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| Chapter 10 |
| Shopping |
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Context |
| 10.1 |
Shopping is a vital activity for the well-being
of Wealden's residents, particularly with regard to essential goods
and services. Furthermore, in employment terms, retailing is an important
sector of Wealden's economy. The Local Plan provides a framework for
meeting the shopping needs of the local population, whilst having
regard to the expected increase in different types of expenditure
and the changing pattern of shopping brought about by increasing personal
mobility. |
| 10.2 |
Within Wealden, the majority of shopping
floorspace is concentrated in the town centres of Crowborough, Hailsham,
Heathfield, Polegate and Uckfield. The remainder is found in the larger
village centres, local 'neighbourhood' centres and retail warehouses
within or on the edges of the towns. In some smaller villages, single
shops also have an important role, particularly for the less mobile
members of the community. |
| 10.3 |
Outside the District, Tunbridge Wells
and Eastbourne are popular shopping destinations, offering both greater
choice for comparison shopping and large 'out-of-centre' convenience
(i.e. food and other day-to-day purchases) stores. These shopping
centres serve wide catchment areas and their continued expansion is
likely to limit the growth potential of town centres in Wealden, particularly
with regard to the provision of higher value comparison goods, such
as furniture and clothes. |
| 10.4 |
Until recently PPG6, Town Centres and
Retail Development, set out the Government's approach to retail
development. It stated that one of the fundamental objectives of government
planning policy is to sustain and enhance the vitality and viability
of town centres, and advocated a "sequential approach" to the location
of new development. This means that the first preference should be
for town centre sites, where suitable sites or buildings suitable
for conversion are available, 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. |
| 10.5 |
Planning Policy Statement (PPS) 6, Planning
for Town Centres, has recently replaced PPG6. Many of the policies
in PPS6 reproduce, or are closely based on, the old policies in PPG6.
The need to promote vital and viable town centres remains a key Government
objective and the "sequential approach" continues to be used as a
means of achieving this aim. |
| 10.6 |
The retail policies of the Structure Plan
reflect the sequential approach set out in PPG6 and aim to safeguard
existing shopping centres whilst making provision for new forms of
retailing which increase the range and quality of shopping opportunities
for consumers. Changes in the retail sector and patterns of consumer
demand are leading to a demand for new and larger store formats within
Wealden, principally in the convenience sector, but otherwise it is
expected that the demand for new retail development in the District
will be relatively modest. |
| 10.7 |
The Council is committed to maintaining
and enhancing the vitality and viability of its town centres and is
actively working with the town revitalisation partnerships in the
preparation and implementation of town centre strategies, action programmes
and projects. |
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Strategy |
| 10.8 |
The Plan's strategy for shopping is to
maintain and, where possible, improve the level and choice of retail
facilities in Wealden in order to meet the needs of all sections of
the community, recognising the existing pattern of shopping provision,
the demand for new forms of retailing, and the importance of sustaining
and enhancing the vitality and viability of the town centres. The
key objectives are:- |
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(1) |
to meet the need for new shopping facilities
within the District in locations which minimise the need to travel
and are readily accessible by a choice of means of transport, including
walking, cycling and public transport; |
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(2) |
to maintain and enhance the role of
the town centres and larger village centres in providing a focus for
shopping, service facilities and employment opportunities for the
local community; |
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(3) |
to resist proposals which would adversely
affect the vitality and viability of existing shopping centres; |
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(4) |
to support the provision of shops and
services which meet the day-to-day needs of local communities, particularly
outside of the towns; |
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(5) |
to safeguard the provision of rural
shops and services. |
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Towns |
| 10.9 |
In accordance with the shopping strategy
and objectives, it is the Council's policy to direct the majority
of new retail development to the town centres as part of its firm
commitment to sustaining and enhancing their vitality and viability,
reducing reliance on the car, and encouraging alternative means of
travel. An assessment of retail capacity in the town centres over
the plan period was carried out by consultants in 2001, and a site
has been identified for further new shopping development in Hailsham,
as described in Chapter 15. The assessment indicates that Uckfield
could also support additional retail floorspace but it has not been
possible to find a suitable site for development, as explained in
Chapter 18. |
| 10.10 |
The town centres are important to the
economic, social and cultural life of the District and provide a range
of financial and professional services, business uses, community and
leisure facilities, as well as shops. However, a healthy and prosperous
shopping centre is a key factor in attracting such investment, not
only to the town centres themselves, but also to a much wider area.
