 |
| Unitary Development
Plan - Adopted 1 March 2005 |
| |
|
|
| |
|
Chapter 11
|
TOWN CENTRES AND RETAILING
|
| |
|
|
|
|
| |
|
| |
THE ROLE OF OUR TOWN CENTRES
|
| 11.1 |
Retailing is a dynamic sector and has
evolved considerably over the last twenty years. Changes in how and
where we shop have brought about changes to the function of, and diversity
of uses in our town centres. They have to adapt and develop new roles
in relation to services, entertainment, leisure and employment, whilst
retaining their primary shopping function. The principle of sustainable
development is a cornerstone of the Plan, which has a key role in
steering major trip-generating development into locations which allow
us to travel to them by a choice of means of transport. Town centres
are generally well served by public transport and the concentration
of facilities will encourage linked trips. |
| |
|
| |
TRENDS IN RETAILING
|
| 11.2 |
Nationally, the trend has been towards
larger more efficient stores, many with associated car parking, and
in some cases in out-of-centre locations. As spending per head on
food has increased relatively modestly there is a diversion of trade
from the smaller shops which form the basis of the established centres.
Another important general trend has been the consistent growth in
spending on comparison goods (see glossary) which has supported a
major expansion in this type of floorspace. Town centres also tend
to have more services such as restaurants and estate agents. |
| 11.3 |
The consequence of these trends as far
as the Borough is concerned is that the total number of shops has
fallen by approximately 12% over the last 25 years. The Borough now
has a number of major supermarkets with car parks at Richmond, Teddington,
East Sheen, Twickenham, Hampton Hill and Hampton Nursery Lands. In
some of the smaller centres the loss of shops selling food will have
created problems for people who find it difficult to travel to the
district centres. The food shops have generally been replaced by shops
selling specialised goods such as antiques or by service sector uses.
Increasingly service uses are competing for shopping space. Whilst
a mix of uses in town centres is desirable, their core day-time function
is to provide shopping facilities. |
| 11.4 |
The trading impact of out-of-centre superstores
is of particular concern due to their potential turnover and because
they can be difficult to get to for people without cars. The 1997/8
Household Shopping Survey shows that 30% of the Borough's households
do not do the bulk of their food shopping by car/van. There are now
a number of out-of-centre stores in this sector of London, including
the Sainsbury superstore in Hampton Hill, the Tesco superstores at
Sunbury Cross and Isleworth, the Asda at Roehampton Vale and a new
out-of-centre superstore at Manor Road, Richmond. The Borough is now
well served with large stores and associated car parking and further
out-of-centre superstores will have an effect on vitality and viability
of existing centres, which at present provide accessible facilities
for all residents. |
| 11.5 |
A report produced by planning consultants
Healey and Baker suggests that 48% of shops in Richmond town centre
are open on Sundays. The trend of shopping on Sundays appears to be
growing. This practice tends to reallocate spending previously carried
out on other days, rather than creating additional expenditure. It
is generally the free standing supermarkets and out-of-centre retail
warehouses which are benefiting from this trend, which may divert
trade from traditional smaller town centres not open on Sundays. The
use of the Internet for shopping and the growth in home delivery schemes
are in their infancy at present, but may also have implications for
the amount of retail floorspace required to meet present and future
demand. |
| |
|
| |
THE BOROUGH'S TOWN CENTRES
|
| 11.6 |
Richmond town centre is the largest centre
in the Borough with over 300 shops. It has a significant specialised
retail sector dominated by the arts and antiques sector, including
many bookshops, jewellers and antique and specialist furniture outlets.
It also has a large number of restaurants, cafés and public houses
which complement the retailing. It is a cultural centre for the Borough
with a number of leisure facilities including three cinemas and two
theatres, which are important to residents and to tourists who provide
vital support to these uses. The range of goods and the attractive
physical environment mean that Richmond attracts many shoppers who
live outside the Borough and therefore it serves a strategic shopping
function. It is estimated that in 1995 23% of the Borough's workforce
were employed in Richmond Hill and Richmond Town wards. It is therefore
a vital employment centre, as well as supporting retailing. |
| 11.7 |
Richmond also performs a district centre
function for residents living within the more immediate catchment
area, the major supermarkets, one with car parking being particularly
important for main food shopping trips. |
| 11.8 |
The district centres each with over 100
shops are Twickenham, East Sheen, Teddington and Whitton. These centres
have a large range of shops selling food and convenience goods and
a smaller range of shops selling comparison goods. Large supermarkets
with car parking cater for the weekly shopping trips in all these
centres except Whitton. The centres also include a range of service
outlets such as banks, building societies, restaurants and cafés.
