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6 Shopping and Town Centres |
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Introduction |
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6.01 |
Town Centres are the traditional focus for shopping. They are generally
accessible by both public and private means of transport. The range of services
and facilities in Town Centres is diverse and, in addition to shops, includes
leisure facilities, financial and professional services, and various community
services. |
|
6.02 |
The traditional retailing role of the Town Centre has come under threat from
Out-of-Town retail developments. Recent government guidance has recognised the
importance of Town Centres and now emphasises the need to protect Town Centre
vitality and viability. |
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Key Objective |
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To retain and promote a range and mix of retail facilities within our Towns and
Villages to meet the needs of the community and which will preserve and enhance
the character and vitality of those centres. |
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Shopping in Sedgemoor |
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6.03 |
Bridgwater (Link
to Map 1a) is the third largest Town in Somerset and administration and shopping
is primarily centred there. There has been a substantial increase in “Edge of
Centre” retail floorspace as a result of the development of the Bridgwater
Retail Park and the Safeway Supermarket. In contrast there has been little
significant increase in Town Centre floorspace since Angel Place opened in 1986.In recent years there has been a decline in the vitality and viability of the
Town Centre. The retail vacancy rate stood at almost 15% in October 2003
compared with a National average of about 11%. |
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6.04 |
The Towns of Burnham-on-Sea (Link
to Map 2a) and Highbridge (Link
to Map 2b) are the other main shopping centres
in the District. Burnham-on-Sea has a relatively modern supermarket located in
the Town Centre. There is also a Local Centre at Rosewood Farm. The Town Centre
itself has benefited from a traffic management and enhancement scheme that has
improved the pedestrian environment. Highbridge currently suffers from a high
level of vacant shops and the impact of through traffic. |
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6.05 |
Elsewhere in the District, the Rural Centres of Cheddar, Nether Stowey, North
Petherton and Wedmore provide a focus for local retailing and services. Cheddar
is a significantly larger centre than the other three with a good range of local
shops, including a medium size supermarket that serves the surrounding area, and
a variety of commercial businesses. It is therefore identified as a Town Centre
where the sequential test for the location of new facilities should be applied. |
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6.06 |
There are also a number of smaller shops located in many of the larger Villages,
as well as farm shops and other retail outlets such as petrol filling stations
scattered throughout the rural area. Although farm shops principally exist to
sell locally produced foodstuffs, there is a trend for them to sell goods which
have been brought in from elsewhere. |
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Town Centre Regeneration |
|
6.07 |
The District Council has identified the regeneration of Bridgwater Town Centre
as one of its key objectives. Consultants were commissioned to undertake
extensive surveys and consultations, which have been used to inform and
influence the Town Centre Strategy. The focus of this strategy is to develop the
Town’s potential, improve quality and maximise the benefits of its historic
character. The purpose of the strategy is:
- to establish the current status of the Town Centre;
- to outline the key objectives for the regeneration of the Town Centre;
- to encourage the development of a shared vision for the Town Centre;
- to define Town Centre projects which will create a new sustainable role
for the Town Centre and which can be delivered; and
- to be used to attract investment and encourage funding for Town Centre
regeneration purposes.
