Rochdale Metropolitan Borough Council - Unitary Development Plan 2006

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Chapter 10

SHOPPING AND THE ROLE OF CENTRES

10.1Within the borough of Rochdale, there are four town centres, Rochdale, Middleton, Heywood and Littleborough, and one district centre, Milnrow. Rochdale, as the largest of the centres, performs a special role as a sub-regional shopping centre and as the main focus for retail, commercial, employment, social and community activity in the borough. It also contains a large number of multiple national retailers.

10.2Middleton, Heywood and Littleborough also perform town centre functions, although in Heywood and Littleborough there are few multiple national comparison goods retailers. The three centres also meet the day to day convenience shopping needs of surrounding residential areas. Heywood town centre is underpinned by a large supermarket and the intention is that a similar development will contribute to the regeneration of Middleton town centre.

10.3Milnrow, as a district centre, contains smaller convenience stores, a more limited range of mainly independent comparison shops, and a number of other services and facilities. It serves a smaller catchment population than the town centres.

10.438 local centres of varying sizes are identified. They serve, or have the potential to serve, the day-to-day shopping requirements of surrounding areas within a short walking distance of them.

10.5The majority of the urban area is within 500m of a defined centre, and therefore has good access to the facilities located within these centres.

10.6Shopping underpins the economy of centres and serves to anchor other businesses and community facilities that contribute to their vitality and viability. Retail, commercial, entertainment and leisure development should firstly be directed to town centres where suitable sites or buildings suitable for conversion are available. If no suitable sites are available, and a need has been demonstrated, development should be sited in accordance with the sequential approach set out above.

10.7The sequential approach aims firstly to maintain a strong concentration of retail and other potential high trip-generating activity within the four town centres, and to contribute towards improving, modernising, and increasing the attractiveness of all centres within the borough. It also reflects the importance of town, district and local centres in achieving sustainable patterns of development and land use, as set out in PPG6 "Town Centres and Retail Developments" (1996). The concentration of activities also supports the provision of public transport, enabling more people to access a wider range of activities and services, and facilitates combined trips, for example, for work and shopping or shopping and leisure, thereby reducing the need to travel. According to PPG6, if no suitable sites can be found in town centres, the next preferred option should be edge-of-centre sites.

10.8A number of sites on the edge of Rochdale town centre in particular have been developed, with two non-food retail warehouses at The Point retail park on Molesworth Street, four at the Central retail park on Drake Street/Richard Street/Oldham Road, another two on Whitworth Road, and a non-food retail warehouse and a large supermarket on Dane Street. As they are established retail locations, and are within a relatively short distance of the main retail core, these sites are the preferred location for major new development if no suitable central town centre sites are available. This is in preference to district and local centres, where access to facilities is unlikely to be as good, and levels of pedestrian movement are likely to be lower. Edge-of-centre retail parks are not shown on the proposals map.

10.9In accordance with the sequential approach, if no suitable town centre or edge-of centre sites are available, development will be directed to district and local centres.

10.10Out-of-centre sites away from existing retail provision will only be considered if there is a demonstrable need, there are no sequentially preferable sites available, in locations that are accessible by a choice of means of transport and preferably that are close to a centre that the development could link with.

10.11In 2001, consultants undertook a retail expenditure potential study of the Borough, which included an analysis of the current levels of retail provision in Rochdale, Middleton and Heywood, and the likely need for further retail floorspace in the borough. Their findings have aided the formulation of policies in this chapter, and will also be used in assessing applications for major retail development. The Council will periodically update the retail expenditure study as required and take into account any new information in determining retail applications.

10.12The Council has an important influence over the environment of the centres both through direct implementation and through encouragement and co-ordination of works by others. Landscaping, environmental and building improvements will all be promoted to enhance the centres’ visual attractiveness and physical environment. The improvement of transport interchange facilities, rationalisation of traffic circulation, continued introduction of traffic calming measures, and signposting for both pedestrians and traffic will facilitate access to centres and help to reduce conflict between pedestrian and vehicle movement. Together with the improvement of facilities for pedestrians, such schemes will contribute towards a safer environment and facilitate ease of movement within the centres. Such improvements will either be funded by the Council and / or other agencies or may be sought as appropriate through legal agreements or planning obligations associated with planning permissions for development in the centre.