Twickenham and Teddington in particular, provide significant employment
opportunities, partly within the town centres and also within the
surrounding areas. |
| 11.9 |
Smaller centres cater mostly for the day-to-day
needs of local residents or are used by them to top up between main
shopping trips. These shops are particularly important for people
without the use of car for shopping and especially those who may find
it difficult to travel further, such as elderly people, people with
disabilities and carers with young children. Some of the larger of
these centres also provide services for residents and have a limited
range of eating places/ take aways. |
| 11.10 |
Most residents live within 400m of a shopping
centre of some kind but some areas are more than 600m away from shops
and are therefore considered to be, to some extent, deficient in local
shopping. |
| |
|
| |
POSITION IN SOUTH WEST LONDON'S HIERARCHY
|
| 11.11 |
The Borough has adequate food shopping
provision for its residents, as confirmed by the consultant's study
referred to in para. 11.30. However, comparison shopping requirements
are met partly by Richmond town centre, and also by larger centres
in the region, particularly Kingston. The Borough will continue to
monitor the adequacy of food shopping provision throughout the plan
period and encourage any identified shortfall to be located within
Richmond and the district centres. |
| 11.12 |
Richmond town centre is defined by the
GLA as a major centre along with neighbouring Chiswick and Putney.
Such centres are considered to have sizeable local catchment areas,
and a mix of comparison and convenience shopping. A significant proportion
of the Borough's households use Richmond town centre for the majority
of their food shopping, and a smaller proportion use it for comparison
shopping. Richmond town centre should be seen within the larger context
of south west London's town centre hierarchy. Kingston, Ealing and
Hounslow are classed as metropolitan centres which support a range
of comparison shopping, including several department stores. Kingston
was designated by the GLA for 'consolidation', Hounslow for 'regeneration'
and Ealing was categorised as 'neutral/trend'. Richmond is physically
constrained in its ability to expand, due to its exceptional historic
environment, which coupled with the past and potential growth in these
metropolitan centres in neighbouring boroughs reinforces the appropriateness
of a strategy of modest expansion for Richmond town centre. |
| 11.13 |
The expansion of shopping facilities and
car parking, and environmental improvements in both Kingston and to
a lesser extent Hounslow town centres, have increased their attractiveness,
and reduced Richmond's relative trade. |
| |
|
| |
IMPROVEMENTS TO CENTRES
|
| 11.14 |
In view of the need to conserve the many
historic buildings in Richmond centre and the general character, there
are limited opportunities for additional retail development. Retail
consultants employed by the Council have indicated that even if there
are no new retailing developments this will not be unduly detrimental
to the centre. The consultants' suggested strategy for the centre
is based primarily on the enhancement of its unique character as a
quality retail and business centre. |
| 11.15 |
In considering retail provision in all
Borough centres it is important to consider the amenities and facilities
available to the shoppers and the quality of the physical environment
more generally. Centres which can combine a high quality environment
with a range of leisure facilities that can be used in association
with the shopping visit are particularly successful. Most of the Borough's
centres are on roads that are becoming increasingly busy with traffic
and the most significant improvements to shopping conditions would
be achieved through additional facilities for pedestrians and cyclists,
including, where practicable, measures to reduce or remove traffic
from main shopping streets. Car parking is another associated problem.
|
| |
|
| |
FRAMEWORK FOR POLICIES
|
| |
NATIONAL POLICY AND STRATEGIC PLANNING CONTEXT
|
| 11.16 |
Planning Policy Guidance Notes relating
to Town Centres and Retail Developments (PPG 6, 1996), to Development
Plans (PPG 12 1999), and to Transport (PPG 13, 1994) emphasise the
importance of integrating land use planning and transport to reduce
the need to travel by car and promote travel by public transport,
foot or bicycle. Government guidance promotes the sustainment and
enhancement of the vitality and viability of town centres which serve
the whole community, and local shops. |
| 11.17 |
PPG 6 strengthens the Government's commitment
to existing town centres as attractive and accessible environments
comprising a mixture of uses, complementary to the shopping function.
Town centres should be a focus for the community, have coherent car
parking strategies, and be well managed and designed. It also introduced
the sequential approach to the location of new development, for which
there is an established need. This requires priority to be given to
town centre sites, but if these are not available edge-of-centre sites
may be acceptable if they are functionally related to the town centre.