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|
6.08 |
A Transport Study has also been completed for Bridgwater. This will be an
important influence on measures to improve accessibility (also refer to
Transport and Movement, Chapter 7). |
|
6.09 |
There are also a number of possible environmental improvement schemes being
investigated for Burnham-on-Sea and Highbridge. Specific enhancement schemes
will be considered on their merits as and when they come forward. |
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Town Centres |
|
6.10 |
Government guidance states that Town and District Centres should be the
preferred locations for retailing and other uses which attract a large number of
trips. Concentrating such developments in these locations not only helps to
maintain their vitality and viability, it also offers the most sustainable
location in terms of reducing the need to travel and dependency on the private
car. |
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Location of Shopping Development |
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6.11 |
The Local Plan identifies Town Centre areas where it is expected that new
shopping proposals will be accommodated. For the purposes of controlling new
retail development, Cheddar Village is also identified as a Town Centre where
the sequential test for locating new development will be applied. |
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6.12 |
The Town Centre of Bridgwater is a large area that includes commercial, leisure,
and residential uses, as well as shopping. The preferred location for new
shopping developments will therefore be within the Main Shopping Areas (Link
to Map 1a Central) where the
majority of retail activity takes place. The Local Plan defines the Main
Shopping Areas based upon High Street, Fore Street, St Mary Street, Eastover and
St. John Street. |
|
6.13 |
Should it not be possible to find a suitable site in Bridgwater within the Main
Shopping Areas, a Town Centre site will be the next preferred location for new
retail development. |
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6.14 |
The Town Centres of Burnham-on-Sea, Highbridge and Cheddar are significantly
smaller and more compact than Bridgwater. It is not considered necessary to
identify separate Main Shopping Areas within them, the defined Town Centre area
as a whole being the first preferred location for new developments. |
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6.15 |
Where it is not possible to find suitable sites within these areas, preference
will be given to Edge-of-Town Centre sites. These are sites that are usually
within 200 to 300 metres easy walking distance of the defined Main Shopping
Areas in Bridgwater or of a similar distance from the defined Town Centres of
Burnham-on-Sea, Highbridge and Cheddar. This distance will vary depending upon
the size of the Town Centre and the attractiveness of routes to the Centre. |
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6.16 |
Where proposals are at an appropriate scale, the next preference will be sites
in Local Centres. These are small groupings of shops and limited other services
serving an immediate neighbour-hood. They are therefore only appropriate for
small-scale additional development. The Local Plan identifies the following
Local Centres (as defined on the Proposals Map):
Bridgwater
North Street (Link
to Map 1a West)
Taunton Road (Link
to Map 1 Central)
Westonzoyland Road (Link
to Map 1 Central)
Bower Manor (Link
to Map 1 East)
Wills Road (Link
to Map 1 Central)
Parkway (Link
to Map 1 East)
Rhode Lane (Link
to Map 1 Central)
Burnham-on-Sea
Rosewood Farm (Link
to Map 2 West)
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|
6.17 |
Only if no suitable sites are available in any of these locations, will
“Out-of-Centre”sites be considered. In assessing proposals for retail
development on sites outside of the preferred locations, the District Council
will consider whether the scheme meets a need that could not otherwise be met. |
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POLICY SH1
Proposals for new retail development will be permitted firstly within Town
Centres, then on Edge-of-Centre locations, followed by Local Centres, provided
that:
a) there is an identified need for Edge-of-Centre development;
b) the proposal is of a scale appropriate to the Town Centre or Local Centre;
c) the proposal would help maintain and enhance the viability and vitality of
the centre; and
d) the proposal would not damage the viability of other nearby Town Centres.
In Bridgwater, first preference will be for sites within the defined Main
Shopping Areas. |
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POLICY SH2
Outside the preferred locations, retail proposals will not be acceptable unless
it can be demonstrated that no other sites are available in accordance with
Policy SH1.
Where this is the
case, proposals will only be permitted where it can be demonstrated that:
a) there is an identified need for the development;
b) the development will not adversely affect the vitality and viability of
nearby Town Centres or the rural economy including village shops; and
c) the development is accessible by a range of means of transport in addition to
the car. |
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Major Shopping Proposals |
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6.18 |
Major retail developments may have a significant impact on neighbouring centres.
Government guidance suggests that applications for retail developments over 2,
500 sq m gross should be supported by evidence on the application of the
sequential test, possible economic impacts, accessibility by a choice of means
of transport and any environmental impacts. |
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6.19 |
Impact assessments may in some instances, be necessary for smaller developments.