10.13In addition to the policies in this chapter, a number of policies elsewhere in the UDP are also relevant to the regeneration of, and nature, location and design of new development in town, district or local centres. The particularly relevant policies are:

• Employment and the Economy (8) Policy EC/6 "Office Development" seeks to encourage major office developments to locate within town and district centres.
• Housing (9) Policy H/13 "Residential Uses Above Retail and Commercial Premises" will permit residential use above retail and commercial premises within centres, subject to criteria being met, to improve viability and vitality.
• Leisure and Tourism (11) Policies G/LT/1 - LT/5 all relate to leisure and tourism, which contribute to the economies of a number of centres within the Borough.
• Regeneration (12) Policy G/R/1 "Physical Regeneration" identifies four priority areas for physical regeneration within the Borough and these incorporate the town centres of Heywood, Middleton and Rochdale.  Specific sites for physical regeneration and redevelopment are identified.  Those within or adjacent to a town or district centre include Areas of Opportunity at Ealees, Littleborough (See Policy R/4(a)), Riverside, Rochdale (See Policy R/4(e)), and Assheton Way / Townley Street, adjoining Middleton town centre and associated with a potential redevelopment for retail use (See Policies R/4(g) and S/12), as well as a Physical Regeneration Area at Drake Street, Rochdale (See Policy R/3).  Detailed approaches for each area are set out in these policies.
• Accessibility (18) Policies G/A/1 - A/10, A/15 - A/18, A/22 and A/24 all illustrate that the issue of accessibility is especially important in centres. Policies A/3 - A/10 relate to measures that must be considered when undertaking new development within centres, and Policies A/15 - A/18 relate to the provision of public transport.  Through these policies, the Council will promote improvements to public transport facilities and modes of transport other than the private car.
• Design and the Built Environment (19) Policies G/BE/1 - BE/8 cover issues relating to design of buildings, landscape, street furniture and public art.  Quality design is critical to the appearance and perception of a centre, and these policies seek to achieve this.  Some centres also contain Listed Buildings and areas designated as Conservation Areas.  These will be subject to additional restrictions on development that are covered by Policies BE/12 - BE/19.
• Environmental Management (20) Policies EM/10 "Derelict Land and Buildings" and EM/11 "Other Degraded Land and Buildings" encourage the redevelopment and reuse of derelict and other degraded land within centres.  Underused land is a particular problem in edge-of-town centre locations.

10.14Primary Shopping Areas (PSA) are identified in Rochdale, Middleton and Heywood town centres. These are the areas with the highest commercial rental values and, in general, the highest concentration of retail activity (and, in Rochdale and Middleton in particular, concentrations of national and regional multiple retail companies). The maintenance of this retail profile is important to the shopping function and character of these town centres. Littleborough town centre does not have the concentration of retail activity that warrants a Primary Shopping Area designation.

10.15The Rochdale PSA includes only premises fronting Yorkshire Street, Lords Square and the malls within the Rochdale Exchange and Wheatsheaf Shopping Centres. The Middleton PSA includes all units fronting the mall at both levels within Middleton Shopping Centre, while the Heywood PSA includes only a limited number of properties fronting Market Street plus the large comparison store in the Times Mill Retail Park.

10.16For an expansion of an existing use to be permitted, an applicant will need to adequately demonstrate why it should be located within the PSA, and that no other appropriate sites are available within the town centre.

10.17To be classed as over-dominant, a property will have expanded to more than twice its original size, or have become significantly larger than surrounding frontages. If the number of non-retail units rises above 20% of the total number of ground floor or mall level units within a PSA this would be considered to be over-dominant and likely to have an adverse impact.

10.18The vitality of a town, district or local centre is determined by actual and perceived activity at different times of day. This includes pedestrian activity in the street and activity ‘visible’ within buildings including the presence of displays in shop windows and lighting at night, the maintenance of buildings and spaces, the perception of safety and occurrence of crime and the ease of access.

10.19Viability is concerned with economic issues including retailer representation, rental levels, the returns on investment in property and businesses, vacancy rates and diversity of uses.

10.20To make an exceptionally valuable contribution to the vitality and viability of a centre, a development will need to provide to a high standard an appropriate service or facility that is not currently provided effectively within the centre and could not be appropriately located elsewhere in the centre.

10.21If permission is given for a change to A3 use (including as an exception to policy) there may be a need to attach conditions designed to restrict future uses, although this will be examined in the circumstances of each case. The reason for this is to safeguard the objectives of the policy, namely maintaining a high concentration of retail activity within the PSA. Other conditions required to safeguard the vitality of the PSA will concern the style and treatment of frontages to the street or mall to ensure that the continuous pattern of retail-style display windows does not become fragmented.

