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Distribution of shopping in Torbay

6.1 The shopping pattern in the Torbay retail trade area, which extends across South East Devon with a catchment population of around 285,000, is complex. Torquay is the dominant shopping centre and draws trade from throughout Torbay and surrounding areas, including Newton Abbot and Totnes. The three largest towns in the sub-region - Torquay, Paignton and Newton Abbot - also attract trade from each other. Paignton serves shoppers mainly from Paignton and Brixham, within a radius of about 3-4 miles. Brixham largely serves local needs and those of a few outlying settlements.

6.2 Within Devon as a whole, however, Exeter and Plymouth are the two principal shopping centres and these in turn attract shoppers from Torbay. Nevertheless, recent major shopping developments in Torquay town centre and particularly at the district centre at Scotts Bridge/Barton, Torquay (The Willows) have recaptured some of the trade lost to shops outside Torbay, especially to out-of-centre food and bulky goods stores in the Newton Abbot area.

6.3 Figure 25 shows the dominance of Torquay town centre both in terms of actual amount of retail floorspace and in the percentage of comparison goods, an indicator of its retail significance.

Figure 25: Town centre shopping in Torbay - net retail floor space (sq.ft.)

Source: Devon County Council.

6.4 An important feature of retailing within both Torquay and Paignton is the relatively large provision of retail floorspace in the smaller centres outside the central areas; two of these centres, St. Marychurch in Torquay and Preston in Paignton, are long established and function as district shopping centres. In addition, The Willows District Shopping Centre at Scotts Bridge/Barton is a strategic edge-of-town shopping centre, catering for car-borne shoppers from a wide area throughout South Devon. Until recently, there has been only limited shopping development outside the established retail centres, although there has been continued pressure over the past decade to establish edge-of-town retail s stores, especially on sites adjoining the Torbay Ring Road. The Sainsburys foodstore at Yalberton, Paignton and Safeway foodstore adjacent to Paignton Zoo were both allowed by the Secretary of State following Public Inquiries in the early 1990’s.

6.5 There has also been an increase in retail outlets along the Newton Road corridor, to the north of Torquay town centre, comprising bulky goods stores and a drive-through take-away food outlet. Little of this trade is in direct competition with established shopping centres. However, there is concern firstly over pressure to develop additional retail outlets on a busy section of the main traffic artery between Torquay and elsewhere to the north, and secondly over the loss of well located employment land which is in short supply.

6.6 The importance of the three towns as shopping centres is enhanced by their roles as major resorts. A significant proportion of floorspace in the town centres is supported by tourist expenditure. However, all three town centres have been adversely affected in recent years. Competition from out of town superstores has had a particularly harmful impact on Paignton town centre. There is general evidence of physical deterioration in parts of the centres, such as harbourside areas and edge of town centre locations.

6.7 Recent developments, including pedestrian priority areas, environmental improvements and new shopping facilities have been implemented in order to help to reverse this trend. The focus for town centre management is to adopt a more integrated approach, looking at town centres not just as places for retailing but as focal points for economic and social life.

6.8 It is anticipated that the volume of retail trade arising from shopping over the Internet, or ‘e-commerce’, will grow during the Plan period. The extent to which this trend will affect retailing patterns in the high street is unknown. However, it is possible that there could be a significant impact on certain types of comparison shopping, such as the sale of books and CDs. Banking and other financial services are also likely to be affected.

Planning policy background

(a) National Planning Policy Guidance

6.9 PPG6 ‘Town Centres and Retail Developments’ (1996) provides guidance seeking to:-

• sustain and enhance the vitality and viability of town centres;

• 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;

• maintain an efficient, competitive and innovative retail sector; and

• ensure the availability of a wide range of shops, employment, services and facilities to which people have easy access by a choice of means of transport.

