TOWN, DISTRICT AND LOCAL CENTRES
272. The town, district and local centres in the Borough are
an invaluable resource contributing to sustainable development.
They provide a concentration of shops, leisure, cultural and
entertainment facilities, public services and places of employment
and are accessible by public transport, walking and cycling. Their
economic performance has been threatened by the forces of
out-of-centre competition and this Plan brings forward a policy
emphasis aimed at sustaining and enhancing their vitality and
viability in line with the policy objectives set out in
PPS6 Planning
for Town Centres.
273. Retailing is an important feature in everyone's life and
of great significance to the economy. Despite periodic dips in the
economic cycle, growth in retailing is likely to continue. This
generates opportunities both for new forms of retail development
and for the modernisation and improvement of town, district and
local centres. This Plan includes policies and proposals which seek
to ensure that wherever possible this growth takes place in the
Borough's centres.
274. The Borough possesses two town centres serving two
distinct and separate catchment areas. Waterlooville Town Centre
serves the western area of the Borough including residential
settlements lying within the administration boundary of Winchester.
Havant Town Centre serves the eastern area of the Borough including
Hayling Island and areas lying within West Sussex. In addition,
there are four district shopping centres, at Emsworth, Leigh Park,
Cowplain and Hayling Island. The greatest proportion of the
Borough's retail floor space (68%) is located within the town and
district centres. The small local centres, parades and corner shops
account for 16% of total floor space and out-of-centre stores
account for the remainder.
TC1 HIERARCHY OF CENTRES
Planning permission will be granted for development of
a scale and of a kind which acknowledges the different roles each
of the Borough's centres performs in accordance with the following
hierarchy.
TOWN CENTRES
Havant, Waterlooville
DISTRICT CENTRES
Emsworth, Leigh Park, Cowplain, Mengham/Gable
Head
LOCAL CENTRES
Milton Road, Hambledon Road, Grassmere Way, Purbrook,
Widley, Crookhorn, Middle Park Way, Bedhampton, West Town, Rails
Lane, Creek Road.
275. The purpose of this policy is to maintain a balance
between centres which recognises the different roles they perform
in meeting the shopping and other needs of the populations they
serve. Retail hierarchy is determined by a number of factors but
principally by the size of the centre, its catchment area and the
number and presence of multiple retailers and other
facilities.
276. The two largest centres in the Borough are Havant and
Waterlooville which, whilst providing a convenience day to day
shopping function, also provide a comparison role with greater
market shares in the non-food sector than district and local
centres. Leigh Park District Centre is the principal district
centre as it possesses a greater number of multiple retailers in
comparison with Mengham/Gable Head, Cowplain and Emsworth. As a
consequence Leigh Park District Centre performs a more significant
non-food shopping role than the three other district centres. The
local centres perform a much more limited role than the town and
district centres and generally provide for the day to day shopping
needs of local residents. Some local centres include community
facilities which help maintain centre vitality and this is
acknowledged by the Plan through the definition of centre
boundaries.
277. The boundaries of all the town, district and local
centres are shown on the Inset Maps. Generally the boundaries of
local and district centres encompass the commercial core of these
centres. The boundaries of the two town centres are drawn more
widely to acknowledge their wider role in providing a broader range
of facilities and services which fulfil a community and civic
function in addition to that of shopping.
278. Planning permission may be granted for development which
changes the existing retail hierarchy if it can be established that
there will be a net benefit to the shopping public by doing so and
which does not seriously affect the vitality and viability of
nearby centres.
TC2 MAINTENANCE AND ENHANCEMENT OF
CENTRES
Planning permission will be
granted for development which maintains and/or enhances the
vitality and viability of town, district and local centres
by:
(i) Supporting the primary
function of centres.
(ii) Diversifying land uses in
centres, in particular employment and educational opportunities,
leisure, entertainment, cultural facilities and housing
accommodation.
(iii) Maintaining or improving
the level of housing, the amenity and environment including the
implementation of environmental enhancement schemes and traffic
management schemes.
(iv) Improving access for public
transport, pedestrians, cyclists and people with impaired
mobility.
