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| Part 2 4 - TOWN CENTRES, RETAILING AND LEISURE |
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| S1 | Town Centre Improvement | ||
| The Council will identify and implement improvement and investment schemes, where necessary, to support and develop the role of Ashton-under-Lyne as the Borough's sub-regional shopping centre, of Hyde as a large district centre, of Denton, Droylsden and Stalybridge as district centres, and of Mossley and Hattersley as small district centres, each with their own identity. | |||
| These will include measures to enhance the environmental quality and appearance of the centres, to support and develop their role in providing office and other employment, to improve their accessibility by public and private transport and for pedestrians, and to make them safer by designing out crime. Improvements will be designed to provide for high-quality townscape, sensitive to peoples needs and respecting the character of surroundings. | |||
| PPG1 and PPG6 emphasise the vital role of town centres in delivering sustainable development and establish that it is one of the Government's objectives to sustain and enhance the vitality and viability of town centres. These factors depend on retaining and developing a wide range of attractions and amenities, creating and maintaining an attractive environment, ensuring good accessibility to and within the centre, and attracting continuing investment in development or refurbishment of existing buildings. Town centres are important not just for shopping, and can have a well established function as places providing employment. Potential may exist to locate further B1 office uses in suitable town centre locations. The Government also wishes to promote greater consideration of design in order to improve the environment in town centres. | |||
| In September 2000 the Council commissioned a Tameside Retail Study by the consultants CB Hillier Parker, including a review of existing health check data and a household survey to inform potential for future retail capacity. The study, which was completed in January 2001, demonstrated a clear retail hierarchy in the Borough, with Ashton performing as the main sub-regional centre, Hyde as a large district centre, and Denton, Droylsden and Stalybridge as district centres. The relatively free-standing character of the communities surrounding Mossley and Hattersley leads the Council to regard them as small district centres. The network of large scale retail provision in the Borough also includes the out-of-centre Snipe Retail Park at the border of Ashton and Audenshaw which contains a number of non-food, bulky goods stores, along with free standing, out-of-centre food superstores in Dukinfield and Denton. | |||
| The historical and geographical pattern of formerly separate small manufacturing towns has resulted in a distinct identity to the towns which make up Tameside, along with a more dispersed pattern of town centre shopping floorspace compared with some other boroughs, although Ashton-under-Lyne is the largest centre and the administrative focus. Similar policies have been followed for some years and major schemes have been carried out to improve the quality of the centres and to make them more attractive to both visitors and investors, particularly in Ashton, Hyde and Stalybridge. It will be important that schemes of this kind continue to be brought forward as necessary. Vibrant and attractive town centres help to stimulate confidence in the wider area, present a positive impression to visitors and provide a range of accessible facilities and service sector jobs for local people. | |||
| S2 | New Retail Developments in Town Centres | ||
| The Council will permit new retail developments within the Borough's town centres (as defined on the proposals map). | |||
| Where necessary the Council will identify sites for such development within the town centres, and will promote their availability through measures such as preparation of design briefs and initiation of land assembly. | |||
| PPG6 establishes that town and district centres should be the preferred location for developments that attract many trips (which includes retail). UDPs should consider existing provision and identify sites for development. Local planning authorities should, after considering the need for new development, adopt a sequential approach to selecting sites for new retail development. First preference should be for town centre sites, where suitable sites or buildings suitable for conversion are available. The proposals map defines boundaries for each of the town centres for the purposes of policies S1-4. | |||
| The Tameside Retail Study (January 2001) indicated that, taking account of existing commitments, there was not an immediate requirement for major additional floorspace in Ashton, although this could be practical within 5-10 years. Neither was a need demonstrated in the other centres, with the exception of a new foodstore in the centre of Denton. However each of the centres would benefit from being able to attract individual retailers where possible, hence the general presumption in favour of town centre retail developments and the intention to facilitate the availability of sites if necessary. The Government has clarified that proposals for new retail development on sites within an existing centre should not be required to demonstrate need. Such development should be of an appropriate size for the centre in question and might usefully include other compatible uses, including offices and leisure. | |||
| Please note that proposal S2(1) (Stockport Road / Saxon Street, Denton) has been removed from the plan due to development starting | |||
| S3 | New Retail Developments outside Town Centres | ||
| Large-scale retail developments outside the Borough's town centres (as defined on the proposals map) will only be permitted where each of the following criteria can be satisfied: | |||
| (a) | there is a proven need for the proposed development, and | ||