6.10 A key theme of PPG6 is that local authorities should adopt a ‘sequential approach’ of preferring town centre locations for retail developments, followed by edge-of-town centre locations. Out-of-centre locations are only acceptable where no centre or edge-of-centre sites are available, and then only if the out-of-centre location is accessible by a choice of means of transport. Subsequent Government advice (Ministerial Statement, 1999) states that need must be demonstrated for out of town centre retail development. A further Parliamentary statement on 10th April 2003 reiterated the policy tests of need and the sequential approach and that bulky goods sales were not exempt from meeting these policy tests. PPG6 is currently under review. A Consultation draft of PPS6 ‘Planning for town centres’ was published in December 2003 and is likely to be published as a new Planning Policy Statement during 2004.

(b) Strategic shopping policy

6.11 The Adopted Devon Structure Plan First Review (1999) sets out the strategic basis for shopping in Torbay. Torquay and Newton Abbot are classed as sub regional centres, with Paignton as an area centre with a strategic development role. Brixham has no strategic policy designation. As well as giving guidance on new development, retailing policies refer to safeguarding the existing shopping hierarchy, maintaining the vitality and viability of town centres and maintaining their levels of shopping provision. Emphasis is placed on improving access to town centre and other facilities by means other than the motor car. The Devon Structure Plan 2001-2016 (expected to be adopted in Summer/ Autumn 2004) designates the whole of Torbay as a Principal Urban Area (PUA) - see Policies ST5 and ST13. Policies SH2 and SH3 deal with shopping facilities and retail warehousing.

(c) Local shopping policy context

6.12 The Council has consistently aimed to strengthen shopping provision in the three town centres. New facilities have been developed in the centres of Torquay (Union Square and Fleet Walk) and Paignton (Victoria Centre). Other town centre shopping provision is proposed in each of the town centres. There has been planned provision of out of centre food and non-food facilities at The Willows District Centre and bulky non-food retailing on the Newton Road corridor. Some additional out of centre developments were approved by the Secretary of State in the early 1990s (see 6.4 above).

Shopping issues and policy considerations

a) New retail development

6.13 The anticipated growth in retail expenditure to the year 2011 will create the need for new shopping floorspace to meet the Council’s requirements. In the Council’s view, the three town centres are the most appropriate locations for such development since they generally offer the greatest overall levels of accessibility to shoppers. Government policy strongly favours locating retail developments within town centres. Should retail proposals be made elsewhere, it will be necessary to consider their impact (including cumulative impact) on the vitality and viability of both the town centres and the district and local centres. Such proposals for out-of-centre sites should satisfy the sequential approach set out in PPG6.

6.14 Range and diversity of shopping provision will remain particularly important for the health of Torbay’s shopping centres. Out-of-centre food outlets should not result in town centre food retailing being reduced to a level where it ceases to provide a reasonable choice for the shopper. Similarly, it is important that the provision of comparison goods and service facilities in the central areas is sustained and improved wherever possible, in order to avoid further trade diversion from the three town centres. The development of sporadic and peripheral comparison goods stores which are in direct competition with those in established centres, is unlikely to enhance the shopping role of town centres.

b) Role of the town centres

6.15 An underlying aim of the Local Plan is to secure a sustainable future for the town centres as a focus for shopping provision within the sub-region. Complementary uses such as recreation, leisure and housing can contribute to attractiveness and diversity. Mixed-use developments clearly have an important role in this context.

6.16 The ability of town centres to compete will be influenced by the character of the shopping environment and by being highly accessible by all forms of transport, including the availability of well-located, competitively priced car parking.

6.17 While the three town centres are very different from each other, they each need an integrated approach to future management and development based on a partnership between relevant organisations and individuals.

6.18 Safety, convenience and attractiveness are fundamental to a high quality shopping environment. An integrated approach to the improvement of facilities for pedestrians is required, addressing issues such as parking, traffic management and calming, pedestrian priority and landscaping. Accessibility within shopping areas for the disabled and disadvantaged should be an important element of such a package. All three towns have Shopmobility Schemes in operation.

c) District and local shopping centres.