279. The Council will encourage
development proposals in existing centres which will enhance
diversity and contribute to their vitality and viability. Certain
types of development proposals can help increase the attractiveness
and use of centres but it is shopping in particular which underpins
the strength of centres. Proposed developments should not therefore
undermine the retail function of centres by causing an overall loss
in the quality of shopping opportunities.
280. In accordance with Government
support for mixed-use development, the Council will support schemes
which deliver a range of uses on one site. This could include
housing, community facilities, leisure and business as well as
retail. Different, but complementary uses, during the day and
evening, can reinforce each other, making centres more attractive
to local residents, shoppers and visitors. This plan includes a
number of site-specific proposals where mixed-use schemes would be
supported and to encourage such developments, the Council will take
a flexible approach to car parking and other development control
standards. The Waterlooville Town Centre Urban Design Framework
(October 2004) identifies a number of sites with potential for
mixed-use development in the town centre. An urban design framework
is also being prepared for Havant Town Centre.
281. Mixed use schemes may be sought in
respect of proposals where the ground floor area is greater than
3,500 sq m gross for town centre locations, greater than 2,500 sq m
gross for district centre locations and greater than 1,500 sq m
gross for local centre locations. Where development proposals have
a ground floor area below these thresholds, single use schemes will
usually be considered appropriate. Where proposals for single use
schemes, particularly retail schemes, are sought above the
floorspace thresholds desired, applicants will be required to
submit a statement with the application outlining why a single use
development is appropriate. This could include a financial
appraisal explaining why a mix of uses is not viable and/or a
statement outlining the incompatibility of providing a mix of uses
on the same site.
282. The Council itself will play a key
role in the process of maintaining vitality and viability by
bringing forward its own proposals for environmental enhancement
schemes and traffic management measures.
283. Development which contributes
towards the provision of infrastructure enabling access to centres
by means other than the private car will be encouraged. Quick and
easy access in and around centres, especially by public transport,
and the provision of safe pedestrian and cycle routes will assist
in reducing reliance on the private car for shopping and other
purposes. The Council will also expect development to improve
access for people with impaired mobility.
284. The vitality and viability of
centres will be monitored over time, having regard to a number of
the performance indicators set out in paragraph 4.4 of PPS6. The
likely impact of development proposals will, where appropriate, be
assessed against the performance indicators. In addition, the
Council will encourage partnerships with other public and private
agencies who have a common interest in promoting town centre
vitality and viability and will also seek the most effective ways
to continue to support the process of town centre management.
TC3 SEQUENTIAL APPROACH FOR RETAIL,
COMMERCIAL AND OTHER USES
Planning permission will be
granted for all types of retail, commercial and other appropriate
town centre uses within the defined boundaries of town centres. In
the absence of suitable available town centre sites for such
development and providing a need for the development can be shown,
consideration will be given to edge-of-centre, district and local
centre sites before out-of-centre sites.
285. Shopping and leisure development
should, where possible, be located within existing centres.
Maintaining and enhancing the range and quality of shops in
centres, especially the comparison shopping element, is important
to safeguard centre vitality and viability in line with Policy TC2.
Developers and retailers are urged to adopt a flexible approach
towards store formats, including smaller, more compact stores and
towards reducing car parking requirements to help accommodate new
retail development within existing centres. Where in-centre sites
are not available it will be necessary to examine edge-of-centre
sites.
PPS6
provides a definition as to what sites constitute edge-of-centre
sites and this is amplified in the Supplementary Planning Guidance
Town Centres and Out-of-Centre Development published by Hampshire
County Council in 1998.
286. Not all the Borough's centres have
sites which are suitable, viable and available for new retail or
commercial development. In Emsworth, its designation as a
Conservation Area limits opportunities for expansion or
redevelopment. In the other district centres there are little or no
opportunities for development or redevelopment within or on the
edge-of-centres because of the constraints imposed by the proximity
of existing residential development. An edge-of-centre site has
been developed for retail warehousing at Waterlooville Town Centre.
In Havant there are suitable sites for retail and commercial
development and this Plan makes provision for this by site specific
allocation at Potash Terrace and Solent Road.