| (b) | the development complies with the sequential approach, in which first preference should be for town centre locations, where suitable viable sites are available, followed by edge-of-centre sites, district and local centres, and only then by out-of-centre sites in locations that are accessible by a choice of means of transport, and | ||
| (c) | the development would not result in an unacceptable loss to the vitality and viability of any nearby town centre, and | ||
| (d) | the development would not result in an unacceptable increase in congestion on the surrounding highway network, and | ||
| (e) | the development would be accessible by public transport from a wide area and would not significantly extend journey patterns. | ||
| Where these criteria can be satisfactorily addressed, the Council will first wish to see identified needs met at existing out-of-centre locations. | |||
| The sequential approach set out in PPG6 requires that for new retail development first preference should be for town centre sites, followed by edge-of-centre sites, district and local centres, and only then out-of-centre sites in locations that are accessible by a choice of means of transport. It is also clear that the need for a proposed development must be established and that it should be assessed, among other things, on its impact on the vitality and viability of existing centres, on its accessibility and on its impact on travel and car use. | |||
| Capacity modelling in the Tameside Retail Study (January 2001) indicates there is little need for further large scale convenience store development in the Borough after existing commitments are taken up. However, competition between operators for market share cannot be entirely ruled out. The study suggests potential for further retail warehouse development within the Borough and some evidence of retailer demand for this. A criteria-based policy reflecting PPG6 is therefore required against which any large scale non town centre retail proposals can be considered. If such proposals are shown to meet each of the criteria (a) to (e) in this policy it would be preferable, from the point of view of sustainability, to first take up any potential at existing out-of-centre retail locations before considering new free standing sites. This should improve opportunities for single trips to retail destinations and help reduce increases in the number of journeys. Policy S3 will not apply to developments of less than 1,400 sq metres gross floorspace which are intended primarily to serve local needs (such as a neighbourhood foodstore) although these will be subject to policy S6. | |||
| S4 | Retail Dominance and Shopping Frontages | ||
| In the primary shopping areas of the town centres as shown on the proposals map, the Council will not permit the change of use of retail premises to non-retail uses where this would create an imbalance or dominant grouping of non-retail uses in any particular area. A continuity of shop fronts will be required within the primary shopping areas. | |||
| Outside the primary shopping areas, the Council will permit a diversity of uses which contribute to the overall appeal of the town centre, help to minimise the extent of empty properties, and improve the appearance of the centre. | |||
| Consideration will be given to diversifying the leisure business in Ashton town centre and avoiding the night time economy creating street frontages which have no attraction to visitors during the remainder of the day. | |||
| PPG6 says that local planning authorities should encourage diversification of uses in town centres as a whole, as this makes an important contribution to their vitality and viability. Whilst recognising and supporting the shopping function of the primary shopping area, policies should reflect the differences between the type and size of centres. The Tameside Retail Study (January 2001) suggests that retail cores need to be defined for Ashton and Hyde town centres where retail uses should be protected and encouraged, but that diversification through alternative uses should be encouraged in Denton, Droylsden and Stalybridge as retailing may continue to contract there. | |||
| The primary shopping areas are therefore only defined for Ashton and Hyde town centres. Although certain financial services and restaurants are essential facilities within centres, often attracting large numbers of visitors, the interest to pedestrians could be diminished if the prime areas are broken up by too many non retail uses. A balance needs to be struck on this issue and as a guide the Council would normally wish to avoid more than two separately occupied non Class A1 units being situated adjacent to each other, and an overall proportion of such units exceeding one third, within the defined areas. | |||
| Ashton has a lively bar and club scene which attracts large numbers of young people into the town centre on weekend nights. However, as well as the nuisance or public order problems this can cause, it results in a number of uses which are only active or thriving outside normal shopping hours and which may therefore detract from the appearance and interest of the centre to day time visitors. It is hoped that a wider mix of leisure uses can be encouraged in the centre, including multi-use of premises where possible, to enable the night time economy to co-exist better with the role of Ashton as the Borough's principal shopping centre. | |||
| S5 | Changes of Use in Local Shopping Centres | ||
| In the local shopping centres and parades shown on the proposals map, and in the case of individual neighbourhood shops, the Council will permit changes of use of retail premises to other uses where each of the following criteria can be satisfied: | |||
| (a) | continued retail use does not appear to be viable, and | ||
| (b) | introduction of other uses would reduce the extent of vacant properties and improve the local environment, and | ||
| (c) | the day to day needs of the local community can still be met from other local shopping facilities in the area. | ||