6.19 The Council also recognises that the district and local shopping centres make an important contribution to meeting the day-to-day needs of local neighbourhoods. For those without use of a car, such centres provide a vital service which often extends beyond that of a daily “top-up” nature. Facilities such as pharmacies and post offices are particularly important in this regard. Local and district centres can promote transport choices and generally help to reduce journey distances, contributing to the reduction in CO2 emissions.

Local Plan shopping strategy

a) Torbay Shopping Study

6.20 The Council commissioned a shopping study by consultants Hillier Parker in 1994 to assess retail performance in the town centres, advise on measures necessary to maintain and improve their competitive position, and provide an input into the Local Plan. The findings of the Torbay Shopping Study have provided a comprehensive framework for formulation of shopping development strategies, strategy objectives and detailed policies and proposals.

6.21 The 1994 Study was supplemented by the Retail Capacity Update-2011 (August 1998). This revised the assessment of the towns’ trading positions and retail capacity to 2011.

b) Convenience goods floorspace

6.22 The Retail Capacity Update does not identify a serious qualitative or quantitative deficiency in convenience retailing at present. However, it is anticipated that there will be sufficient expenditure to support additional convenience goods floorspace within the Plan period. In Torquay, capacity has been identified for about 1500 square metres of food and convenience retail floorspace to 2011. It is the Council’s view that this capacity would be best provided for within the town centre.

6.23 In Paignton, the Hillier Parker update identifies a minimal capacity for additional convenience retail floorspace in the Plan period (less than 200 square metres to 2011). However, a qualitative need for a town centre convenience store is identified to counter the impact of out-of-town foodstores. The subsequent opening of Lidl in Victoria Square goes some way to meeting this need.

6.24 In Brixham, capacity for approximately 1400 to 1800 square metres (15,000 - 20,000 square feet) net of convenience retail floorspace is identified within the Plan period, to be provided within the town centre.

c) Durable goods floorspace

6.25 The Retail Capacity Update identified scope for additional durable retail floorspace within Torquay during the Plan period. It is anticipated that the majority of this will be provided within allocated and other existing sites in the town centre. In particular, the range of goods sold from non-central retail warehouses should be strictly limited to bulky durable goods, to minimise adverse effects on Torquay town centre. The Retail Capacity Update supported the provision of some 9300 square metres of bulky goods retail floorspace within the Plan period. Much of this provision has been taken up by development on land adjoining Riviera Way and Hele Road.

6.26 The Hillier Parker Update does not support the allocation of additional bulky durable goods floorspace within Paignton during the Plan period. Instead, it advises that effort should be concentrated on redevelopment or refurbishment of existing facilities. Within Brixham, there may be a capacity for a small durable goods-based scheme of about 860 square metres, within the Plan period. However, this should be in the town centre and would most appropriately be a specialist/niche type retailer to complement and consolidate the town’s dual shopping/tourism role.

d) Town Centre development

6.27 The Retail Capacity Update found that Torbay’s trading performance had improved since the 1994 Study. However, it identified potential threats from out-of-centre retailing and suggests improved utilisation of existing space in the town centre as one solution. It advised that Paignton needed to improve its shopping facilities in order to maintain its position in the retail hierarchy, whilst Brixham was maintaining its role serving local needs as well as tourist demand.

6.28 Both the 1994 Study and the 1998 Update support the introduction of improved access arrangements. Policy SS sets out the Council’s strategy for improving shopping throughout Torbay based on town centres. Proposals for shopping outside the town centres will need to satisfy the sequential approach and demonstrate that they do not harm the vitality and viability of the town centres. Policy S1 focuses on making the town centres work better by means of traffic, environmental and management improvements. The upgrading of existing facilities will help firstly to retain existing retailer representation and levels of trade and, secondly, to strengthen their overall positions by offering a greater range and choice of retailers. The Local Plan encourages mixed use developments in town centres and a number of such developments are proposed in Policy S2. Policies S3 and S4 aim to protect the primary and secondary frontages in the town centres from inappropriate development.

6.29 Policy S5 identifies a number of sites for either comparison (non-food) or convenience (food) shopping. Policy S6 sets out criteria for determining applications for retail development outside town, district or local centres. This Policy details the sequential test and requirement to demonstrate need for out-of-centre proposals.