TC4 OUT-OF-CENTRE DEVELOPMENT
Planning permission will be
granted for retail and leisure development outside centres
providing:
(i) there is an identified need
both in quantitative and qualitative terms for additional shopping
and leisure provision which cannot appropriately be met on sites
within defined centres or on the edge-of-centres, or allocated in
this Plan;
(ii) the proposal would not
individually or cumulatively with other recently completed or
committed retail or leisure development undermine the vitality and
viability of any existing defined centre or would not individually
or cumulatively with other recently completed or committed retail
or leisure development undermine the viability of any committed
scheme which is located in or adjacent to an existing town,
district or local centre;
(iii) the site is accessible by
public transport, is not likely to significantly increase the
number and length of car journeys and makes adequate provision for
access by cyclists and pedestrians; and
(iv) the development is proposed
on sites allocated for housing, employment or open space where it
can be demonstrated that the need for such allocated use no longer
exists or where suitable alternative replacement land/premises can
be made available for the displaced use.
287. For the purposes of this policy
'defined centres' refers to all town, district and local centres
set out in Policy TC1 whose boundaries are depicted on the
Proposals Map. New shopping development outside existing centres
will not be appropriate unless there is clear evidence of need and
no town centre, edge-of-centre or allocated site is
available.
288. Sites for retail development
outside centres have in the past been developed for food
superstores or large retail warehousing requiring extensive
floorspace for the sale of bulky goods. These shopping
opportunities have extended the range and choice of facilities.
However, out-of-town stores typically rely on car borne trade and
in the case of food shopping in particular cater for predominantly
single purpose trips. This single purpose trip compares
unfavourably with town centres, where reliance on the car is lower
and a single trip can achieve several purposes. There is a need to
guide all types of shopping development, including food superstore
and retail warehouses to locations which help to reduce car use and
offer a choice of means of transport, encourage urban regeneration
and enhance the attractiveness, vitality and viability of the
Borough's centres.
289. Developers will be expected to
submit a retail capacity and impact study including a sequential
site search with any planning application for development outside
existing centres. However, some retail provision within rural
areas, such as farm shops or garden centres, may be considered
favourably provided the majority of floorspace is devoted to goods
that are produced on site.
290. All new shopping and leisure
development should be accessible by a choice of means of transport,
particularly public transport. The number and length of car
journeys likely to be associated with the proposed development will
be a key consideration for the purposes of development
control.
291. The cumulative impact of
out-of-centre proposals should not adversely affect the overall
range and quality of shopping facilities or leisure facilities
within centres, undermine plans for, the redevelopment and
revitalisation of centres, or undermine the principal thrust of
Government and Structure Plan policies aimed at focusing new
development in or on the edge of existing centres. In assessing
applications for development which may have an impact on nearby
town, district or local centres, the Council will have regard to
the tests set out in para 3.22 of
PPS6 and to the Supplementary
Planning Guidance Town Centre and Out-of-Centre Development. It may
be appropriate to attach planning conditions to restrict the main
range of goods to be sold from out-of-town and edge-of-centre
stores and also to include conditions to prevent the subdivision of
retail units so that the development is not changed in character
over time to become the kind of development for which planning
permission would not have been granted in the first instance.
292. Retail and leisure development is
not appropriate on land allocated for other uses within this Plan,
in particular land reserved for housing, employment or open space,
unless the Council is satisfied that there is no longer a need to
safeguard a site for other purposes or in respect of industrial
land meets the requirements of Policy EMP 6.
TC5 MARKETS
Planning permission will be
granted for markets either in the open or under cover providing
they are acceptable in terms of visual amenity, vehicular and
pedestrian access, parking and highway safety and do not create
unacceptable noise and disturbance to the occupiers of nearby
property.
293. Markets can add vitality to
established centres and are of interest in themselves in other
locations. Where the effects of a proposed market are uncertain the
Council will consider granting temporary planning permission so
that the effects can be monitored. Where it is proposed to
establish permanent markets outside existing town, district and
local centres the Council will have regard to the ability of nearby
centres to withstand significant trade diversion and any consequent
impact this could have on their continuing vitality and viability.
In appropriate circumstances it may be necessary to grant planning
permission subject to conditions to control litter, parking,
traffic management, operating hours, collection and storage of
refuse. The Council also has certain non-planning proprietary
controls on the establishment of new markets but these are not
covered in this Plan.