For the purposes of applying both the sequential test set out in PPS6
and local shopping policies, Wealden's town centres are defined as
'main shopping centres' in the Local Plan. This also conforms with
the approach taken in the Structure Plan. |
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Main shopping centres |
| 10.11 |
The Council will generally support and
encourage proposals that would improve the quality and, where appropriate,
the quantity of retail facilities within the main shopping centres.
All proposals will be expected to achieve a high standard of design,
in accordance with the relevant policies in Chapter 5 of the Local
Plan. Large-scale developments should increase the potential for shoppers
to use public transport and to walk or cycle with convenience and
safety. Adequate, appropriately located and well-signed servicing
and parking will also be required, together with appropriate highway
measures to ensure that effective traffic management is achieved where
necessary. |
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| Policy SH1 |
| Within the main shopping
centres of Crowborough, Hailsham, Heathfield, Polegate and Uckfield,
as defined on the Proposals Map, proposals for retail development
will be permitted if the following criteria are met: |
| (1) |
the proposed development
will make a positive contribution to enhancing the character
and appearance of the town centre; |
| (2) |
satisfactory rear
service access is provided wherever possible; |
| (3) |
the proposed development
is easily accessible by a choice of means of transport, including
public transport, walking and cycling; |
| (4) |
in the case of larger
scale proposals, where appropriate, a comprehensive approach
to development is taken. |
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Primary shopping frontages |
| 10.12 |
The vitality and viability of town centres
depends, amongst other things, on developing a wide range of attractions
and amenities and the Council wishes to encourage a mix and diversity
of uses within them. Different but complementary uses during the day
and in the evening can reinforce each other, enhancing the attractiveness
of the town centre to residents and visitors, extending shopping visits
and encouraging dual trips. A variety of different uses also assists
in providing increased activity and natural surveillance. |
| 10.13 |
The Council is therefore keen to promote
mixed-use developments in the town centres. Class A2 uses, such as
banks and building societies, and Class A3 uses, such as cafes and
restaurants, generate pedestrian activity and can enhance the attractiveness
of the main shopping centres. There is also considered to be scope
for increasing the amount of housing, offices, and leisure facilities.
In line with Government advice in PPS6, a number of town centre sites
are allocated for a mix of uses, as set out in the individual town
chapters. |
| 10.14 |
Nevertheless, a careful balance needs
to be struck between the occasional provision of service or other
non-retail uses at ground floor level and the potentially adverse
impact of a concentration of such uses in locations where they could
undermine the retail function of the main shopping centre. Primary
shopping frontages, which should predominantly remain in retail use
at ground floor level, have therefore been defined in the main shopping
centres of Crowborough, Hailsham, Heathfield, Polegate and Uckfield. |
| 10.15 |
Where a change of use from retail to Class
A2 or A3 use is considered acceptable in a primary shopping frontage,
it is important that visual interest for passers-by is maintained
at street level. This may be achieved by the provision of a window
display or by providing views into the building to make its function
apparent. At the very least, windows can put 'eyes on the street'
and contribute to safety as well as interest. In the case of proposals
for A3 uses and amusement centres, full regard will also be had to
the potential impact of smells, litter, parking, noise and other disturbance
on the amenities of the area. Where appropriate, the Council will
impose conditions to control noise, opening hours and outside activities. |
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| Policy SH2 |
| Within the primary
shopping frontages, as defined on the Proposals Map, changes
of use of ground floor shops to Class A2 financial and professional
services, to Class A3 food and drink use, or to other service
uses will be permitted if the following criteria are met: |
| (1) |
there is no disruptive
effect on the frontage through a concentration of non-retail
uses; |
| (2) |
provision is made
for views into the building or for a window display in keeping
with the character of the frontage; |
| (3) |
the development would
not create an unacceptable impact on the character and amenities
of the locality through smell, litter, noise or other disturbance. |
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| 10.16 |
Outside of the primary shopping frontages,
and within the main shopping centres, a diversification of uses will
be encouraged, in accordance with Government advice in PPS6. To this
end, the loss of retail premises will not be resisted. However, Policy
BS5 of the Plan would generally prevent the conversion of offices,
or other business premises falling within Use Classes B1-B8, to other
uses. |
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Edge of centre locations |
| 10.17 |
Only if it can be demonstrated that no
suitable site is available within the main shopping centre, will retail
proposals on edge-of-centre sites be considered. This follows the
sequential approach set out in PPS6. In accordance with Government