6.30 Policy S7 deals with amusement centres and Policy S8 addresses hot takeaway food.

e) District and local centre retailing

6.31 Policy S9 sets out policy on Torbay’s three district centres. The Council will support the development of new retail facilities of an appropriate scale where opportunities arise in order to strengthen their respective shopping roles. The Council considers that further retail development at The Willows, Scotts Bridge/Barton (S9.1) should be treated with caution, in order to protect the vitality and viability of Torquay centre, and to prevent the Scotts Bridge / Newton Road Corridor from developing into a self-contained sub-regional shopping centre.

6.32 Maintaining the viability of local shopping centres to meet the needs of surrounding neighbourhoods will be a primary consideration for the Local Planning Authority and is addressed in Policy S10. Three new local centres are proposed to serve areas where significant residential development is proposed (Policy S11). The Council recognises that corner shops can also play a vital role in meeting day-to-day needs, particularly for isolated communities (Policy S12).

f) Other retailing

6.33 Service stations forecourt shops often provide convenience shopping but should not be allowed to undermine local centres, or harm neighbourhood amenity. Policy S13 addresses service station forecourt sales. Policy S14 sets out considerations for drive-through take-aways, and Policy S15 addresses car boot sales and open air markets.

g) Strategic objectives

6.34 In the context of current policy guidance and the strategic shopping considerations set out above, the following objectives have been identified to guide retail development in Torbay during the Plan period:-

1. to make satisfactory provision for the development of an adequate level, balance and range of shopping facilities to reflect the needs of Torbay’s residents and visitors, and to focus such development in town centres;

2. to sustain the retailing role of Torbay as a Principal Urban Area subject to the overall policy of constraint identified in the Adopted Devon Structure Plan First Review (1999) and the Devon Structure Plan 2001-2016 (expected to be adopted in Summer/Autumn 2004);

3. to maintain the vitality and viability of the three town centres and district centres together with the viability of local centres by promoting an appropriate range of retail facilities within an attractive shopping environment;

4. to balance the need to protect and make the best use of existing retail facilities with the need to utilise fully opportunities for new retail development;

5. to sustain and promote an attractive shopping environment in retail centres;

6. to promote retail development patterns that offer a choice of means of transport and at the same time minimise the need for unnecessary journeys;

7. to ensure accessibility to adequate shopping facilities for non-car owners and disadvantaged shoppers; and

8. to resist inappropriate retail developments which would impact adversely on any of the above objectives or which would compromise other aims of the Local Plan, especially in relation to safeguarding employment land and promoting sustainable transport.

SHOPPING AND TOWN CENTRES POLICIES AND PROPOSALS

SS Shopping strategy

A comprehensive range of accessible shopping facilities in town, district and local centres is supported through the policies of this Plan to meet the needs of the local community and surrounding areas, including visitors and tourists. The town centres of Torquay, Paignton and Brixham will be maintained and developed as the main focal points for this shopping activity in order to sustain and enhance their vitality and viability. Proposals for new shopping provision outside existing or proposed centres should establish that there is a need for the facility which cannot be accommodated within an existing centre following a sequential approach to site selection, and should not harm the vitality and viability of any nearby centres.

Explanation:

6.35 The Local Plan aims to sustain and enhance shopping provision within Torquay, Paignton and Brixham town centres, to ensure that they function as focal points for shopping activity within the communities they serve. The boundaries of town centres are defined on the Proposals Map (see Policy S1).

6.36 Where scope exists for change, refurbishment, renewal or diversification, the Council will encourage appropriate new retailing schemes in order to promote confidence and investment in the town centres. Focusing new retail provision in the town centres will offer the greatest degree of accessibility to the public. The sequential test for locating new retail uses in town centres, where possible, is referred to in PPG6 ‘Shopping and Town Centres’ (1996) (paragraphs 1.8 - 1.17) and set out in Policy S6. Developments should reflect the individual character and enhance the unique features of each centre. The range and quality of shopping facilities will be a major influence on the future attractiveness of the three town centres.