Only when these options have been considered should out-of-centre
sites which are accessible by a choice of means of transport be examined. |
| 11.18 |
Regional Planning Guidance for the South
East (RPG 9, 2001) also requires retail development to generally be
located within or on the edge of existing town centres. The London
and South East Regional Planning Conference's (SERPLAN) Sustainable
Development Strategy for the South East (Public Consultation Document,
SERP 400) recommends the adoption of a sequential approach to the
location of retail development and the minimisation of travel to shopping
facilities. In considering proposals for major retail development,
Strategic Planning Guidance for London (RPG 3, 1996) reaffirms the
guidance contained in PPG 6 and supports the London-wide town centre
hierarchy proposed by LPAC (now taken on by the GLA). It encourages
diversity of uses in town centres and a sensible approach to changes
of use in certain less vital centres, as well as promoting the evening
economy. The London Plan, once adopted, will replace RPG 3. The Draft
London Plan published in June 2002 also supports town centres and
retains the town centre hierarchy. It also echoes the Government's
advice on the sequential test. |
| 11.19 |
The London Plan's categorisation of town
centres identifies a number of metropolitan centres in some outer
London Boroughs which have cross-boundary catchment areas. Richmond
town centre is identified as a major centre, and Twickenham, Teddington,
East Sheen and Whitton are classified as district centres. Strategic
policy designations for the centres are currently under review by
the GLA. |
| |
|
| |
THE COUNCIL'S POWERS
|
| 11.20 |
The development and letting of shops is
almost entirely undertaken by private enterprise and so the Council's
powers to influence retailing are limited. Powers under the Town and
Country Planning Act 1990 give the Council control over the change
of use of shops to non-retail uses, but not between different retail
uses. Financial and professional services complementary to a shopping
centre may change to retail use without the need for planning permission,
and cafés, wine bars and restaurants can change to retail use or to
a financial and professional service, such as a bank, building society,
or estate agent. In limited instances the Council may be able to control
the size of unit and type of shop in new shopping development, by
imposing conditions on planning permissions and using Section 106
agreements with developers. The Council also has powers to control
the installation of new shop fronts and in certain cases the display
of advertisements. The Council has compulsory purchase powers under
the Acquisition of Land Act 1981, amended by the Planning and Compensation
Act 1991, which can be used for site assembly if resources permit.
As a highway authority the Council can introduce measures aimed at
environmental improvement through pedestrianisation and can also improve
parking, safety and access in shopping centres. The Council enforces
legislation concerning health and safety, weights and measures, food
and drugs and the description of goods and services. It is responsible
for enforcing hours of trading. |
| |
|
| |
STRATEGY
|
| 11.21 |
The overall strategy of the Plan is that
facilities and services that are needed by residents, particularly
shops, should be easily accessible, either on foot, by cycle, or where
this is not practicable, by public transport. This approach is intended
to ensure that less mobile residents have convenient access to facilities,
and to reduce the need to travel, particularly by private car, thereby
reducing the adverse associated environmental consequences. The maintenance
of the established town centre hierarchy (referred to in STG
4) and distribution of shopping centres, will advance this strategy
and is therefore the main thrust of the Council's town centre policies.
|
| 11.22 |
The main elements of the strategy in relation
to town and local centres are as follows: |
| |
(a) |
an emphasis on the improvement and consolidation
of town and local centres, including modest expansion of shopping
floorspace in appropriate locations; |
| |
(b) |
steering new major trip-generating development
into Richmond town centre and the district centres; |
| |
(c) |
limiting any increase in shopping floorspace
in an established centre to a scale that would not have an adverse
effect on the vitality and viability of another shopping centre; or
on the character and function of part of the existing centre; |
| |
(d) |
encouraging a wide range of uses in town
and local centres, but without compromising their retailing function;
|
| |
(e) |
improving the accessibility of shops and
shopping centres for all residents including people with mobility
difficulties and physical and sensory disabilities. |
|
|
| |
OBJECTIVES
|
| 11.23 |
To encourage the availability of shopping
facilities at suitable locations to serve the needs of residents including
people who are less mobile by maintaining the existing hierarchy:
|
| |
(a) |
ensuring Richmond town centre remains
a major town centre providing a full range of goods and services,
leisure, cultural and entertainment facilities, employment opportunities
and housing. A level of investment will be encouraged which will preserve
and enhance the character of the centre; |
| |
(b) |
encouraging the provision of shops supplying
a wide choice of food, other convenience goods, durable goods and
services, and appropriate leisure, cultural, entertainment and employment
opportunities and housing at district centres accessible both by public
transport and by car; |
| |
(c) |
ensuring that all Borough residents have
shopping facilities for their day-to-day needs within a reasonable
walking distance of their homes. |
| |
To ensure that town centres are attractive
to users, residents, visitors, retailers, leisure and service providers
by improving their appearance, safety, convenience and accessibility,
especially for pedestrians and cyclists and by public transport, and
also to improve facilities for the collection and delivery of goods. |
| |
|
| |
POLICIES FOR TOWN CENTRES AND SHOPPING
|
|
|
| |
TC 1 - IMPROVEMENTS
TO CENTRES |
| 11.24 |
The Council will encourage
improvements to existing centres. Priority will be given to encouraging
greater convenience for pedestrians including those with mobility
difficulties, provision for cyclists, improvements to public transport
serving centres, physical appearance, servicing and car parking arrangements.