guidance and Structure Plan Policies, it will also be necessary to
demonstrate that the impact of the proposal on the vitality and viability
of the town centre would be acceptable. The Council will require the
submission of a retail impact study in appropriate cases. |
| 10.18 |
The definition of edge-of-centre will
depend on the specific circumstances of each town. It is important
not to risk diluting the retailing focus of the town centres and potentially
diminishing their attractiveness. The primary consideration will be
the ease with which shoppers can walk between the proposed store and
the main shopping centre. This will be determined by a range of factors
including distance, the overall quality and convenience of the physical
linkages, barriers to movement such as busy roads or car parks, and
local topography. |
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| Policy SH3 |
| On the edges of the
main shopping centres and within the development boundaries
of Crowborough, Hailsham, Heathfield, Polegate and Uckfield,
proposals for retail development will be permitted if the following
criteria are met: |
| (1) |
a need for the development
has been demonstrated; |
| (2) |
no sites that are
suitable, viable and likely to become available within a reasonable
period of time can be identified in the adjacent main shopping
centre; |
| (3) |
there would be no
adverse effect on the vitality and viability of the town centre; |
| (4) |
the proposal is within
easy walking distance of the main shopping centre; |
| (5) |
there would be no
detrimental impact on the amenities of residential properties
in the immediate locality; |
| (6) |
the proposal meets
criteria (3) and (4) of Policy SH1. |
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Out of centre locations |
| 10.19 |
Outside of the main shopping centres,
there is a wide range of retail facilities, including smaller local
centres, individual shops or parades serving the needs of their immediate
neighbourhoods, and large retail warehouses, usually located on the
edge of the built-up area. The Council recognises the importance of
neighbourhood shopping and service facilities, particularly in helping
to reduce the need to travel. |
| 10.20 |
It is also recognised that sites for retail
development may come forward in out-of-centre locations during the
Plan period, in order to meet changing consumer and retailer demands.
Accordingly, Policy SH4 sets out the criteria for considering the
provision of new shopping facilities which would meet a local need
that cannot be provided within or on the edge of the main shopping
centres. It addresses both small-scale individual shops and larger
developments, such as retail warehouses. |
| 10.21 |
Further retail provision within or on
the edge of existing neighbourhood centres will be supported, provided
that there is no unacceptable impact on the residential amenities
of the surrounding area. Outside of neighbourhood centres, the Council
will also encourage proposals for small-scale convenience shops which
provide for the day-to-day shopping needs of local communities. For
the purposes of Policy SH4, and consistent with the approach taken
in the Structure Plan, small-scale is defined as 500 square metres
(gross) floorspace or less. |
| 10.22 |
Proposals for larger shops would only
be supported where there is a clearly demonstrated need for the development,
and a lack of suitable sites available in or on the edge of the main
shopping area. A sequential approach will be applied in assessing
the suitability of alternative sites, taking account of the level
of need for the proposed development, with the relevant area of search
depending on the nature and scale of the proposal and the catchment
area it would serve. |
| 10.23 |
In all cases, it will be essential to
ensure that the proposed development would not adversely effect the
vitality and viability of existing shopping centres, nor result in
unacceptable traffic or other environmental impacts. The Council is
required to maintain an adequate supply of housing land in relation
to Structure Plan requirements, and the retention of an adequate supply
of business land and premises, in terms of amount, quality and distribution,
is also important. The significant loss of either housing or business
land to retail development will therefore be resisted. |
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| Policy SH4 |
| Outside of the main
shopping centres, edge-of-centre locations, and allocated neighbourhood
centres, but within the development boundaries for Crowborough,
Hailsham, Heathfield, Polegate and Willingdon, and Uckfield,
proposals for retail development will be permitted where one
of the following criteria are met: |
| (1) |
the proposal is within
or on the edge of an existing neighbourhood shopping centre;
or |
| (2) |
the proposal comprises
a small-scale convenience shop which would provide for the daily
shopping needs of a local residential neighbourhood; or |
| (3) |
no sites that are
suitable, viable and likely to become available within a reasonable
period of time can be identified within or on the edge of the
main shopping centre. |
| In addition, proposals
should meet all of the following criteria: |
| (a) |
a need for the development
has been demonstrated; |
| (b) |
the proposal in itself,
or cumulatively with other similar developments, would not have
an adverse effect on the vitality or viability of existing shopping
centres; |
| (c) |
there would be no
significant net reduction in the amount, quality or distribution
of land and premises available for business development; |
| (d) |
there would be no
significant net reduction in the amount of land available for
housing; |
| (e) |
the proposal is accessible