This is likely to depend upon the size of the proposal in relation to the centre
or adjoining centres. |
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POLICY SH3
Major shopping proposals of over 2500 sq. m on sites outside of Town Centres, or
likely to have a significant impact on neighbouring centres, should be
accompanied by a Retail Impact Assessment. This should demonstrate:
a) the need for the development;
b) the application of the sequential approach;
c) the likely economic impact of the development on neighbouring centres;
d) the development’s accessibility by a choice of means of transport, and its
effect on overall travel patterns and car use; and
e) any significant environmental impacts it may have. |
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Retail Warehousing |
|
6.20 |
Retail warehousing is generally located in Edge-of-Town Centre or Out-of-Town
Centre locations. Retail warehousing originally concentrated on bulky non-food
goods but increasingly there is pressure to allow more general comparison goods
to be sold. These developments almost exclusively favour the car-borne shopper
and provide easy access with an abundance of free car parking. Occupiers prefer
large flat sites facing or adjoining main roads. |
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6.21 |
Any new proposals should be located within the Town Centre, or on an
Edge-of-Centre site if possible to encourage linked trips. Should a suitable
site not be available, an appropriate Out-of-Centre site may be acceptable. Any
sites would need to be accessible by means of transport other than the private
car. In order to protect existing Town Centres, planning conditions or legal
agreements may be used for Out-of-Centre developments. These may restrict the
subdivision of units, and/or limit the range or types of goods sold. |
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6.22 |
Proposals will therefore need to be assessed against
Policy SH1,
Policy SH2 and
Policy SH3. |
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Change of Use in Town Centres |
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6.23 |
As well as shopping, Town Centres are host to a wide variety of activities.
These include leisure activities such as restaurants, pubs, clubs and cinemas,
businesses such as banks, estate agents and other office uses, housing,
education, and other community facilities. Many of these activities assist in
extending the use of the Town Centre both throughout the day and during the
evening. This diversity of uses and accessibility to people living and working
in the area is important to sustaining their vitality and viability. |
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6.24 |
The Local Plan will therefore promote a flexible approach to other Town Centre
uses and encourage a diversification of uses. However, it is important that a
balance of uses is maintained. In particular, it is important that in those
streets that already have a concentration of retail uses, there should be some
control over the non-retail uses being introduced on ground floor frontages to
maintain interest to shoppers. The Local Plan therefore identifies Main Retail
Frontages in Bridgwater where the change of use at ground floor level to a
non-retail use will be strictly controlled. |
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Bridgwater Town Centre |
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6.25 |
The Main Retail Frontages are located in the central part of the Main Shopping
Areas where there is greatest concentration of existing shops.
The frontages are generally also in areas where considerable investment has been
made in improving the shopping environment, either through pedestrianisation,
provision of rear servicing (also refer to
Proposal TM9), or redevelopment.
Whilst it is accepted that an element of uses in Class A2 (Financial and
Professional Services) and Class A3 (Food and Drink) may be appropriate,
concentrations which detract from the shopping function should be avoided. The
use of upper floors for other purposes, including housing, will be encouraged. |
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6.26 |
Elsewhere within the Main Shopping Areas and defined Town Centre, there will be
greater encouragement for other Town Centre uses that support the shopping
function of the Town as a whole. It is still important that over concentration
of non-retail uses is avoided. This applies particularly to residential
development that can result in long frontages with only minimal pedestrian flows