6.37 The Council will support a balanced provision of retail facilities and recognises that new shopping may be required outside the town centres. In such circumstances, the Council will expect new retail development to form part of, or be closely related to existing district centres (see Policy S9) and the local centres which currently serve the needs of their immediate neighbourhoods (see Policy S10). The improvement of shopping facilities associated with the smaller unclassified local centres and corner shops may also be acceptable where development is sufficiently small in scale. The Council will wish to discourage the sporadic siting of large convenience goods stores, bulky durable goods stores and large comparison goods stores either in greenfield locations or within main road corridors.

S1 Town Centres

Improvements to Torquay, Paignton and Brixham town centres will be implemented through proposals for new retail development (including mixed-use schemes), environmental improvement, better accessibility (including traffic and parking arrangements) and other town centre management measures. The loss of key retail, leisure, cultural or other facilities which contribute to the diversity and attractiveness of the town centre will not be permitted.

Explanation:

6.38 The future prosperity of the town centres and their attractiveness to shoppers and other users depends to a large degree on improvements to their quality and accessibility. New proposals will be considered in the context of a broader focus on town centre management which will provide an integrated framework for the development of the town centres.

6.39 The encouragement of a diversity of uses throughout each town centre will be an essential part of the Council’s strategy. PPG1 ‘General Policy and Principles’ (1997) emphasises the benefit that mixed uses can bring to the diversity and vitality of town centres, as well as reducing the need to travel. The Council will support developments which provide uses and activities which enliven town centres during the daytime and evening and therefore contribute to their attractiveness, subject to Policies S3 and S4. It is recognised that, in addition to shopping facilities, the introduction of leisure, entertainment and cultural uses in appropriate locations can also complement and enrich town centres. Policy S2 seeks to promote such mixed use schemes.

6.40 Certain leisure and tourism uses, such as cafes, pubs, cinemas and theatres, add significantly to the liveliness of centres, especially during the evenings. Activities which attract visitors and tourists are similarly important. The wide range of non-shopping uses within the town centres therefore makes an important contribution to their attractiveness and accordingly the Council will resist the loss of these facilities. In view of their accessibility to different forms of transport, new facilities of this nature will be supported within or on the edge of the town centres, provided that they do not compromise the retail character of a particular area, and subject to Policies S3 and S4. Policy S14 provides guidance for proposals for food and drink uses outside town centres which cater primarily for car-borne customers. It is important that developments in the town centre respect the character of the built environment (see Policies BES and BE1).

6.41 Residential uses can improve the security of town centres and promote the evening economy. In addition, ‘town centre living’ can help to relieve pressure on greenfield sites. Opportunities often exist for the conversion of existing under-utilised accommodation above commercial premises into flats. It will sometimes be possible to include a residential element in mixed developments. The Council will support such schemes where they are deemed to be appropriate (see Policy H3).

6.42 The Council wishes to ensure that the town centres are accessible to all users. Priority will be given to providing shoppers’ car parking in town centre car parks and the Council will support integrated transport schemes which focus on improvements to traffic management, enhancement and development of public transport as an alternative to the private car, as well as the upgrading of parking facilities.

6.43 The approach taken to town centre management will require an effective partnership and joint working between the local authorities, chambers of trade, retailers, business interests, community groups and other users, in planning the future of the three town centres. The policies and proposals of the Local Plan will provide the land use base for an integrated approach to town centre management.