|
| |
|
|
| 11.25 |
There are very limited opportunities for
expanding shopping floorspace within the Borough's centres and in
any event major expansion of floorspace in one centre would lead to
the diversion of trade from others. The viability of centres will
be maintained by building upon their assets and through initiatives
to improve their attractiveness and to improve their accessibility
and general servicing arrangements. The Council is committed to monitoring
the vitality and viability of the Borough's town centres. Health checks
carried out in 1997 revealed that they are generally viable and healthy,
although some smaller centres are beginning to show signs of stress.
Plans for the further improvement of centres have been worked up with
traders, owners and occupiers of properties, public transport operators
and town centre users for East Sheen, Kew, Lower Mortlake Road and
Twickenham. A town centre manager is taking forward plans for Twickenham.
The Council recognises that to achieve some improvements to town centres
(e.g. provision of new shop units), it may be necessary to use compulsory
purchase powers to assemble suitable sites. |
| 11.26 |
The Council will give priority to the
improvement of facilities for pedestrians, including the provision
of seats. Pedestrian priority areas, where traffic calming and other
measures to reduce or eliminate traffic will be introduced where practicable
(policy TRN 9). Provision
for cyclists will be improved and bicycle parking provided (policy
TRN 11). In order to discourage
inessential car use, the limited amount of parking space in town centres
will be allocated for short, rather than long term parking for commuters.
Initiatives to improve the appearance of centres will be pursued,
including tree planting and landscaping and well designed and co-ordinated
street furniture. In considering the provision of new street furniture,
planting and other improvements or alterations, full consideration
will be given to access and safety considerations, particularly for
people with disabilities. Under the Environmental Protection Act 1991,
the Council has a duty to keep its public areas clear of litter and
it will therefore seek to ensure that convenient provision is made
for the disposal of litter. |
|
|
| |
TC 2 - NEW SHOPPING
DEVELOPMENT |
| 11.27 |
A sequential approach will
be taken when considering new retail developments. In Richmond town
centre and the district centres proposals for retail development,
including extensions to properties, in, adjacent, or well-related
(or capable of being so) to key and secondary designated frontages,
will normally be given favourable consideration. Other town centre
proposals not in these key locations will be subject to criteria (b)
to (i). The Council will seek to ensure that larger units are provided
on sites where they are appropriate and they will not be acceptable
if they would have a significant adverse effect on the viability and
vitality of a neighbouring centre. |
| |
Edge-of-centre proposals
will be considered against the following criteria, when no suitable
town centre sites/buildings capable of conversion exist: |
| |
(a) |
there is an established
need for such a proposal; |
| |
(b) |
it would not harm the Development
Plan strategy; |
| |
(c) |
it would not cumulatively,
or by itself, affect the vitality and viability of any existing town
centre or local centre, or part of an existing centre; |
| |
(d) |
it should be genuinely
accessible, or can be made genuinely accessible, by a choice of means
of transport; |
| |
(e) |
it should not encourage
substantial additional travel, particularly by car. Car parking should
be minimised to discourage this and be designed and managed as part
of the overall town centre parking strategy; |
| |
(f) |
it is well located in relation
to the road and public transport network and would not result in serious
problems of road access, traffic congestion or road safety; |
| |
(g) |
it is not sited on green
belt (ENV 2), metropolitan
open land (policy ENV 1) or
other open land of townscape importance (policy ENV
3); |
| |
(h) |
it would not have an unacceptable
adverse effect on the environment of the surrounding area, in particular
residential amenity; |
| |
(i) |
it would not take up land
needed for, or displace, other higher priority uses such as housing,
open space, recreation, allotments, cultural/entertainment facilities,
community uses and industry/commerce, and the site is fully utilised. |
| |
Out-of-centre shopping
proposals will not normally be acceptable, and will only be considered
if no suitable sites/buildings capable of conversion are available
in Richmond and the four district centres, or at edge-of-centre sites.