within the shopping street. |
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POLICY SH4
Within the Main Retail Frontages in Bridgwater, defined on the Proposals Map (Link
to Map 1a Central),
proposals for changes of use to non-retail uses on the ground floor will be
resisted. Exceptions may be made for uses falling within Classes A2 (Financial
and Professional Services) and A3 (Food and Drink) of the Use Class Order if all
the following circumstances apply:
a) the proposal does not form a prominent part of the shopping frontage or an
important link between the frontages of retail uses;
b) the proposal does not form a continuous frontage with one or more existing
non-retail uses(s); and
c) the proposal does not cause demonstrable harm to the vitality and viability
of the Town Centre as a whole. |
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POLICY SH5
Within the Main Shopping Areas defined on the Proposals Map (Link
to Map 1a Central) but outside Main
Retail Frontages in Bridgwater, proposals for the
following non-retail uses will be permitted, provided that they do not result in
a concentration of single uses, where the cumulative impact results in a loss of
retail units damaging to the vitality and viability of the Town Centre:
a) offices providing Financial and Professional Services (Class A2 of the use
Classes Order);
b) premises for the sale of Food and Drink (Class A3); and
c) Assembly and Leisure (Class D2). |
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Town Centres |
|
6.27 |
Within the Town Centre of Bridgwater, but outside of the Main Shopping Areas,
and in the Town Centres of Burnham-on-Sea, Highbridge, and Cheddar, a more
flexible approach to non-retail uses will be supported. Such locations may be
appropriate for leisure uses, financial and professional services, food and
drink uses, community services and residential uses. |
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6.28 |
Although such uses may contribute to the diversification of the Town Centre,
concentrations of single uses can cause local problems. The loss of retail
premises may also adversely affect Town Centre vitality and viability. Proposals
will therefore be assessed not only on their positive contribution to Town
Centre diversification, but also on their cumulative impact to Town Centre
vitality and viability. |
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POLICY SH6
Within Town Centres defined on the
Proposals Map (Link
to Map 1a Central) but outside of Main Shopping Areas, proposals for the following
non-retail uses will be permitted, provided that they do not result in a
concentration of single uses where the cumulative impact results in a loss of
retail units damaging to the vitality and viability of the Town Centre:
a) offices providing Financial and Professional Services (Class A2 of the Uses
Classes Order);
b) premises for the sale of Food and Drink (Class A3);
c) Assembly and Leisure (Class D2);
d) Non-Residential Institutions (Class D1); and
e) Residential (Class C1 and C3). |
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Land safeguarded for Retail Development |
|
6.29 |
Following community planning and regeneration initiatives for Highbridge an
opportunity for future retail expansion or rationalisation has been identified
in the proximity of the existing KwikSave supermarket. It is therefore
appropriate to safeguard this area in order that the potential for such use is
not lost. The safeguarded area comprises surplus vacant railway land north of
Market Street and west of the railway. |
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PROPOSAL SH18
Land north of Market Street, Highbridge (Link
to Map 2b) is safeguarded for retail use. |
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Location of Non-Shopping Key Town Centre
Uses |
|
6.30 |
Town Centres are the preferred location for other uses in addition to shopping
that attract large numbers of people. Such uses will sustain and enhance the
centres’ vitality and viability. In addition, locating major travel generators
in the Town Centre where there is the widest choice of means of transport, is a
significant way to reduce the dependence on the private car and to achieve wider
sustainable development goals. |
|
6.31 |
Key Town Centre uses might include public and private offices, entertainment and
leisure facilities such as cinemas and night clubs, hospitals and other
community facilities. The first preferred location for such uses should be a
Town Centre site (apart from Main Retail Frontages) that has good accessibility.