10.22In Rochdale, Middleton, and Heywood, the areas outside of the PSAs which still contain a concentration of shops, financial and professional services and food and drink uses are identified as Secondary Shopping Areas (SSA). Littleborough town centre does not have a PSA, but has an equivalent mix of uses to the SSAs, and is identified as a Central Shopping Area (CSA).

10.23It is important to the vitality and viability of the centres that the range of uses in the SSAs and CSA are retained. The areas are relatively tightly drawn and there is ample scope for the location of other uses appropriate to a town or district centre elsewhere in the centres.

10.24Food and drink outlets are those within Class A3, which include restaurants, pubs, cafes and fast food takeaways.

10.25Those parts of town centres not identified as Primary, Secondary or Central Shopping Areas, are appropriate locations for a wide range of uses.

10.26Different developments and uses are appropriate in different locations depending on the type and level of activity in the area. The Policy seeks to promote uses and activities that will generate economic activity for each other and not adversely affect amenity in sensitive locations. For example, offices and housing at the ground floor will be inappropriate where nearby businesses are relying on a volume of pedestrian activity to generate trade, unless there is little pedestrian activity at present and little prospect of securing development that will generate that activity. However, both uses would be appropriate above ground floor commercial uses where space would otherwise be underused, unless there are bars and clubs nearby that would cause a nuisance at night time, in which case caution would be required. Manufacturing, warehousing and distribution would not be considered appropriate uses within any of the town centres.

10.27New shopping floorspace includes both convenience and comparison goods retailers.

10.28Major retail and leisure development is defined as having a floorspace over 1000 square metres gross. This can make a positive contribution not just to its immediate surrounding area, but to the regeneration and quality of centres overall, provided that it is sited in suitable locations by being, for example, well related to existing provision, including Primary, Secondary or Central Shopping Areas within town centres. However, development of this size can also have a negative effect on a centre if it is not located carefully. For this reason these developments must satisfy the additional criterion stated in the policy, to ensure that the impact on the rest of the town centre is positive. What is regarded as an appropriate distance from the PSA/SSA/CSA will depend on the characteristics of the individual location, but in Rochdale the valley setting of the town and the historic pattern of retail development means that this distance is likely to be greater than in the other three town centres. Applicants may also be required to submit a Design Statement with their application for major retail developments, to ensure that they relate well to existing surrounding retail provision (See also Policy LT/4 - "Major Built Leisure, Cultural And Tourism Developments"). Where a development could substantially increase the attraction of a centre its potential impact on other centres should also be assessed.

(Note: The sequential approach is defined in Policy G/S/1 - "Hierarchy and Role of Centres", and vitality and viability is defined in Policy S/3 - "Primary Shopping Areas.")

10.29Milnrow District Centre is an appropriate location for a wide range of uses, although it serves a smaller catchment area than the town centres.

10.30Local centres also have an important role in facilitating access to services and facilities, thereby reducing the need to travel. 38 local centres are identified on the Proposals Map and in Appendix B. Outside of the town and district centres, these are the main concentrations of shops, services and associated facilities primarily serving local communities but also including specialist shops that serve a wider area.

10.31The local centres differ significantly in size, character and condition. A relatively small number are thriving with no vacant premises or sites but the majority are in need of regeneration, many with serious problems of vacant units and/or sites and poor environmental conditions.

10.32In many local centres there are houses at ground floor level, while others have residential properties above shops. Where there are large areas of vacant commercial premises, conversion to housing could be beneficial to the regeneration of the centre.

10.33The overall objective is to sustain and support the local centre functions in these locations and secure regeneration where needed. The scale and character of development that will be appropriate will be dependent on the scale and character of the centre concerned and its surroundings. A small supermarket might be appropriate in some of the larger local centres where it would assist regeneration.

10.34There are a number of linear commercial areas along main road frontages close to Rochdale and Heywood town centres that are made up of small scale commercial uses and vacant units and plots. They don't have the range of uses and are not in suitable locations to be defined as local centres but they do warrant a similar policy approach. These areas are identified on the Proposals Map and in Appendix B.

10.35For retail developments over 500 square metres, there may be exceptional cases where a proposal for major retail development does not comply with the sequential approach, but is deemed critical to secure the future health and vitality of the centre while not having an adverse impact on that, or any other centre.

(Note: The sequential approach is defined in policy G/S/1 - "Hierarchy and Role of Centres", vitality and viability is defined in policy S/3 - "Primary Shopping Areas" and need is defined in policy S/8 - "Retail Development Outside Town, District and Local Centres.")