by a choice of means of transport, including public transport,
walking and cycling; |
| (f) |
the proposal would
not give rise to unsatisfactory traffic impacts, in terms of
highway congestion, access and parking; |
| (g) |
the proposal would
not be detrimental to the character or amenities of the surrounding
area. |
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Large-scale shopping proposals |
| 10.24 |
In line with Government guidance and Structure
Plan policy, all large shopping proposals (defined by the Structure
Plan as 2,500 square metres or more gross floorspace) will be required
to demonstrate that their shopping, transport and environmental impacts
are acceptable. In such circumstances, applicants will be expected
to submit supporting information which should include a detailed assessment
of both the quantitative and qualitative impacts of the proposed development. |
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| Policy SH5 |
| Proposals for retail
development of 2,500 square metres (gross) floorspace or above
will be permitted if the following requirements can be demonstrated: |
| (1) |
the proposal, by
itself or cumulatively with other recently completed or planned
developments, will not seriously affect the vitality and viability
of existing main shopping centres; |
| (2) |
the applicant's sequential
approach to site selection and the availability of suitable
alternative sites; |
| (3) |
the proposal's accessibility
by a choice of means of transport, including an assessment of
the number or proportion of customers likely to arrive by different
means of transport, and how the proposal will contribute to
the objective of reducing the need to travel, particularly by
car; |
| (4) |
the likely changes
in travel patterns over the catchment area; |
| (5) |
any significant environmental
impacts, including those on existing main shopping centres. |
| Criteria (1), (2)
and (5) will not be applied to proposals on sites allocated
for retail development in this Local Plan. |
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Villages |
| 10.25 |
Outside of the towns, there are a number
of village centres which provide a range of shopping, service and
community facilities. These centres perform an important role in terms
of providing the day-to-day needs of local residents, particularly
the less mobile, enabling different needs to be met in a single trip,
and providing a focal point for rural communities. |
| 10.26 |
The Council wishes to encourage further
investment in retail and service facilities, particularly new food
and day to day provision, within the larger village centres. Main
shopping centres have therefore been defined in accordance with Structure
Plan policy (i.e. village centres with over 30 retail and service
premises) within the following settlements: |
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Alfriston
Forest Row
Mayfield
Pevensey Bay
Wadhurst |
| 10.27 |
Within or on edges of the main shopping
centres, new retail proposals will be supported provided that the
vitality and viability of the centre or other shopping centres would
not be damaged. The scale of provision should allow sensitive integration
into the character of the shopping centre, and avoid creating an unsatisfactory
impact on residential amenities or highway conditions. Where a proposal
is made for a site on the edge of the main shopping centre, it will
need to be demonstrated that there is a need for the development and
that no suitable sites are available within the centre itself. |
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| Policy SH6 |
| Within the main shopping
centres of Alfriston, Forest Row, Mayfield, Pevensey Bay and
Wadhurst, as defined on the Proposals Map, proposals for retail
development will be permitted if the following criteria are
met: |
| (1) |
the proposal, in
itself or cumulatively with other similar developments, would
not have an adverse effect on the vitality and viability of
existing shopping centres; |
| (2) |
the proposal is of
a scale appropriate to the character and function of the main
shopping centre; |
| (3) |
the proposal would
not give rise to unsatisfactory traffic impacts, in terms of
highway congestion, access and parking; |
| (4) |
there would be no
detrimental impact on the amenities of residential properties
in the immediate locality; |
| (5) |
the proposal is accessible
by a choice of means of transport, including public transport,
walking and cycling. |
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| Policy SH7 |
| On the edges of the
main shopping centres and within the development boundaries
of Alfriston, Forest Row, Mayfield, Pevensey Bay and Wadhurst,
proposals for retail development will be permitted if the following
criteria are met: |
| (1) |
a need for the development
has been demonstrated; |
| (2) |
no sites that are
suitable, viable and likely to become available within a reasonable
period of time can be identified in the adjacent main shopping
centre; |
| (3) |
the proposal meets
the criteria set out in Policy SH6. |
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| 10.28 |
Outside the main village shopping centres,
individual shops and other services, such as public houses, can play
a crucial role in maintaining villages as viable communities, supporting
the rural economy and helping to reduce the need to travel. The Council
wishes to see the level and choice of village shops and services maintained
and enhanced wherever possible. Small-scale shopping proposals (defined
by the Structure Plan as 500 square metres gross floorspace or less)
will therefore be supported where they meet the criteria set out in
Policy SH8, relating to considerations of need, scale and location.