CHANGES OF USE
294. Policies TC6, 7 and 8, controlling changes of use, apply
to all town and district centres without distinction as do the
target representation percentages for Class A1 uses. Each centre
has defined primary and secondary frontages and, in the larger
centres, tertiary frontages as well. The criteria applying to
applications for changes of use in respect of premises located in
primary frontages is stricter than those relating to secondary
frontages as it is intended to maintain a higher proportion of
Class A1 uses in those locations. Rental tone surveys have been
carried out by commercial agents for all centres and these surveys
have helped define the boundary between primary and secondary
frontages. Whilst it is clearly important to maintain the level of
retail activity, there is scope for further diversification in the
town centres within the secondary and tertiary frontages for uses
such as leisure, showrooms and offices.
TC6 CHANGES OF USE - PRIMARY FRONTAGES
Planning applications for Class A2, A3, A4, A5 and
other service sector uses, including leisure and entertainment
uses, will be permitted in the primary shopping frontages shown on
the Proposals Map provided:
(i) this would not lead to the concentration of, or
creation of, adjacent non-retail uses at ground floor level such
that this would begin to undermine the retail function of the
primary shopping frontages; and
(ii) the premises will be open to visiting members of
the public.
295. It is considered vitally important to ensure there is a
balance between retail and non-retail uses in the town and district
centres if their continued attraction to residents is to be
maintained. Whilst branches of the clearing banks, financial
institutions and other non-retail uses offering services to the
public are important, the Council is concerned that these uses
should not be allowed to dominate primary frontages in a way which
undermines the retail function of a particular centre. The Council
will therefore examine the extent to which the retail function of a
centre may be undermined by a proposal as to either the whole of
the primary frontages or particular sections of them. In terms of
the concentration test the policy is aimed at maintaining a 60%
baseline target of Class A1 retail representation. This will be
measured by unit count and, in certain circumstances, by linear
measurement of shopfronts. When planning permission is granted for
a non-retail use it may be appropriate to impose a condition
requiring a window display to be installed and maintained.
TC7 CHANGES OF USE - SECONDARY FRONTAGES
Planning applications for Class A2, A3, A4 and A5 and
other service sector uses including leisure and entertainment will
be permitted in the secondary shopping frontages shown on the
Proposals Map provided:
(i) this would not lead to the concentration of
non-retail uses at ground floor level such that this would begin to
undermine the retail function of the secondary shopping frontages;
and
(ii) the premises will be open to visiting members of
the public.
296. Most non-retail uses will be acceptable in secondary
shopping frontages subject to the concentration test. The
concentration of continuous non-retail frontages would be
detrimental to the vitality and attractiveness of a centre and the
Council will have regard to this when considering a planning
application for change of use. In terms of the concentration test
the policy is aimed at maintaining a 40% baseline target of Class
A1 retail representation. This will be measured by unit counts and,
in certain circumstances, by linear measurement of shopfronts. When
planning permission is granted for a non-retail use it may be
appropriate to impose a condition requiring a window display to be
installed and maintained.
TC8 CHANGES
OF USE - TERTIARY FRONTAGES
Planning applications for residential
accommodation, Class A2, A3, A4, A5 and B1(a) and other service
sector uses, including leisure and entertainment will be permitted
at ground floor level in the tertiary shopping frontages shown on
the Proposals Map provided they are appropriate in scale and
contribute to the vitality and viability of the centre as a
whole.
297. Non-retail uses will be encouraged
in the tertiary frontages in those centres where tertiary frontages
are defined on the Proposals Map. Non-retail uses in these areas
can include Class B1 (a) development as small scale business uses
can take place without damaging the objective of maintaining a
centre's vitality and viability. Such developments often provide
cheap accommodation for local enterprises and create employment
opportunities for the local workforce. Class A1 target
representation will not be applied in the case of tertiary
frontages nor will it be necessary for the premises to be open to
visiting members of the public. Some commercial property originally
built as residential accommodation may be suitable for
reinstatement and residential conversion will be encouraged in
tertiary frontages, where this would be compatible with adjoining
uses and the architectural character of the building.