S2 Town centre mixed use developments

Mixed use development including retail, leisure, employment and residential uses as indicated below will be permitted on the following sites:-

TM1 Lymington Road Car Park, Torquay

TM2 Site of Magistrates Court, Torquay

TM3 Temperance Street, Torquay

TM4 Site of former Royal Garage, Torwood Street / The Terrace, Torquay

TM5 Torwood Street / Torwood Gardens, Torquay

TM6 Dendy Road, Paignton

TM7 Station Lane, Paignton

Explanation:

6.44 Mixed use schemes can contribute to sustainability and maximise the potential of sites. PPG1 ‘General Policy and Principles’ (1997) (paragraphs 8-12) notes that such sites can play an important role in promoting sustainable development. The Local Authority will adopt a positive approach to allowing mixed use town centre developments, where this would not conflict with other Local Plan objectives. Clearly the range of appropriate uses on a site will depend on its location. Sites which are likely to be primarily retail in nature are identified in Policy S5. Within Primary Shopping Frontages, ground floor uses should be retail (see Policy S3). Sites which are suitable for employment use are identified in Policy E1 (E1.7 to E1.13 - see footnote TM).

6.45 A mixture of residential and commercial uses can improve security by ensuring that areas are occupied throughout the day and night, thereby helping to avoid empty towns at night time. They can thus contribute to reducing crime. Residential development in town centres can also reduce pressure on greenfield sites. Because of their central locations they will often be suitable for affordable housing (see Policies H5 - H6). In such developments, the amenity of residents will be an important consideration. Many town centre sites will also be suitable for entertainment and leisure uses (see Policies TU1 and R1). Because of their central location, it will usually be appropriate to provide minimum or zero parking. The character of areas must be respected, in particular in conservation areas.

6.46 The development of Lymington Road Car Park, Torquay (TM1) for office purposes is considered to be the most appropriate new use for this site. Such a scheme could also include an element of leisure use. A retail use which complemented facilities in the nearby Secondary and Primary Shopping Frontages of the town centre may also be appropriate. Careful consideration needs to be given to the retention of the existing car park as part of any redevelopment project. This is a Council-owned site and development is likely to take place on a partnership basis with the private sector.

6.47 The Magistrates Court site (TM2) provides an opportunity for new office development should the present use cease. The location may offer scope for the introduction of a limited amount of leisure use. Development is likely to be implemented by the private sector.

6.48 Temperance Street (TM3) is well-located for town centre office use. The location and physical characteristics of the site are such that a significant element of leisure use could also be accommodated. Opportunities do exist for retail development but development for such a use would need to be properly integrated with the Secondary Shopping Frontage in Union Street to be acceptable. This is a Council-owned site and development is likely to take place on a partnership basis with the private sector.

6.49 Site TM4 in Torwood Street / The Terrace is allocated primarily for retail purposes (see Policy S5.2). Any scheme should be well-related to the Secondary Shopping Frontage in Torwood Street. As with the above site, levels would allow significant use of upper floors for retail use, providing access to The Terrace. The harbour-side location means that the site would also provide opportunities for the introduction of leisure uses. An element of office use would also be acceptable, particularly on upper levels where a link could be established with existing office activities in The Terrace (see also 6.56).

6.50 Torwood Street / Torwood Gardens (TM5) is allocated primarily as an office site but its location close to the harbour suggests that such a use could also be combined with an element of leisure use.

6.51 In Paignton, Dendy Road (TM6) is allocated as an office site. Its very central location ensures that it would be appropriate also to include leisure uses. Its close proximity to the Crossways Centre suggests that the site may also offer scope for use for retail purposes, particularly in conjunction with any refurbishment or extension of the Centre.

6.52 Site TM7, Station Lane, is allocated as a mixed-use site in conjunction with proposals for transportation infrastructure improvements (see Policies T10.6 and T15). This site is allocated for housing purposes (H1.14) and retailing (S5.3). The location is also well suited for leisure uses. Site ownership is divided between the Council, Network Rail and the local bus company. The detailed composition of uses that could be achieved on this site will be determined by the space requirements of the transport operators involved in the redevelopment of this site. Any development scheme should respect the conservation value and historical character of the area.

S3 Primary Shopping Frontages

The shopping function of town centre Primary Shopping Frontages will be safeguarded and enhanced. Development and change of use of ground floor retail premises (Use Class A1) for other uses (including Classes A2 and A3) will not be permitted where:-

(1) the primary retail role and character is undermined;

(2) the proposed use would harm the vitality and viability of the Primary Shopping Frontage;

(3) the introduction of non-retail use would cause unacceptable fragmentation and isolation of the remaining shops; or

(4) there is a detrimental effect on the visual character and amenities of the surrounding area.