They will also be assessed against the above criteria. |
| |
|
| 11.28 |
The policy seeks to maintain the town
centre hierarchy outlined in STG
4 and in the objectives section (para 11.23),
by consolidating shopping in Richmond and the district centres. The
Council is concerned that these centres consolidate and develop their
roles as centres which residents can use for weekly shopping and where
they can select from a wide range of durable goods. Retail development
in town centre sites in Richmond and the four district centres, which
is of an appropriate amount for the size of the centre, will help
to achieve this end. |
| 11.29 |
These larger centres already have to compete
with out-of-centre stores with extensive car parking. Food stores
are available at Uxbridge Road, Hampton (J.Sainsbury), Isleworth (Tesco),
Sunbury Cross (Tesco), Roehampton Vale (Asda), Chiswick (J.Sainsbury)
and Manor Road, Richmond (J.Sainsbury). The main non-food stores are
at Kew Retail Park, Manor Road (Homebase), Chertsey Road (Homebase)
and outside the Borough at the Great West Road, in Hounslow and along
the A3 corridor. |
| 11.30 |
The Council commissioned a retail capacity
study in 1999 which was produced by consultants Drivers Jonas. It
concludes that the range and distribution of convenience stores both
within the town centres and out-of-centre means that there is no qualitative
need for major new stores, although modest development at suitable
sites in town centres will add to their retail offer and contribute
towards vitality and viability. In the light of the relatively slow
growth in food expenditure, existing stores, along with commitments,
will provide for quantitative need during the Plan period. The growth
in comparison goods expenditure is more significant and the additional
floorspace requirement needed towards the end of the Plan period,
could partially be provided at the Richmond Station site and through
consolidation elsewhere in the centres. Other proposals will be subject
to the sequential test and policy TC
2. It is recognised that it will be necessary periodically to
review quantitative need taking into account population growth, expenditure
on shopping and other factors including the effect of Sunday opening
in relieving pressure on floorspace and the growth in popularity of
Internet shopping. |
| 11.31 |
In considering retail proposals the Council
will adopt a sequential approach with first preference given to town
centre sites that are within or adjacent to designated shopping frontages.
Proposals which are not in or adjacent to designated frontages, but
which are, or can be made, well-related to designated shopping frontages
are also acceptable. In establishing whether sites are well-related,
the Council will consider matters such as whether: the proposal site
will facilitate easy pedestrian access between the two; a clear retail
link exists or could be established, preferably including a direct
retail frontage; the specific design adds to the integration of the
development; and, shared town centre car parking facilities can be
made available. Due to the linear form of the four district centres
and, to a lesser extent, Richmond, it is likely that other town centre
proposals would be considered to be edge-of-centre locations. Should
other town centre proposals come forward which are not in key locations,
they will also be subject to the criteria in policy TC
2, but not to the test of need. However, it is likely that the
majority of such sites would be capable of being satisfactorily linked
to existing designated frontage. The Council will expect retailers
to adopt a flexible approach to design, format and scale such that
proposals are compatible with the character and function of the area.
Developers should assess whether individual elements within a scheme
could be accommodated in a different form in other more central locations.
Where suitable sites cannot be identified but where there is a proven
need the Council will then consider edge-of-centre sites. Edge-of-centre
sites are defined in PPG 6. The Council expects such proposals also
to be well-related to defined shopping frontages and to facilitate
linked trips. |
| 11.32 |
Out-of-centre stores will generally be
resisted because they do not support the strategy of enhancing town
and local centres which are accessible to all residents, provide a
social focus and provide for linked trips. However, they will be considered
when the town centre and edge-of-centre options are unavailable. Proposals
for edge-of-centre and out-of-centre stores will be considered against
the criteria included in policy TC 2. When assessing the impact of
a retail proposal on the vitality and viability of a town or local
centre the Council will: take into account the risk to the strategy
for the centre; the likely effect on private sector investment; changes
to the quality, attractiveness and character of the centre and to
its role in the economic and social life of the community; changes
to physical condition, changes to the range of services and the likely
increase in the number of vacant properties. The Council may require
an independent study to assess the economic and other impacts of proposed
stores on other retail locations to prove that a need for the proposal
exists and the likely changes to travel patterns that would result.