TC9 CONTROL OF CLASS A3, A4 and A5 FOOD
AND DRINK USES TOWN CENTRES AND DISTRICT CENTRES
Planning permission will be
granted for the construction of new Class A3, A4 and A5 premises or
the change of use of existing premises to a Class A3, A4 and A5 use
within defined town and district centres provided:
(i) measures are incorporated to
mitigate the effect on nearby residential and other properties
where a proposal includes the preparation of hot
food;
(ii) the measures proposed in
respect of criterion (i) are such that the installation does not
materially detract from the appearance of the building itself and
the locality generally;
(iii) the measures proposed in
respect of criterion (ii) are suitable for the range and nature of
hot food to be prepared on the premises; and
(iv) the development includes
adequate provision for the disposal, storage and collection of
refuse, including litter bins for use by customers.
TC10 CONTROL OF CLASS A3, A4 and A5 FOOD
AND DRINK USES LOCAL CENTRES AND OTHER AREAS
Planning permission will be
granted for the construction of new Class A3, A4 and A5 premises or
change of use of existing premises to a Class A3, A4 and A5 use
within local centres and other areas provided:
(i) the development would not
result in indiscriminate customer parking and/or traffic movement
that would be likely to create hazards for traffic or
pedestrians;
(ii) measures are incorporated
to mitigate the effect on nearby residential and other properties
where a proposal includes the preparation of hot
food;
(iii) the measures proposed in
respect of criterion (ii) are such that the installation does not
materially detract from the appearance of the building itself and
the locality generally;
(iv) the measures proposed in
respect of criterion (iii) are suitable for the range and nature of
hot food to be prepared on the premises;
(v) the development includes
adequate provision for the disposal, storage and collection of
refuse, including litter bins for use by customers;
and
(vi) the development would not
cause unacceptable disturbance to the occupiers of nearby
residential property, particularly at times when activity in the
immediate vicinity would otherwise be at a relatively quiet
level.
298. Food and drink uses, as defined by
Class A3, A4 and A5 of the Town and Country Planning (Uses Classes)
Order 1987 (as amended by the Town and Country Planning (Use
Classes)(Amendment) (England) Order 2005) include all proposals for
the sale of food or drink for consumption on the premises or of hot
food off the premises, for example, public houses, restaurants,
wine bars, cafes, snack bars and hot food take-aways.
299. Proposals for food and drink
outlets can create environmental problems such as noise, fumes,
smell, litter, traffic generation and inadequate parking. Of
particular concern is the effect this can have on residential
amenity, particularly when there is a concentration of residential
accommodation nearby. It is recognised that the prevailing
characteristics of town and district centres and local centres
differ significantly. The existing mix of uses (including other
Class A3, A4 and A5 uses), the provision of public car parking and
late night activity means that an application for a Class A3, A4
and A5 use may be more acceptable in a town or district centre
which has a busier, noisier location with a greater level of
activity. It is acknowledged however, that even in town and
district centres, residents can still expect a certain level of
amenity. Applications for Class A3, A4 and A5 uses in town and
district centres which will be detrimental to the existing level of
amenity by means of increased odour levels, noise and activity,
will normally be resisted.
300. In local centres and other areas
where the concentration of residential accommodation is higher, it
is acknowledged that existing levels of noise and activity are
likely to be lower. There is less likely to be a range of public
parking facilities. In such locations, applications for a Class A3,
A4 and A5 use are to be assessed against a wider set of criteria.
Where appropriate, conditions will be attached to permissions for
new Class A3, A4 and A5 uses to mitigate any unneighbourly effects
of the proposed use. The technical and environmental standards for
determining the impact of proposed Class A3, A4 and A5 uses on
adjoining or nearby residential property is set out in
Supplementary Planning Guidance Control of Class A3 Food and Drink
Uses.
TC11 UPPER FLOORS - DIVERSITY OF USES
Planning permission will be
granted for Class A2, A3, A4 and A5, B1(a), housing and other
service sector uses, including leisure and entertainment, on the
upper floors of premises in shopping streets
provided:
(i) they do not prejudice the
satisfactory operational use of the ground floor premises;
and
(ii) they do not significantly
affect the residential amenity of nearby dwelling
units.
301. Floorspace above shop units often
provides suitable accommodation for small business which require a
central area location or for housing accommodation and this is to
be encouraged. However, where a use is proposed above an existing
ground floor use which is considered to be important to maintaining
the centre's vitality and viability, the Council will take into
consideration the impact of the proposed use on the existing ground
floor occupier. If the proposed use threatens to interfere with the
satisfactory continued use of the existing ground floor premises in
terms of the occupier's operational or other requirements, the
Council will have regard to this when determining the application
for the proposed use on the upper floor.