The assessment of such applications will include consideration of the following criteria:-

(a) the location and prominence of the premises within the shopping frontage;

(b) the floorspace and length of frontage of the premises;

(c) the number, distribution and proximity to other premises within Classes A2 and A3, or with planning permissions for such use;

(d) the particular nature and character of the use proposed, including the level of pedestrian activity associated with it;

(e) the level of vacancies in ground floor properties; and

(f) whether the proposed use would give rise to noise, smell or other environmental problems.

Explanation:

6.53 The Local Plan makes the distinction between the prime shopping cores of the town centres and the secondary shopping areas, where a wider range of activities is supported. The different characteristics of these two areas are reflected in their definitions as Primary Shopping Frontages and Secondary Shopping Frontages (see Policy S4).

6.54 The Primary Shopping Frontages encompass the key established retail frontages where multiples and other national high street outlets are typically located, where levels of pedestrian activity are usually at their greatest and where concentrations of Class A1 retail uses generally predominate. They are the focus of retail activity where there are concentrations of larger retail units, often operating on more than one level, and with the highest ‘Zone A’ commercial rental levels. Shops subject to seasonal (winter) closure are rarely situated in these locations. The Primary Shopping Frontages are defined on the Proposals Map.

6.55 Primary Shopping Frontages define the retail heart of the town centres where the Council will seek to ensure that changes of use do not undermine their key retail role. The introduction of significant numbers of non-retail uses into Primary Shopping Frontages, such as banks, building societies and other professional activities, can introduce breaks in the continuity of retail frontages. These ‘dead frontages’ can be visually disruptive and may be discouraging to shoppers. They can also reduce the choice of units available to retailers, fragmenting and weakening the established shopping centres and making them less vibrant places.

6.56 These primary frontages already contain some Class A2 and A3 uses. Whilst these can provide a valuable service to shoppers, the Local Planning Authority would not wish to see the existing balance between retail and non-retail uses change significantly in these areas.

S4 Secondary Shopping Frontages

Mixed shopping, service and leisure/entertainment uses are considered to be appropriate at ground floor level in the Secondary Shopping Frontages. Changes of use or redevelopment from retail will be permitted where:-

(1) the overall shopping character is not undermined;

(2) the proposed use contributes positively to the town centre as the focus of commercial or community life of the town; and

(3) there is no detrimental effect on the visual or other special character and amenities of the surrounding area.

Explanation:

6.57 The Secondary Shopping Frontages extend beyond the Primary Shopping Frontages and are characterised by a mix of retail and non-retail uses. Such locations usually contain the main town centre concentrations of Class A2 (financial and professional services) and A3 (food and drink) uses, as well as a predominance of independent retailers and smaller shops. Normally there is an absence of (or only minimal representation by) major high street multiples, pedestrian flows are lighter and less consistent, and rental levels are lower than in Primary Shopping Frontages. The large majority of town centre premises subject to season (winter) closure are located within the Secondary Shopping Frontages.

6.58 This combination of mixed uses is an appropriate and essential feature of the town centres, and helps to enhance their levels of interest and diversity. It allows for the introduction of smaller retail enterprises and specialist shops as well as accommodating personal services which are visited by the public as part of a normal shopping trip. The Secondary Shopping Frontages are defined on the Proposals Map.

6.59 The vitality of the town centres stems largely from the range and quality of activities that take place within them. In this respect it is recognised that the Secondary Shopping Frontages can contribute by sustaining a variety of retail, service and retail-related uses. Diversification and flexibility in use of retail floorspace will therefore be supported, provided that proposals reflect and complement the overall shopping character of each area. Proposals should not lead to excessive breaks in retail frontages or be harmful to local amenity. In determining the suitability of such applications, the Council, whilst wishing to ensure that retailing remains the main function, will take into account the diversity in character of different parts of the Secondary Shopping Frontages.