The second preferred location would be an Edge-of-Town Centre site, which is
well related to transport facilities such as public transport. |
|
6.32 |
In exceptional circumstances where there is a clearly defined need,
Out-of-Centre development may be permitted where it can be demonstrated that no
suitable sites are available in the preferred locations. In these circumstances,
the development must be accessible by a choice of means of transport. |
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POLICY SH7
The preferred location for non-retail uses that attract large numbers of people
will firstly be
Town Centre sites, followed by Edge-of-Centre sites, provided that they are:
a) accessible by a choice of means of travel;
b) of a scale appropriate to the size and function of the Town; and
c) would assist in sustaining the vitality and viability of the Town Centre as a
whole. |
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POLICY SH8
Elsewhere, proposals for non-retail uses which attract large numbers of people
will not be permitted unless it can be demonstrated that there is a defined
need, which cannot be accommodated in the preferred locations. Where this is the
case, preference will be given to proposals that involve the conversion of
suitable existing buildings or the extension and improvement of an established
facility. All proposals should be accessible by a choice of means of transport,
and should not seriously adversely affect the vitality or viability of any
neighbouring Town Centre. |
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Shops and Services Outside Town Centres |
|
6.33 |
Local shops and services are important in meeting day to day needs, particularly
in rural areas. They also assist in reducing the need to travel and can act as
important community focuses. |
|
6.34 |
In Towns, such facilities are provided outside of the Town Centre in Local
Centres and individual shops and offices. In the rural areas, there are shops,
post offices and public houses in many of the villages. |
|
6.35 |
Increasingly, these facilities are coming under threat. The loss of such
facilities can be particularly damaging to local communities where there are few
or no other alternatives. An objective of the Plan is therefore, to both
maintain existing provision and to promote additional services. |
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6.36 |
The Local Plan Proposal Map identifies existing Local Centres as well as Rural
Centres and Villages. For the purposes of interpreting policies, Local Centres
are defined as small groups of shops or a single store, usually comprising
newsagents, general grocery store, a sub-post office, and a chemist, serving
local needs. |
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Resisting the Loss of Local Shops and Other
Services |
|
6.37 |
The Local Plan seeks to resist the loss of shops and other local services in
Local Centres, Rural Centres and Villages. Easy access to a range of local
services is an important way to reduce people’s dependency on the car. In rural
areas, alternatives to the car such as public transport are often limited. It
should also not be forgotten that a significant number of people, either in
Towns, or rural areas, do not always have access to a private car and therefore
rely more heavily on local services. |
|
6.38 |
It is accepted that in many cases it is not possible to prevent the loss of
local shops due to other factors such as economic viability and competition.
However, the change of use of a local shop to a different use should only be
considered where it can be demonstrated that the existing use is no longer
viable and that attempts have been made to market the business as a going
concern. |
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POLICY SH11 (see
para 6.16)
Proposals that would result in the loss of shops or other local services in
Local Centres, Rural Centres, and Villages, will not be permitted where this
results in a significant or total loss of such services to the local community.
Exceptions may be made where it can be demonstrated that the existing use is no
longer viable. |
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Provision of New Local Shops and Services |
|
6.39 |
In Towns, Rural Centres, and Villages, encouragement will be given to the
provision of small-scale local shops and services. In Towns and other identified
Centres floorspace should not normally exceed 500 sq m gross. In the remaining
Rural Centres and Villages the floorspace should not normally exceed 200 sq m
gross. |
|
6.40 |
Where new development is proposed, the Local Plan seeks to ensure that local
facilities are already available and accessible by means other than the car, or
will be provided as part of the development. |
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POLICY SH12
Proposals for small-scale local shops and services in Towns, Rural Centres and
Villages, will be permitted provided:
a) they are of a scale to serve only the local area; and
b) they are accessible by a choice of means of transport. |
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Cheddar Gorge Commercial Area |
|
6.41 |
Within Cheddar Gorge there is a concentration of shops, restaurants, teashops,
and other commercial activities. These are associated with the tourism function
of the area rather than the more general retail needs of Cheddar Village. Many
of the businesses are seasonal and specialist in nature. The Local Plan
Proposals Map therefore defines Commercial Areas within Cheddar Gorge. Most of
these areas are within the Mendip Hills Area of Outstanding Natural Beauty. |
|
6.42 |
These areas are not considered to be appropriate for general retailing, as they
are peripheral to the Centre of Cheddar. A Town Centre or Edge-of-Centre
location will be the preferred location for such uses (Policy SH1). |
|
6.43 |
There are considerable concerns and difficulties relating to traffic congestion
and parking in Cheddar Gorge (Chapter 7 and
Chapter 11). Any new development in the
Commercial Areas is likely to increase these traffic problems as well as
impacting upon the environmental quality of the area.