TC12 OTHER LOCAL SHOPPING FACILITIES -
MAINTENANCE OF SHOPS
Planning permission will be
granted for development, including changes of use of existing local
shops provided the development would not result in the loss of a
viable Class A1 shop, in current use, which is capable of
continuing to serve day-to-day local needs.
302. The maintenance of shops will
normally be important where they are generally supported by the
resident population living nearby, particularly by those residents
who do not have the use of a car. The loss of shops in local
centres and parades would restrict the range of shopping
opportunities, thereby reducing choice and the benefits arising
from competition.
303. In considering applications for a
change of use from retail to non-retail purposes for lack of
viability or other reason the Council will take into account the
value of the existing retail unit in terms of its size, location,
servicing arrangements and its suitability in meeting the
operational requirements of retail tenants. The Council will also
take into consideration the potential benefits that may be derived
by the local community from the introduction of a new non-retail
use. When considering applications the Council will wish to be
satisfied that wherever possible the proposed development would
provide a beneficial use to the local community. Applicants will be
expected to supply a statement justifying the change proposed
including evidence as to the marketing of the premises for retail
purposes.
304. Whilst planning policies alone
cannot ensure that shops in local centres or parades remain in
business, the objective of the policy is to maintain the supply of
retail floorspace capable of meeting the day to day shopping
requirements of the local community. Some local shops may be
suitable for conversion to residential accommodation and this will
be encouraged where this would be compatible with adjoining uses
and the architectural character of the building.
TC13 SHOP PREMISES
In order to introduce variety
and protection from the weather for shoppers in precincted shopping
areas, planning permission for the development of premises or
developments involving projections to existing premises beyond the
building line at first floor level will normally be granted
provided:
(i) they are compatible with the
design of adjoining premises; and
(ii) they do not unduly restrict
the visual prominence of adjoining shopfronts and
fascias.
305. The Council will encourage
departures from the established building line at first floor level
if, by doing so, it helps to create a more intimate setting, more
appropriate to a pedestrian shopping area. Opportunities for these
extensions are only likely to arise in Havant and Waterlooville
Town Centres where former highways have been closed and the streets
converted to pedestrian precincts.
TC14 SHOPFRONTS
Planning permission for new
shopfronts or proposals which affect existing shopfronts will be
granted provided their design is sympathetic in scale, character
and materials to the building and adjoining
shopfronts.
306. The design of shopfronts should
relate in scale, character and materials to buildings into which
they are set. Fascias should be the minimum depth necessary to
include the shop name, function and street number. They should
relate well in scale, character and materials to the buildings to
which they are affixed and to the line and depth of adjoining
shopfront fascias, where appropriate.
TC15 SECURITY SHUTTERS
Planning permission for
external roller or other security shutters will be granted
provided:
(i) the use of an internal
roller or security shutter is impracticable;
and
(ii) they are designed in
such a way that the external appearance would be as unobtrusive as
practicable.
307. The need for a policy for security
shutters follows the established trend towards the use of roller
shutters on shop frontages. In order to deter vandalism and
increase the security of their premises, an increasing number of
shopkeepers are installing such shutters. In some cases pressure is
placed upon shopkeepers by insurance companies to install shutters
to protect their expensive plate or laminated glass windows.
However, the use of shutters can also create problems. The loss of
window lighting given off into the streets encourages an
environment where crime is less easily detected and after hours
window shopping will be lost when solid shutters are used. The use
of shutters can therefore damage the image of the shop and be
detrimental to the street scene.
308. When significant numbers of shops
within a shopping centre install shutters there can be a wider
visual impact which creates a damaging impression about the
character, prosperity and security of the locality. If members of
the public keep away from such locations crime is more likely to
occur there. Shops closed, with the shutters drawn down, can also
have a detrimental impact on the daytime scene outside normal
trading hours. There is clearly a need for a balance to be struck
between the interests of crime prevention and the impact on the
visual environment. The Council has prepared guidelines seeking to
ensure roller shutter installations are as unobtrusive as possible,
as set out in Supplementary Planning Security Shutters.