The Consultants commissioned to undertake, and the parameters used
for any study of this nature, shall be agreed with the Council. Where
necessary the Council will control size and type of shops and type
of goods sold in new schemes through planning conditions or through
agreements under Section 106 of the Town and Country Planning Act,
1990. |
|
|
| |
TC 3 - DEVELOPMENT
IN SMALL CENTRES |
| 11.33 |
In smaller centres extensions
of existing shops and the development of new shops in or adjacent
to key and secondary shopping frontages defined on the proposals map
and in Appendix B will normally be
given favourable consideration so long as the size of development
is not likely to have an adverse effect on other centres or within
the centre itself. The level of non-A1 development will complement
the shopping function of the centre and be of an appropriate scale
and intensity for the size of the centre. |
| |
|
|
| 11.34 |
The main function of the Borough's local
centres is to provide day-to-day shopping facilities and services
for residents. Policies TC 3,
TC 5 and TC
6 are designed to protect that function. Opportunities for limited
expansion of retail provision and other complementary uses and facilities
will be encouraged where appropriate, depending on the size of the
centre and the effect that it would have on other centres. Development
in local centres should be easily accessible by walking, cycling and
public transport, since its serves a local need. Essential services
such as post offices and banks or automated teller machines will be
retained where possible. In order to enhance local shopping centres
it is important that proposals to improve or replace outmoded premises
are encouraged, that successful local traders are able to expand their
businesses and that any growth needed to serve new housing is accommodated
within them. Proposals will be expected to be of a high standard of
design providing full access for people with disabilities. Adequate
provision for refuse storage will be required. |
|
|
| |
TC 4 - FACILITIES IN
NEW RETAIL DEVELOPMENTS |
| 11.35 |
Retail developments will
normally be required to provide full access for people with disabilities
and where appropriate, communication systems for people with sensory
disabilities. In addition, depending upon the scale and type of the
development and its location the Council will normally seek some or
all of the following: |
| |
(a) |
public conveniences (including
a toilet for people with disabilities); |
| |
(b) |
pram parks and baby changing
and feeding facilities; |
| |
(c) |
seats at regular intervals
and at bus stops, secure and conveniently located public cycle parking
facilities and the provision of visitor moorings where appropriate;
|
| |
(d) |
recycling facilities; |
| |
(e) |
crèche/children's play
facilities. |
| |
In addition the Council
will encourage appropriate planning advantages which may be used to
fund town centre management initiatives (see policies IMP
3 and TRN 2). |
| |
|
| 11.36 |
People with disabilities need to be able
to carry out independent shopping trips. Access measures will also
benefit elderly people and anyone with children in pushchairs. Seats
are particularly important to elderly people and to shoppers with
heavy bags. Public conveniences are essential on major shopping trips,
while baby changing facilities and pram parks are a necessity for
carers with young children. The provision of a creche, and in appropriate
cases play facilities will make shopping a more enjoyable activity
for all concerned. Town centres and freestanding shops are particularly
good locations for recycling facilities as they provide the opportunity
for residents to make one trip to both. Secure cycle parking should
be located in a convenient place, preferably near large shop entrances
or in the middle of smaller centres. The Council will encourage Section
106 agreements to fund town centre improvements which are in accordance
with guidance contained in Strategic Planning Guidance for London
(RPG 3) and Circular 1/97. Benefits should be reasonably related in
scale and in kind to the proposed development. Decisions on the allocation
of forthcoming funds will be taken following consultation with the
appropriate Town Centre Management Boards, where they exist. |
|
|
| |
TC 5 - KEY SHOPPING
FRONTAGES |
| 11.37 |
Planning permission will
not normally be granted for changes of use or for redevelopment of
shops that would result in any net loss of shopping floorspace within
parts of centres which are identified as key shopping frontages on
the proposals map and listed in Appendix
B. In those key frontages which the Council considers would benefit
from further consolidation, encouragement will be given to changes
of ground floor premises to shop uses. |
| |
|
|
| 11.38 |
The Council has identified key shopping
frontages from which further non-shop uses will normally be excluded
and where the re-introduction of shop uses will be sought if the Council
considers this would benefit the frontage. The aim is to maintain
and strengthen existing shopping centres which advances the Council's
overall strategy to provide for less mobile residents and reduce the
need to travel, particularly by car. In the larger centres the intention
is to protect the retail integrity of the centre and maintain a compact
and convenient retail core, a choice and variety of shops, and the
visual interest, vitality, attractiveness and continuity of the shopping
frontage. In the case of Richmond town centre and the district centres,
to also ensure that where redevelopment opportunities arise in the
core shopping area to provide larger units, that these are secured
for retail use as there are very limited opportunities to provide
new retail floorspace in these centres. In the smaller centres, the
intention is to maintain a range of basic shops to meet day-to-day,
emergency, and in certain cases, main food shopping needs. Much of
the Borough's shopping provision falls within conservation areas which
have significant numbers of listed buildings. Protection of retail
can help to preserve and enhance the character and appearance of conservation
areas and the architectural and historic integrity of listed buildings.
