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Planning : UDP ...

Chapter 7- Shopping

• INTRODUCTION
• CONTEXT
• POLICIES AND PROPOSALS
• GENERAL POLICY
• RETAIL ENVIRONMENT
• MAIN CENTRES
• KILLINGWORTH
• NEW DISTRICT CENTRE
• OTHER CENTRES
• DEVELOPMENT OUTSIDE CENTRES
• SMALL SCALE SHOPPING
• RETAIL FACILITIES
• HOT FOOD TAKEAWAYS
• SECURITY

INTRODUCTION

7.1 Shopping is a necessity. The purchase of food and other household goods is an activity carried out by all sectors of the population; male, female, young and old, disabled and able bodied. Retailing, is a major industry which provides jobs and services and has seen considerable investment in recent years. The concentration of retail facilities in town centres has stimulated business, commercial, entertainment and community uses. Communities have found this combination of uses convenient and businesses have benefited from this relationship. A healthy retail sector providing goods and services, employment and acting as a stimulus to other development activity can be a vital element in securing growth in the local economy and in assisting urban regeneration.

7.2 Policies and proposals for retailing are intended to provide a secure and certain framework for retail investment, the benefits of which should meet the needs of all sectors of the borough's population.

7.3 The Council consider that the provision of a good shopping service is best achieved by giving priority to investment in existing centres as they are well served by public transport, give people a choice of means of transport and offer a range of facilities not available elsewhere.

CONTEXT

Retail Trends

7.4 Until the early 1980's retailing was concentrated in town and small district centres with a dispersed pattern of small shops serving residential areas. This distribution was part of a shopping hierarchy with the larger centres providing a full range and choice of goods while smaller centres and local shops catered for daily needs. This retail pattern was supported by planning policy.

7.5 Within the last ten years and especially in the late 1980's dramatic changes took place in both the location and scale of retail provision.

7.6 The most significant trends include:

• rapid growth in consumer expenditure, particularly on durable (non food) goods. • decline in the overall number of shops.
• restructuring within the retail industry, with mergers; pressure for larger retail units, especially foodstores, offering the benefits of economies of scale; the introduction of new electronic technology and the movement from labour to capital intensive investment.
• the ability of the retail industry to innovate and compete for market share.
• the willingness of investment institutions to fund retail expansion while manufacturing industry declined.
• the growth of managed shopping centres with the ability to co-ordinate and deliver a high quality and level of service.
• a rapid increase in the number of out of centre retail developments.
• the development of new ranges of goods and of methods of selling them e.g. D.I.Y.

7.7 Most recent trends have seen a shift from the development of large scale out of centre foodstores and retail parks to:

• small discount supermarkets.
• factory retailing/warehouse clubs.
• further rationalisation and restructuring by major retail operators.
• increased emphasis on management initiatives in existing centres.

7.8 The most recent trends have taken place in the context of a decline in retail expenditure, shifts in Government policy to meet objectives which are compatible with the aim of encouraging sustainable development, and the assessment of the impact of substantial changes in retailing over recent years.

7.9 The Government's objectives contained within PPG6 (Town Centres and Retail Developments) and PPG13 (Transport) are:

• to sustain and enhance the vitality and viability of town centres
• to focus development, especially retail development, in locations where the proximity of businesses, facilitates competition from which all consumers are able to benefit and maximises the opportunity to use means of transport other than the car
• to maintain an efficient, competitive and innovative retail sector
• to ensure the availability of a wide range of shops, employment, service and facilities to which people have easy access by a choice of means of transport.

Retailing in Tyne and Wear

7.10 Tyne and Wear is a compact county with an excellent highway and public transport network such that retail provision in one part of the county can influence provision elsewhere. RPG1 noted the substantial changes in retailing over the last few years within the County. One of the largest shopping centres in Europe, the Metro Centre in Gateshead, alongside the A1 trunk road has been developed together with associated leisure facilities. The regional shopping centre of Newcastle City centre is well established and continues to develop at the hub of the transport network. Together, these two centres dominate retailing in the county and account for about 51% of the total food and non food shopping floorspace of main shopping centres. Out of centre development has increased such that it is now equivalent to about 23% of the total food and non food retail floor space of main and secondary centres.

