping Area, a fairly strong retail function is considered necessary to support the centre as a whole and therefore non-retail uses will be restricted.

When assessing the level of non-retail uses within a shopping area, account will be taken of any unimplemented planning permissions for change of use and a reasoned judgement will be made in each case to decide whether the proposal is likely to be implemented and should be included in the assessment.

The growing trend of less reliance on local shopping facilities in favour of doing  both the main and top-up shopping in major supermarkets has ensured that nationally, retail representation within neighbourhood centres has declined rapidly.

The levels of patronage at neighbourhood centres within the Borough depend on   both the local community’s access to major supermarkets and on the range of goods on offer at neighbourhood centres. The spatial concentration of supermarkets in the Borough is such that some neighbourhoods are some distance from a major supermarket. When this factor is combined with the low level of car ownership in the Borough certain neighbourhood centres are in fact trading strongly and provide a diverse range of goods which meet the local needs of those communities.  In some centres retailers have been able to establish a niche market which enables them to compete effectively for a share of local expenditure.

The Neighbourhood Centre Audit (Retail Issues Study, Jan 1999) and Neighbourhood Centres Study (Nov 1999) shows that there are distinct contrasts in neighbourhood centre provision within the Borough and as such this policy reflects this position.

In the more successful centres it is proposed that restrictions on non-retail uses of 50% would be achievable without resulting in increased vacancies. It is hoped that the retail mix in these centres can be maintained or improved. The centres that are performing reasonably well which have limited vacant units but are in need of environmental improvement have no restriction on A2 & A3 uses to stimulate future demand.

MIXED TOWN CENTRE USES AREA

PPG 6 paragraph 2.13 guides local Planning Authorities to set out policies for mixed use development in town centres by identifying suitable areas and sites. This area policy relates to Runcorn Old Town whilst policy RG 2 Action Area 2 refers to the Central Widnes area and fosters mixed use development in a regeneration context.

FOOD AND DRINK OUTLETS

Some food and drink outlets will be considered appropriate in town and neighbourhood shopping centres and in a limited number of other locations in accordance with the requirements of other policies of the Plan.

Particular close scrutiny will be made of proposals where there are residential properties, including flats above shops, which through their general proximity and orientation are likely to be affected. Such proposals will necessitate a detailed evaluation of potential levels of nuisance including whether the associated noise will rise significantly above prevailing ambient levels. The imposition of conditions will be considered to alleviate potential problems of noise, general disturbance, smell and litter by restricting uses, activities and hours of opening in order to protect amenities of nearby residents.  Whilst the last two issues are subject to other statutory controls the significance of their impact will be considered along with other material considerations.

Adequate provision must be made for the disposal of refuse arising from the operation of the business, including customer food and drink containers. It should be fully recognised that where a development is deemed acceptable in principle but on detailed consideration is found likely to generate unacceptable levels of noise, disturbance and/or traffic generation which cannot be overcome through the imposition of appropriate conditions, then planning permission will be refused.