In designating key frontages consideration has been given to a range
of factors including the demand for shop premises, existing uses,
servicing and access arrangements, and environmental factors. |
| 11.39 |
Whilst normally resisting service uses
in key frontages it is important to accommodate the growing demand
for service uses which serve residents and can often contribute to
the attractiveness and viability of the town centre. In most centres
secondary frontages have been identified to provide for those service
uses (see policy TC 6). In
protecting the function of all smaller centres the Council will, where
it has control, resist the change of use of shops selling convenience
goods and providing other essential goods and services such as chemists,
post offices and hardware shops, where it believes hardship or inconvenience
would result. |
| 11.40 |
The Council has recently carried out a
review of designated shopping frontages. Although the Borough's centres
compare favourably with the national average, some centres are beginning
to show signs of stress including a deterioration in their condition
and in an increase in long term vacancies. This has resulted from
changes in the way we shop and in particular in the rise in popularity
of supermarket shopping. It is important to protect the shopping function
of centres but not to encourage stagnation and decline. In some centres
the amount of secondary frontage has been reduced, and key frontage
has been redefined as secondary frontage, allowing greater flexibility
for change of use in order to stimulate investment and promote the
efficient use of town centres by allowing them to develop in other
ways. |
|
|
| |
TC 6 - CHANGE OF USE
IN SECONDARY FRONTAGES |
| 11.41 |
In parts of centres identified
as secondary shopping frontages on the proposals map and in Appendix
B the Council will restrict the numbers, types and locations of
changes of use of shops and other uses in order to protect the shopping
function and character of the centre. Uses which may be permitted
are those which, in the opinion of the Council, complement retailing
and attract people to the centre by providing services directly to
large numbers of people, or rely on a window display for their operation
and which will not adversely affect the amenities of nearby residents. |
| |
|
|
| 11.42 |
The Council recognises the need to accommodate
the growing demand for financial and professional services and food
and drink outlets, and certain other non-retail uses, which serve
residents and often contribute to the attractiveness and viability
of the centre. Examples are restaurants, cafés, wine bars, snack bars,
libraries, launderettes, betting offices, offices that provide counter
services direct to the public such as banks, building societies, estate
agencies, employment agencies, copy bureaux and community facilities
which need to be visible and serve a passing clientele e.g. advice
bureaux. Not all the uses would be appropriate in secondary locations
and before granting planning permission for any non-shop use the Council
would need to be satisfied that the use: |
| |
|
|
| |
(a) |
is complementary to the
shopping function and provides a direct service to the public; |
| |
(b) |
will not result in an over-concentration
of such uses in the area; and |
| |
(c) |
will not detract from the
residential amenities of the area; and |
| |
(d) |
will not unacceptably add
to traffic and parking problems in the area; and |
| |
(e) |
will not have a detrimental
visual impact on the shop-front; and |
| |
(f) |
will not create an unbroken
run of three or more non-shop units. |
| |
|
|
| 11.43 |
In appropriate cases the Council will
require the provision of a window display. Planning guidance has been
prepared on the treatment of shop-fronts and signs (see policies BLT
20, BLT 21 and supplementary
planning guidance). Criteria (d) and (e) will be particularly important
in judging proposals for "take-aways", restaurants and wine bars (see
policy CCE 18). Proposals
for car showrooms are dealt with under policy TC
10. |
|
|
| |
TC 7 - ISOLATED SHOPS
AND SMALL GROUPS OF SHOPS SERVING LOCAL NEEDS |
| 11.44 |
Planning permission will
not normally be granted for the change of use or redevelopment for
other uses of isolated shops or of shops in small groups which serve
residential areas more than 400m away from a shopping centre. In large
housing developments in areas which the Council considers are deficient
in local shopping the provision of shops may be required as part of
the development. |
| |
|
|
| 11.45 |
The maintenance of shops for day-to-day
needs within reasonable walking distance is of considerable importance
to those households who do not have the use of a car for shopping
and to those unable to travel far from home. They are valued by others
for emergency and top-up shopping. The Council has designated key
and secondary frontages across the Borough, but there are still some
residents who live over 400m from a designated frontage. This is clearly
unsatisfactory for elderly or less mobile shoppers, or people with
young children, as it would require carrying shopping a considerable
distance. Therefore the Council will resist the loss of isolated shops
and small groups of shops which serve these areas. Where closure does
occur and the Council is convinced that reasonable attempts to let
the shop for retailing have failed, it will be concerned to ensure
that the new use is compatible with surrounding uses. Growth needed
to serve new housing should normally take place in existing shopping
centres (policies TC 2 and
TC 3) but where there is
no shopping centre within reasonable walking distance new shops may
be required as part of a new housing development. |
|
|
| |
TC 8 - CHANGE OF USE
IN OTHER SHOPPING FRONTAGES |
| 11.46 |
In parts of shopping centres
not indicated on the proposals map as key or secondary frontages or
covered by policy TC 7, the
Council will generally consider favourably applications for changes
of use to any non-shop use compatible with the retail function of
the centre and community uses, provided that there is no deterioration
of highway conditions or a significant loss of residential amenity.