7.11 These changes have taken place within a very short period against a background of continuing population decline, lower than average levels of retail expenditure and car ownership, as well as shifts in the population away from older areas. Retailing in North Tyneside

7.12 The geographic location of North Tyneside has a significant influence on its retail catchment. The North Sea is to the east, the River Tyne forms the southern boundary with only one road crossing point, the Tyne Tunnel, and the regional shopping centre of Newcastle City is immediately to the west. A rural belt to be designated Green Belt, traverses the northern edge of the borough. The Metro rail system forms a complete loop within the borough linking the three main town centres of Wallsend, North Shields and Whitley Bay with Newcastle City Centre. Maximum journey time is 30 minutes from North Shields to Newcastle.

7.13 The centres of Wallsend and Whitley Bay are linear, the former having a pedestrianised precinct at its central point. They both have a variety of non retail uses and are contained by surrounding high density residential areas. North Shields has a compact centre, an enclosed shopping mall and some pedestrianised areas. There is a greater concentration of commercial uses close by the central area than in either Wallsend or Whitley Bay. Whitley Bay, on the coast, has an additional function as a tourist resort. Killingworth is currently being updated as part of a major redevelopment scheme.

7.14 These three main centres and Killingworth serve distinct and discrete catchment areas, and the Council wishes to see them consolidated with full use being made of available land and premises. The Council, in partnership with other agencies and developers, will seek to support the vitality and viability of these existing centres. In North Shields reports on transportation issues and a strategy for the town centre have been undertaken, whilst in Whitley Bay, the Civic Trust Regeneration Unit have completed a study of the town centre. These studies will form the basis of action plans for the town centres in the context of policies and proposals set out in this plan.

7.15 There are a number of district and local centres dispersed throughout the residential areas. Most have been able to maintain their role of providing for local needs but some may require their role to be reviewed.

7.16 The most dramatic change has been the recent growth in out of centre floorspace catering mainly for shopping trips by car. At the end of 1998 there was over 60,500m2. net of retail floorspace outside centres. This is equivalent to over 86% of the floorspace of main and secondary centres and was the largest percent age of such floorspace in Tyne and Wear. Out of centre floorspace is mainly in the form of food stores, either within or on the edge of the built up area, freestanding durable goods units and two retail parks centrally located close to the junction of the A19 and A1058 roads.

7.17 Royal Quays is a major scheme to regenerate the riverside area of North Tyneside. This development includes a now operational factory outlet centre of 11,790m2 and an equivalent amount of leisure provision which has yet to be implemented.

Issues

7.18 A number of issues arise from contextual considerations. • the borough has a good established choice of location for shopping facilities. • the balance between existing centres and out of centre provision is in danger of being upset in favour of the latter. • there is likely to be less retail growth and so investment needs to be directed to achieve maximum benefit to existing centres and the less mobile shopper. • large sectors of the population do not have access to cars and rely on public transport. • existing centres are well located on efficient public transport routes. • retail development in existing centres, stimulates urban regeneration and has the potential to minimise car journeys and so reduce CO2 emissions. • a period of consolidation to assess the implications of recent shifts in floorspace provision is required.

POLICIES AND PROPOSALS

General Policy

7.19 The continuing role of existing centres in providing a level and quality of shopping service accessible to all of the borough's residents under lines its shopping strategy. However, the Council recognises that proposals for additional shopping floorspace may come forward during the plan period and that developers should have some guidance on the fundamental judgement which will be made in assessing proposals either within centres or at other locations.

Retail Environment

7.20 A key component in promoting the attractiveness of centres to shoppers and investors is the quality of the shopping environment. Larger, managed indoor centres are able to exercise considerable control over the environment of their shopping areas. In that respect they have an advantage over traditional high street centres. The Council accept that while existing centres have their own particular strengths and character they can be enhanced by directing resources to environmental improvement and by taking a co-ordinated approach to their promotion and management.

7.21 The centres referred to include the three main centres of Wallsend, North Shields and Whitley Bay; Killingworth; the district centres of Longbenton Arndale, Forest Hall, Whitley Lodge, Monkseaton and the Collingwood Centre, together with a range of local centres within existing residential areas.

7.22 Any measures proposed under this policy will follow from a detailed analysis of each of these centres. Strategies for Whitley Bay and North Shields are currently being developed. Priorities for action will be assessed on the basis of the scale and nature of any current deficiencies and an evaluation of the contribution they are expected to make to the overall shopping service following additional investment.