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| Policy SH8 |
| Outside of the main
village shopping centres and edge of centre locations, proposals
for convenience shops or specialist retail outlets within villages
will be permitted if the following criteria are met: |
| (1) |
the proposal does
not exceed 500 square metres (gross) floorspace; |
| (2) |
a need for the particular
site has been demonstrated; |
| (3) |
the proposal is easily
accessible by walking and cycling; |
| (4) |
there would be no
detrimental effect on the character or amenities of the locality,
particularly by reason of traffic congestion, access and parking. |
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| 10.29 |
It is recognised that the retention of
village shops is largely determined by commercial considerations and,
in many instances, the personal commitment of the shopkeeper concerned.
Nevertheless, the loss of village shops and services, particularly
convenience shops and public houses, will be resisted unless there
is sound evidence that the current use is not viable. In the latter
respect, the Council may ask for applications or change of use or
redevelopment to be supported by financial information, including
any relevant details of investment into the promotion/improvement
of the business, and any marketing strategy employed. |
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| Policy SH9 |
| Outside of the town
development boundaries, as defined on the Proposals Map, proposals
for a change of use or redevelopment which would result in the
loss of a shop, public house or other local service use important
to a village will only be permitted where either: |
| (1) |
there is an existing
alternative facility within the village or located within easy
walking or cycling distance; or |
| (2) |
it can be demonstrated
that the existing use is no longer viable. |
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Countryside |
| 10.30 |
The Council seeks to prevent inappropriate
retail development in the countryside in view of the landscape and
environmental impact, the possible effect on existing shopping centres
and village shops, and the Plan's strategy to minimise unnecessary
vehicle trips. Planning permission is not required for a farm shop,
ancillary to the main agricultural use, providing it sells produce
derived from the farm itself. Such shops can provide a valuable local
facility, an additional source of income for the farm and can help
to sustain the rural economy. However, the sale of produce or goods
produced elsewhere does require permission and such proposals will
be carefully controlled by conditions to ensure that the sale of home-grown
produce remains the principal use. |
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| Policy SH10 |
| Outside of the development
boundaries, as defined on the Proposals Map, proposals involving
the sale of agricultural, horticultural and other produce which
is not principally derived from the relevant holding or enterprise
will be permitted if the following criteria are met: |
| (1) |
the proposal does
not exceed 500 square metres (gross) floorspace; |
| (2) |
the sale of produce
derived from the relevant holding or enterprise remains the
principal use; |
| (3) |
the proposal is not
intrusive in the landscape, nor detrimental to the rural character
of the locality; |
| (4) |
the additional traffic
generated does not have an adverse impact of local roads due
to their inadequate capacity or existing rural character. |
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| 10.31 |
In recent years, garden centres have become
increasingly popular with car-borne shoppers who are able to buy a
wide range of goods, often in bulk, to meet most of their gardening
needs. These centres usually require an extensive area of land for
the display of plants, garden buildings and garden furniture, together
with a large building for additional sales. Furthermore, they often
incorporate restaurant facilities and require exterior lighting, advertisement,
large areas for car parking and new access arrangements. Such characteristics
can make them intrusive in the landscape and detrimental to the rural
character of the countryside. |
| 10.32 |
The large areas of land required for garden
centres, together with the fact that they often develop out of an
existing nursery operation, make it inevitable that many seek a rural
location. New proposals will be carefully considered in the light
of the Council's objectives to minimise car journeys associated with
retail development, to protect the vitality and viability of existing
shopping centres and to protect the landscape and rural character
of the countryside. Particular care will be taken to ensure that such
development is acceptable, and conditions may be imposed, or a legal
agreement sought, to restrict the type of goods sold. Garden centres
in isolated rural locations or which would reduce important gaps of
countryside between settlements are unlikely to be considered acceptable. |
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| Policy SH11 |
| Outside of the development
boundaries, as defined on the Proposals Map, proposals for new
or expanded garden centres will only be permitted if the following
criteria are met: |
| (1) |
the proposal is not
intrusive in the landscape nor detrimental to the rural character
of the locality; |
| (2) |
the additional traffic
generated does not have an adverse impact on local roads due
to their inadequate capacity or existing rural character; |
| (3) |
the site has good
accessibility to an existing settlement and is not in an isolated
location. |
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