| PPG6 says that local planning authorities should adopt policies to safeguard and strengthen existing local centres, which offer a range of everyday community, shopping and employment opportunities. In addition to its several town centres, Tameside contains a series of local shopping centres and parades of varying size, age and condition, along with individual local shops. The location of those centres which contain four or more adjacent or closely associated shop units is shown on the proposals map, but this policy also applies to smaller groups and standalone local shops. | |||
| Local centres meet day to day needs of the nearby area and are especially useful to the elderly and people who are less mobile. Their role has to some extent been eroded over recent years however by the growth of large food superstores and increased car ownership, often resulting in vacant units, less beneficial uses and deteriorating standards of appearance. A balance needs to be struck between retaining facilities which could meet a valuable community need and avoiding long vacancies in difficult to let units, which might lead to vandalism and decay and actually worsen conditions for other occupiers. | |||
| S6 | New Local Shopping Developments | ||
| The Council will permit the development of additional neighbourhood foodstores, local shops and other small scale retail outlets serving local needs where suitable sites or buildings are available, so long as these: | |||
| (a) | will not adversely affect the vitality and viability of established district or local centres, and | ||
| (b) | will not lead to a loss of amenity in surrounding residential areas, and | ||
| (c) | will not result in traffic problems on adjacent highways. | ||
| This policy is concerned with retail development outside the Borough's town centres, but which is of a smaller scale than that covered by policy S3 (less than 1,400 sq metres gross floorspace) and caters for local needs. The type of retailing or goods to be sold is therefore relevant as well as size. The gradual decline in small local shops which has been evident over a number of years can reduce the facilities available to people who rely upon or wish to walk in or use public transport for day to day requirements. Less sustainable journey patterns are one result of this trend. This policy seeks to take advantage of whatever opportunities may arise for improving local shopping provision, so long as this would not weaken existing local centres or cause amenity or traffic problems. | |||
| S7 | Food and Drink Establishments and Amusement Centres | ||
| Developments for food and drink or amusement centre use will only be permitted where they: | |||
| (a) | do not harm the amenity of surrounding residential or other sensitive areas, and | ||
| (b) | do not create a danger to road users, and | ||
| (c) | cumulatively, do not lead to an unacceptable change in the character of an area. | ||
| Food and drink establishments and amusement centres, as non retail uses which often occupy former shop premises, are subject to the requirements of policies S4 and S5. However, whilst forming part of the diverse range of services expected in a town centre or wider urban area, they can have characteristics or effects which may sometimes create environmental or traffic problems other than the loss of shops and the break up of shopping frontages. This might be particularly so if such uses became dominant in one small area or were located in close proximity to dwellings or without adequate parking. This policy makes clear the type of considerations to be taken into account in assessing the circumstances of any particular case. | |||
| S8 | Built Recreation, Leisure and Tourism Developments | ||
| Leisure proposals which are expected to attract large numbers of visitors will be permitted within the Borough's town centres (as defined on the proposals map). | |||
| Such proposals not within town centres will be required to demonstrate firstly that a need exists for the additional facilities and if so that a sequential approach has been applied, in which first preference is for in-centre locations, where suitable viable sites are available, followed by edge-of-centre sites, district and local centres, and then by out-of-centre locations accessible by a range of modes of transport including public transport. | |||
| The Council will permit proposals for all other new, replacement, improved or extended facilities for indoor sport, recreation, leisure or tourism, provided any scheme will not lead to an unacceptable loss of amenity in surrounding residential areas or lead to traffic problems on adjacent highways. | |||
| Particular emphasis will be given to maintaining and improving recreational opportunities at the local and neighbourhood level and to increasing their provision in areas of the Borough which are relatively deficient or where extensive areas of new housing are to be built, and which meet an identified need in the District Sport and Recreation Strategy. | |||
| In PPG6 the Government establishes that town and district centres should be the preferred location for developments that attract many trips, and explains that the sequential approach should also apply to all key town centre uses which attract a lot of people, including entertainment and leisure. Local planning authorities are expected to encourage diversification of uses in town centres as a whole, with various leisure uses adding variety. Leisure developments in or adjacent to town centres will help to consolidate the role of the centres, promote urban regeneration and ensure accessibility of the facilities not just to car users but to all sections of the community. In relation to the first paragraph of this policy, "leisure proposals which are expected to attract large numbers of visitors" could include multi-screen cinemas, bowling alleys, family entertainment centres, concert halls, theatres, bingo halls, hotels, casinos, night clubs, and larger scale health, fitness and sports centres. It is not possible to define such uses absolutely, because the nature of the commercial leisure industry may result in new or modified forms of development coming forward, but the key criteria is the capacity to attract large numbers of visitors. | |||