New proposals for shopping and food and drink will therefore be strictly
controlled and restricted to sites within the identified Commercial Areas. |
|
6.44 |
There may be opportunities to improve and enhance existing facilities in these
areas. This will generally be encouraged although any proposals would still need
to be carefully controlled. Individual proposals for new shopping and food and
drink facilities, or improvements to existing facilities will therefore be
considered against Policy SH13 and
Policy RLT14 as well as other policies in the
Local Plan and the Cheddar Gorge Design Guide. |
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POLICY SH13
Within the Cheddar Gorge Commercial Area as defined on the Proposals Map (Link
to Map 3 East),
proposals for New Shops (Class A1) and Food and Drink Premises (Class A3), or
the enhancement of these facilities will only be permitted if:
a) they are of a scale to serve only the local area;
b) they would not result in additional traffic congestion or parking problems;
c) they do not cause demonstrable harm to the vitality and viability of Cheddar
Centre as a whole; and
d) there would be no significant adverse environmental impact. |
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Farm Shops |
|
6.45 |
Planning permission for farm shops is not usually needed for farms selling their
own produce. Permission is required for the sale of food or goods produced
elsewhere or if it has been processed. There is increasing pressure for farmers
to look for ways to diversify their activities, farm shops are one such option.
(A policy for farm diversification is set out in the Employment and Economic
Development Chapter - Policy E8). |
|
6.46 |
In many cases, the provision of farm shops can provide an alternative form of
local shopping as well as supporting the rural economy. However, they might also
have an adverse impact on the viability of existing village shops. There are
also issues related to their accessibility and visual impact on the countryside. |
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POLICY SH14
Proposals for new or extended farm shops will only be permitted if:
a) there would be no significant adverse impact on the viability of existing
shops in adjoining Towns, Rural Centres and Villages;
b) the local road network can safely handle the extra traffic the proposal will
generate;
c) safe access is available or can be achieved; and
d) any proposed buildings would not have an adverse visual impact on the
locality.
Conditions or a legal agreement may be imposed to limit the range or source of
goods to be sold. |
|
|
Petrol Filling Stations |
|
6.47 |
Shops within petrol filling stations can also have an important role in
providing local shopping and other services, particularly in rural areas.
However, they might also have an adverse impact on the viability of village
shops and are often not accessible without the use of a private car. |
|
6.48 |
Shops within petrol filling stations will therefore be controlled and the amount
of retail floor-space should normally not exceed 200 sq m gross. |
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POLICY SH15
Proposals for shops ancillary to petrol filling stations in rural areas (i.e.
outside defined settlement boundaries) will be permitted, unless they would harm
the viability of existing shopping available in nearby Local Centres, Rural
Centres, or Villages. |
|
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Garden Centres |
|
6.49 |
Garden centres do not necessarily need to be located in open countryside and are
not considered as an agricultural use. They are principally a retail outlet and
produce similar impacts to other forms of retail warehousing. |
|
6.50 |
The Plan seeks to locate garden centres in appropriate locations where their
physical impact does not cause harm and where the traffic generated by the use
can be absorbed by the road network. They will also need to be accessible by a
choice of means of transport. The best location for garden centres will
therefore usually be within or adjacent to Towns or Rural Centres. Planning
permission will be subject to conditions restricting general retail sales and
limiting the type of goods sold to those associated with horticulture or
gardening. |
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POLICY SH16
Proposals for garden centres will be permitted where they are located on land
within or adjacent to Towns or Rural Centres provided:
a) they are accessible by a choice of means of transport; and
b) there will be no adverse impact on the environment.
Permission will be subject to conditions limiting the type of goods sold to
those associated with horticulture or gardening. Any additional services will be
restricted to ensure they are ancillary to the main use. |
|
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Markets and Car Boot Sales |
|
6.51 |
In recent years there has been a significant increase in the number of markets
and car boot sales, which in turn have become more commercial and regular. These
can cause problems of increased traffic, noise and general disturbance. The
planning process can control regularly occurring markets but many infrequent
events are allowed as permitted development. Not all sites are suitable for
markets or car boot sales. The implications of large commercial markets for Town
Centres also need to be considered. |
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POLICY SH17
Proposals for new markets and car boot sales will be considered against their
impact on the vitality and viability of nearby Town Centres. Proposals must
minimise unnecessary disturbance to nearby residents and ensure highway safety. |
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