Main Centres

7.23 North Tyneside has a good distribution of shopping provision but only the 3 main centres of Wallsend, North Shields and Whitley Bay offer a full range of retail and other town centre facilities in locations which allow access by all sectors of the population. They are the focus of public transport and have substantial catchment populations within their respective urban areas. In Wallsend and North Shields car ownership is low and past loss of population together with the potential impact of out of centre development indicates that these centres may be vulnerable. Both Wallsend and North Shields centres contain managed shopping areas, the Forum and the Beacon Centre. Their owners are undertaking programmes of refurbishment involving substantial investment.

7.24 The Council expect these three centres to be consolidated with the emphasis on improved levels and quality of provision. There may be some opportunities for additional floorspace on sites within or on the edge of these centres and the Council will respond to developer led initiatives as they arise on the basis of the policies and proposals in this plan.

7.25 In Policy S3 and in the policies and proposals which follow retail provision is defined in accordance with the Town and Country Planning (Use Classes) Order 1987 (as amended) as follows: Retail - Class A1 (Shops)

7.26 The boundaries as defined in Policy S3 contain the main shopping and commercial parts of the town centres and are drawn sufficiently wide to allow traffic management issues to be considered.

7.27 The Council wishes to see thriving town centres and accepts that variety and activity are essential elements of their vitality and viability. However, it is important that the retail function of town centres is dominant within primary shopping frontages. Account has been taken of the advice in PPG6 (Town Centres and Retail Developments); the existing uses in primary frontages; the opportunities within secondary frontages and so on the basis of these and other factors the plan defines realistic primary shopping frontages.

7.28 Outside the areas of primary shopping frontage the Council anticipate that retail uses will continue to be well represented within town centres. However, a range of other shopping centre uses are acceptable where they support the main retail function, add to vitality and viability and make town centres attractive to local residents, shoppers and visitors. Such uses could include entertainment facilities, financial institutions, restaurants, cafes and community facilities.

7.29 Of the three main town centres, North Shields has a particular role as the focus for non retail services within the borough, especially financial and legal services. The Council consider that the retention and development of such uses is supportive of the role of the town centre and helps meet local economic objectives by encouraging continued growth in service sector employment.

7.30 Within town centres there have been indications of increasing vacancy in upper floors. This has consequences for the retail environment and represents a loss of potential activity within a centre. The Council is aware of recent Department of the Environment initiatives to bring vacant premises into use in 'Living over the shop' schemes. The Council has been involved with housing associations to formulate proposals, and these are supported by proposals in this Plan.

Killingworth

7.31 The Council are committed to ensuring the redevelopment of the central area of Killingworth for shopping and other mixed uses. This would benefit the residents of the town and allow the centre to act as a focus for nearby smaller settlements.

7.32 There has been considerable new housebuilding for owner occupation in Killingworth in recent years which has offered a wide range and choice and been attractive to in-migrants. The Council has taken effective action to clear unpopular housing and has improved the remaining local authority stock. Cleared sites which have been made available to the private sector and to housing associations have transformed the residential areas close to the central area.

7.33 Employment sites on the western edge of the town are substantially complete and occupied.

7.34 While the housing and employment areas have been successful the central shopping area declined dramatically and has now been cleared. Shopping provision is now focused on a food superstore. This superstore is to be replaced and additional retail floorspace is to be added as part of the ongoing redevelopment of the site. The new centre should provide a wide range of shopping opportunities for the community.

7.35 While the Council will require that shopping uses form the primary development on the site the proposal would be expected to contain other uses appropriate to a town centre. Such uses could include leisure, offices, service outlets, public transport facilities, entertainment and restaurants.

New District Centre

7.36 The housing allocations at Holystone/Backworth/ Shiremoor/West Allotment are likely to create a demand for more community, service and convenience retail floorspace than can be met by the existing facilities within the catchment area. The Council propose the development of a district centre to meet this need. The district centre should be located east of the A19 and in association with the development of public transport facilities including the proposed new Metro Station T3/2 (1).

Other Centres

7.37 There is a range of smaller shopping centres within residential areas throughout the borough important to their local catchment populations and helping to deliver a good shopping service.

7.38 Resources available for such schemes will not allow all such centres to be maintained and enhanced. The Council will prepare an analysis of each local centre and formulate an action programme on a priority basis.