| The leisure and tourism industry is a major contributor to the local economy in many parts of the country, although traditionally it has been relatively low key in Tameside. Whilst some hotel and fitness schemes have come forward since the mid-1990's the Borough has not, until very recently, shared in the larger scale leisure and entertainment projects which are underway or proposed elsewhere. However, a major development comprising multiplex cinema, bowl complex, restaurants, drive thru's and a further leisure unit was under construction on Ashton Moss in 2003. This policy is intended to make it clear that in general the development of built recreation, leisure and tourism facilities and services is welcomed in Tameside, so long as local conflicts are avoided. This would include further hotel development, in order to accommodate more of the area's existing visitors locally and to attract them in greater numbers if possible. Most forms of leisure development should benefit residents by increasing the choice of recreational activities whilst at the same time creating jobs for local people, broadening the employment base and bringing spending into the Borough. | |||
| The following site is allocated for leisure and tourism development: | |||
| Please note that proposal No. S8 (1) (Staley Hall) has been removed from the plan. | |||
| (2) | St Lawrence's Church, Stockport Road / Town Lane, Denton (extension to grounds, landscaping improvement and floodlighting scheme) | ||
| St Lawrence's Church is a Grade II* listed building and an important survival of a timber framed church dating from the 16th Century. It remains a striking historic feature in an area of otherwise largely undistinguished development, and is currently undergoing restoration with funding from English Heritage. However, its potential is let down to some degree by the fairly poor condition of its immediate surrounds. A scheme was underway in 2003 for the restoration of the churchyard, most of which is managed by the Council, so as to provide an appropriate setting for the church and the garden of remembrance and to re-establish a safe and attractive sitting-in park for the local and wider community. There are also small parcels of land adjacent which the Council is keen to see dealt with as part of the overall scheme. | |||
| S9 | Detailed Design of Retail and Leisure Developments | ||
| The layout, design, external appearance and operation of proposed retail and leisure developments, which are acceptable in relation to other relevant policies in this plan, will be required to be of high quality and to meet the following more detailed criteria: | |||
| (a) | suitable arrangements for parking, servicing and access to and from the highway, including access by pedestrians, cyclists and disabled people, and for convenient access by public transport where appropriate, with no unacceptable impact on the surrounding highway network, and | ||
| (b) | building design and use of materials which relate well to local features and complement or enhance the character of the surrounding area, and | ||
| (c) | suitable landscaping and screening, including retention of existing features such as trees and hedges where practical, which enhance the appearance of the development and minimise the visual impact of plant, storage and service areas, and | ||
| (d) | no unacceptable impact on neighbouring properties through noise, fumes, lighting, litter, traffic and other disturbance, and no unacceptable impact on residential amenity including consideration of hours of operation, and | ||
| (e) | minimisation of opportunities for crime and anti-social behaviour. | ||
| In any proposed retail or leisure scheme there will be a wide range of detailed matters requiring consideration, even though the general principle of the type of development in that particular location may be acceptable. It is intended that updated supplementary planning guidance will be prepared by the Council to explain and illustrate these requirements in more detail. This guidance will also draw attention to and explain other policies in the plan which may be of relevance when proposals for retail and leisure development are considered. The guidance will be the subject of public consultation before it is adopted by the Council. | |||
| S10 | Existing Out-of-Centre Retail Parks and Stores | ||
| The Council will permit refurbishment of existing out-of-centre retail locations, where there is no demonstrable conflict with the criteria outlined in policy S3. | |||
| Existing out-of-centre retail locations in Tameside comprises the non-food Snipe Retail Park at the border of Ashton and Audenshaw, along with free-standing food superstores at Foundry Street, Dukinfield and Oldham Street, Denton. These sites, which are shown on the proposals map, form an important and established part of the overall network of retail provision in the Borough. It is reasonable that refurbishment should be permitted within these sites which may be necessary in response to market trends or to ensure that the facilities are kept attractive and up to date with current expectations. In relation to this policy, "refurbishment" would include improvements to the external appearance of existing units, and also more substantial renovation, reconfiguration or replacement of some or all existing units within an overall site. However, if the amount of floorspace would be increased as part of such work, or the type of retail use altered from what had been approved originally, these changes would still have to meet the criteria in policy S3. It is not intended that the designation of sites under policy S10 should act as a focus for further retail expansion unless the criteria for new retail development outside town centres can be satisfied. | |||
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