10.36New shops and services of a scale primarily to serve local needs should be located in or immediately adjacent to existing centres unless the applicant can demonstrate that it will meet the needs of an area, or proposed residential or employment development, not reasonably served by an existing centre. This can include areas with existing shops where the shops do not adequately meet local needs.

10.37Services include financial and professional services within Class A2, food and drink outlets, offices and community and cultural facilities.

10.38The consideration of whether an area is well served by existing centres and shops will be determined by:

• The number of households or businesses within a short walking distance of the proposal that are not presently within a reasonable walking distance of an existing centre or shops; and
• The nature and range of those shops currently within reasonable walking distance.

10.39In each instance a short walking distance will be in the region of 500 metres. Consideration will include the overall benefits of the new shop or service against the potential diversion of trade from a nearby centre and impact upon it.

10.40In assessing whether vacant properties are suitable, consideration will be given to issues such as size, condition and sale price or rental level, which should not be significantly above market values.

10.41Shops to meet local needs and ancillary shops at petrol filling stations are not likely to exceed 250m². A significantly larger shop would be subject to Policy S/8 - "Retail Development Outside Town, District and Local Centres" and major leisure developments would be subject to Policy LT/4 - "Major Built Leisure, Cultural and Tourism Developments." Hot food takeaways and private hire vehicle booking offices are also covered by Policies S/10 - "Food and Drink Outlets" and S/11 - "Taxi and Private Hire Vehicle Booking Offices" respectively.

10.42This policy relates to retail development on the edge of and outside town, district and local centres and therefore also applies to development within and adjoining existing edge-of-centre and out-of-centre retail developments.

10.43When demonstrating need, an applicant should place greater weight on quantitative need, taking into consideration:

• Capacity, in both physical and financial terms;
• Demand, in terms of available expenditure within the catchment area; and
• The predicted impact of the development on existing retail provision.

Although generally given less weight, qualitative need may also be taken into account, by assessing the proposed nature of the development, including issues of quality in terms of the ‘retail offer’, compared with existing retailing.

10.44In accordance with the sequential approach, the policies in this chapter aim firstly to direct development towards town centre locations. Subject to need being demonstrated, if no suitable town centre sites are available, edge-of-centre locations should be used. For Rochdale town centre in particular, edge of centre sites may be substantially above the 200 – 300 metres walking distance from the Primary Shopping Area commonly regarded as edge-of -centre. This arises because the valley setting of the town centre and the historic pattern of retail development has meant that sites closer have not been available. Development within or adjoining existing out-of-centre retail developments should only be considered after all possible locations in and on the edge of town centres, and then in district and local centres have been exhausted.

10.45A proposal for a major out-of-centre development should demonstrate that the development cannot be sub-divided so that the constituent parts could be accommodated in sequentially preferable locations. It should also demonstrate that the 'class of goods approach' has been applied in preference to the 'format driven approach'. This means that the key question should be whether there is any reason why such goods cannot be sold from town centres, rather than the developer having a preferred format which, in their view, does not fit into town centres.

10.46New out-of-centre sites away from existing retail provision should only be considered when no other sequentially preferable sites can be identified.

10.47Specialist shops are defined as the following:

a.Nurseries and Garden Centres requiring large external storage and display areas;

b.Petrol Filling Stations (but not including ancillary shops), Tyre and Exhaust Centres, Car and Caravan Sales;

c.Builders and Plumbers Merchants, Timber Suppliers, Hire Depots and other outlets providing a service mainly to the trade; and

d.Other specialist shops selling goods that would not ordinarily be found in town, district and local centres (for example: boats chandler and farm produce shops).

10.48Most of the specialist shops listed above would also be permitted in Mixed Employment Zones.

(Note: The sequential approach is defined in Policy S/1 - "Hierarchy and Role of Centres", vitality and viability is defined in Policy S/3 - "Primary Shopping Areas,"  the circumstances when a Transport Assessment will be required are set out in Policy A/11 "New Development - Transport Assessments" and the Strategic Highway Network is defined on the Proposals Map and is described in Policy A/24 - "Strategic Highway Network.")

10.49The Borough is traditionally a manufacturing area with close links between businesses and local people. As such, direct sales to the public are not a new practice. However, as noted elsewhere, manufacturing has declined and there are a large number of economically marginal older industrial buildings. In addition, businesses are subject to economic fluctuations. In such circumstances, a shop can be an important component in sustaining a business and/or a building and an exception to normal shopping policy is appropriate.