7.39 Shopping at the local level including the availability of individual shops in residential areas is an important part of retail provision. Such shops have shown themselves able to adapt to customer requirements by opening longer hours and meeting specialised needs. They offer an important and convenient service for those who are less mobile, especially elderly and disabled people, families with small children, and those without access to a car.

Development Outside Centres

7.40 North Tyneside has experienced an expansion of out of centre development in recent years on a scale which has shifted the balance of retailing away from established centres. This out of centre provision does contribute to the range and choice of retailing within the borough, but its location necessitates primarily car journeys and it is not easily accessible to many of the borough's residents. The Council in taking a cautious approach consider that such provision is now adequate and that any further proposals would impact on other established centres to such a degree that they would have a negative effect on the level and quality of the shopping service available to all the borough's residents. Such proposals would also continue to stimulate rather than minimise the need to travel.

7.41 All applications for retail developments over 2,500 square metres gross floorspace should be supported by evidence of their likely economic and other impacts on other retail locations, an identified need for additional floorspace provision and an assessment in the likely changes in travel patterns over the catchment area. Such assessments may also be necessary for smaller scale developments where the Council consider an adverse impact on local centres may result.

7.42 Exceptions to Policy S8 will be considered under Policy LE1/2 where shopping provision is proposed to meet the immediate needs and convenience of employees in large business neighbourhoods.

7.43 The sale of agricultural produce from the farm, provided that significant produce is not imported from outside, does not require planning permission. However, use as a farm shop selling a significant amount of produce from elsewhere is a separate use requiring planning permission, and such applications would be considered against the provisions of Policy S8 (except criterion (V) ).

7.44 Warehouse clubs which share many of the characteristics of very large retail outlets would be a subject to Policy S8 if they wished to locate outside existing centres.

7.45 Changes of use from non food retail units to food retailing will be resisted and will need to satisfy the criteria in Policy S8. Proposals for extensions to existing out of centre shopping units will be assessed against Policy S8.

7.46 There has been recent development activity as car showrooms have relocated from mainly urban fringe of town centre sites to prominent positions on employment sites. Such locations have been acceptable and in most instances car showrooms have been part of a wider planning unit including vehicle servicing. The local planning authority is prepared to continue to consider proposals for car showrooms on employment land. Permitted development rights allow the change of use from car showrooms to Class A1 retail. However, material external alterations to facilitate such changes of use would require the express consent of the local planning authority. The potential effect on employment and retail policies of such forms of development must be considered. In order to ensure the continuity of provision of employment land and premises and to restrict the proliferation of out of centre retail development:

Small Scale Shopping

7.47 Within existing and proposed residential areas there may be opportunities to address the requirement for additional small scale convenience floorspace of a maximum of 1000m2 gross in order to provide for deficiencies, either in volume or in quality and choice. The Council has not identified specific locations but recognises the need to be flexible in meeting demands that may arise during the plan period.

Retail Facilities

7.48 Much can be achieved in controlling the external environment of shops and shopping areas. However, an overall improvement to the level and quality of service including increased accessibility to disadvantaged groups including women who undertake the majority of shopping for food and a wider sense of responsibility to environmental issues such as waste reduction, places responsibility with the retailer.

Hot Food Takeaways

7.49 The Council accept that hot food takeaways meet a particular need but raise environmental issues particularly affecting the amenity of local residents. The Council in developing a policy for the control of this use have sought to balance the issues and develop criteria against which proposals for hot food takeaways and restaurants can be assessed.

Any such proposal will be considered in relation to the presence of any similar uses in the local area. Development Control Policy Statement 16(Hot Food Takeaways And Other Food And Drink Uses) sets out the material planning criteria to be taken into account when considering individual proposals.

Security

7.50 There has been an increasing tendency for retailers to provide higher levels of security for their premises. Unfortunately in many instances the measures taken degrade the shopping environment and reduce its attractiveness. The Council wish to balance the retailers need for security against the benefits of an upgraded environment and in addition to the policy set out below will prepare and keep under review planning policy guidance relating to shop front security. There are current initiatives involving developers, the Council and the police and they are expected to continue.

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Written Statement

• 2 Introduction

• 3 Strategy & Part 1 Policies

• 4 The Local Economy
• 5 The Environment
• 6 Housing
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