|
| |
|
|
| 11.47 |
The Council recognises that the past decline
in population and change in shopping patterns have led to a reduction
in shops in the Borough. In some cases, the demand for the type of
non-shop uses which complements retailing is not likely to be sufficient
to absorb the surplus units. Empty shops have a blighting effect and
could provide accommodation for other activities. At the same time
there are several non-shop uses which could benefit from being in
an accessible location. In commercial areas, and especially those
which were formerly designated shopping frontage, such units can provide
employment opportunities. This helps to provide premises for small
businesses and business start-ups, for which there is a demand from
local residents. The Council will consider favourably applications
for such uses where the buildings can be satisfactorily converted,
the proposed use will not adversely affect the functioning or appearance
of the shopping centre or residential amenities and there is sufficient
off-street parking where this is needed. In all cases there must be
suitable treatment of the frontage to maintain townscape quality.
Examples are offices and small workshops, medical surgeries, showrooms
(but see policy TC 10),
solicitors, insurance brokers, driving schools and mini-cab offices
and entertainment uses (but see policy CCE
18). |
|
|
| |
TC 9 - OTHER CONSIDERATIONS
AND CONDITIONS FOR NON-A1 USES |
| 11.48 |
In considering planning
applications for services such as restaurants, public houses, wine
bars, take-aways, launderettes and dry cleaners the Council will need
to be satisfied that the use will not have an adverse impact on the
environment and amenity of residents. |
| |
|
| 11.49 |
There are a number of uses which are appropriate
to shopping centres but which can have a detrimental effect on the
environment and nearby residents, particularly those living above
shops. Where appropriate the Council will use its powers to ensure
the following: |
| |
(a) |
there is adequate soundproofing; |
| |
(b) |
smells and fumes are removed by a satisfactory
ventilation/ extraction system which does not result in undue noise
levels or involve extensive or unsightly external ducting; |
| |
(c) |
that hours of opening and playing of music
are adequately regulated; |
| |
(d) |
provision is made for satisfactory refuse
storage; |
| |
(e) |
adequate provision is made for the disposal
of litter and, where appropriate, facilities are provided for collecting
recyclable products sold at the premises; (see policy CCE
24) |
| |
(f) |
there will not be an increase in on-street
car parking to the detriment of highway conditions. |
| |
(See also policy CCE
18) |
| 11.50 |
Applicants should be aware that licences
from the relevant licensing authorities may be needed and that the
receipt of planning permission for a proposal does not guarantee such
licences. The Council will liaise with the licensing magistrates to
ensure that clear and consistent policies are produced to minimise
any impact on the environment and amenity of residents. |
| 11.51 |
The Council recognises that adequate cleansing
and litter collection are necessary to maintain the attractiveness
of the Borough's town centres. However, planning powers are limited
on this issue. The Council will encourage the use of voluntary agreements
for litter collection within the vicinity of proposed developments
which include a take-away element. Section 106 agreements may be used
depending on the scale of development. |
| 11.52 |
The Council will encourage applicants
for change of use, affecting premises in town, district and local
centres to include separate access to accommodation on upper floors
where practicable in order to ensure this space is fully utilised. |
|
|
| |
TC 10 - MOTOR VEHICLE
SALES AND SHOWROOMS |
| 11.53 |
The Council will not normally
grant planning permissions for shops for the sale of motor vehicles
and non-retail showrooms in key and secondary shopping frontages. |
| |
|
|
| 11.54 |
Non-retail showrooms are defined as premises
primarily used for display purposes where no direct retail sale is
intended and which do not fall within the definition of a shop in
the Town and Country Planning (Use Classes) Order 1987. Showrooms
tend to break up the retail frontage and generally do not generate
much activity. In order to protect the function and character of shopping
centres the Council will normally restrict showrooms to the fringes
of centres. When considering proposals for car showrooms it will take
into account the likely effect on the street scene of vehicles displayed
outside and the suitability of access arrangements. It will generally
require access to be from the rear. The policy will also apply to
car sales from open land. The Council will encourage applicants for
changes of use to include separate access to accommodation on upper
floors where practicable in order to ensure this space is fully utilised. |
| |
|
| |
 |
 |
|
|
|
| top |