10.50“Factory Shops” are generally considered not to require planning permission where the goods being sold are wholly made on the premises and the retail use will clearly be ancillary to the industrial use. However, the definition of what requires planning permission in this context can be uncertain and also it can be unclear what scale of retailing would be acceptable. Therefore, this policy indicates what will be allowed should planning permission be deemed to be required and indicates restrictions to such development.

10.51Shops in or as an extension to industrial premises within Primary Employment Zones are not permitted by this policy due to these areas being some of the best locations for industrial, warehouse and business development in the borough. The Council will therefore seek to maximise the use of these areas for industrial uses.

10.52The policy does not allow shops above 500 square metres within or as an extension to industrial premises due to the adverse impact on the vitality and viability of nearby town and district centres. Any proposals for such shops will be subject to the provisions of Policy S/8 “Retail Development Outside Town, District and Local Centres”.

10.53The display and sale of goods should be limited predominantly (in the region of 75%) to goods produced, assembled or repackaged on or off the premises by the business, or by companies in the same business group, and conditions will be applied to ensure this.

10.54Approval may also be conditioned to restrict the range of goods to be sold to ensure that it will not adversely affect a nearby centre.

10.55Food and drink outlets can provide an important service locally or as part of a visit to other locations for work, shopping and leisure. However, inappropriately sited, they can have a detrimental impact on the amenity of an area and surrounding uses, in particular, residential uses. Issues include traffic flows, road safety, hours of opening, cooking smells and litter. Conditions will be used to restrict hours of opening where this will satisfy concerns about amenity.

10.56A concentration of such uses, in particular, hot food takeaways and pubs can attract large numbers of people and magnify the problems, including anti social behaviour late at night. Issues of over concentration will be judged against the impact on amenity together with wider interests and profile of the area and any record of problems.

10.57Depending on the location of the proposed development, applicants will need to ensure that they have complied with Policy S/3 - "Primary Shopping Areas", Policy S/4 - "Secondary and Central Shopping Areas", Policy S/5 - "Development Elsewhere in Town Centres", Policy S/6 - "District Centre, Local Centres and Linear Commercial Areas", Policy S/7 - "Local Shops and Services" or Policy S/8 - "Retail Development outside Town, District and Local Centres."

10.58Private hire vehicle booking offices provide a useful service but, like hot food takeaways, they can be poor neighbour uses. Hence, the policy seeks to ensure that they are located appropriately in terms of the amenity neighbouring uses, in particular, residential uses, traffic flows and road safety. Conditions will be used to restrict hours of use where this will satisfy concerns about amenity.

10.59Depending on the location of the proposed development, applicants will need to ensure that they have complied with Policy S/3 - "Primary Shopping Areas", Policy S/4 - "Secondary and Central Shopping Areas", Policy S/5 - "Development Elsewhere in Town Centres", Policy S/6 - "District Centre, Local Centres and Linear Commercial Areas", or Policy S/7 - "Local Shops and Services".

10.60The site, in the eastern part of Middleton town centre, currently contains a variety of uses, including civic and leisure facilities, a small amount of retailing provision, a market, and car parking. It has been identified as a site for possible development because of its proximity to other retail provision and good access links.

10.61A clear need for a major new retail development within Middleton has already been demonstrated, as the centre is currently relatively uncompetitive and is losing trade to neighbouring town centres and Manchester city centre, and the site identified is the only feasible location for major retail development within the town centre. A major retail development on this site should strengthen retail provision in Middleton town centre, and assist regeneration.

10.62The redevelopment or remodelling of new retail facilities within the site should be located in such a way that it complements other elements of the town centre.

10.63The allocation includes part of a Secondary Shopping Area (Policy S/4 "Secondary and Central Shopping Areas"). A comprehensive scheme for major retail may need to incorporate this area but the Council will expect the adjacent listed buildings on Manchester New Road to be retained and the impact of any new development on the setting of the buildings to be addressed.

10.64An application will need to include a design statement, to ensure that development is of a high quality and relates well to surrounding uses. A transport assessment will be required, due to the potentially significant volume of traffic that could be generated by the development, and the impact that it could have on the town centre. A Travel Plan will be required in accordance with Policy A/12 and PPG13, demonstrating good access to the site by a range of modes of transport. Good pedestrian links to other parts of the town centre are essential, including to the area east of Assheton Way (See Policy R/4(g) "Assheton Way / Townley Street Area of Opportunity"), where the displaced civic and leisure uses may be relocated.

10.65The council is actively discussing options with prospective developers and landowners. Detailed proposals will be subject to extensive consultation.