5.1. Uses considered within this chapter include shops, financial and professional services, restaurants, pubs and similar food and drink sales, together with various 'quasi retail' activities such as launderettes, taxi businesses and wholesale warehouses. It is considered important to maintain a healthy retail base, commensurate with the town's status as a minor sub-regional centre, in the face of strong competition from nearby towns, and to ensure that shopping provision remains convenient for the whole of the Borough's population. This will provide realistically for amenity and choice for the local population, reduce the costs of unnecessary travel and contribute both to the well-being of the local economy and the vitality of the local communities.
5.2. In accordance with Government guidance in PPG6 'Town Centres and Retail Developments' (June 1996), sustaining and enhancing the vitality and viability of town centres is of prime concern. To this end the Borough Council will continue to promote retailing as a key component of Wellingborough town centre; sites have been identified in the town centre for new mixed use development including retailing; and a major scheme of environmental improvements is being carried out. Specific town centre policies and proposals are set out in Chapter 9. At the same time proposals which would have an adverse impact upon the vitality and viability of the town centre will be refused.
5.3. In order to support the town centre, reduce car travel and maximise the opportunity for ease of access by a choice of means of transport, retail development will be subject to a sequential test. First preference for other than purely small scale local shopping should be for sites within the Town Centre Core defined on Inset 1A, followed by edge of centre and only then for out of centre sites in locations that are accessible by a choice of means of transport.
5.4. Studies commissioned by the Borough Council have indicated that there is primarily a need for continuing qualitative improvements to meet forecast demand and maintain the town's position in the sub-regional shopping hierarchy. Accordingly other than within the town centre, no specific allocations are made to provide for major additions to retail floor space. It is recognised, however, that retail floor space requirements are difficult to predict because of the dynamism that has been associated with the retail sector. Sufficient flexibility is, therefore, allowed for, subject to the broad development limits imposed by the general strategy and the requirements referred to in paragraphs 5.2 and 5.3 above.
RETAIL DEVELOPMENT WILL NOT BE PERMITTED IF IT WILL RESULT IN A SIGNIFICANT ADVERSE IMPACT UPON THE VITALITY AND VIABILITY OF THE TOWN CENTRE AS A WHOLE - CUMULATIVE AS WELL AS INDIVIDUAL IMPACT WILL BE TAKEN INTO ACCOUNT.
5.5. New retail development should not detract significantly from the retail function of the town centre nor the maintenance of local shopping facilities. Proposals which will have a significantly adverse impact upon the vitality and viability of the town centre as a whole will normally be refused. Proposals which individually are relatively modest may be resisted also if, taken with other proposed or permitted schemes, they would result in cumulative impact of significance. Provisions to maintain local shopping facilities are put forward later this in this chapter.
PLANNING PERMISSION FOR RETAIL DEVELOPMENT ON SITES OUT OF THE TOWN CENTRE* OR ON THE EDGE OF THE TOWN CENTRE WILL BE REFUSED UNLESS THE DEVELOPER DEMONSTRATES THAT THERE ARE NO SUITABLE SITES OR BUILDINGS SUITABLE FOR CONVERSION AVAILABLE IN THE TOWN CENTRE. IN THE CASE OF SITES OUT OF THE TOWN CENTRE PLANNING PERMISSION FOR RETAIL DEVELOPMENT WILL ALSO BE REFUSED UNLESS THE DEVELOPER DEMONSTRATES THAT NEITHER ARE THERE SUITABLE SITES NOR BUILDINGS SUITABLE FOR CONVERSION AVAILABLE ON THE EDGE OF THE TOWN CENTRE.
*for the purposes of this policy the town centre is defined as the Town Centre Core area shown on Inset 1A of the Proposals Map.
5.6. The town centre should remain the principal area for most retail uses. It is the focus for the Borough in terms of commercial, civic and cultural activities and of the local transport network. As referred to above and detailed within Chapter 10, it has the potential to accommodate some further growth and change in retailing.
5.7. There are substantive land use planning reasons why some retail uses are more appropriate elsewhere in the Borough. Village shops and local shops in the town normally provide a complementary service to the town centre: small scale local facilities which, in close proximity to their customers, serve the everyday needs of a village or individual residential area of the town are especially valuable to the less mobile; they help to create a sense of local identity and provide some local employment. Other uses, such as tyre centres, may detract from the town centre shopping environment and are better located close to main road frontages elsewhere. Large bulky goods warehouses may not be readily accommodated in the centre because of land availability constraints. Nevertheless, retail proposals in general should conform to the sequential test described in paragraph 5.3 above. In accordance with Policy S2 when a suitable Town Centre Core site is not considered to be available by developers they will be expected to demonstrate this and as advised in PPG6 will be expected to adopt a flexible approach to the format, design and scale of the development to achieve a town centre location wherever possible.
SHOPPING DEVELOPMENT WHICH, BY VIRTUE OF ITS NATURE, SERVICING OR ACCESS REQUIREMENTS, CANNOT BE ACCOMMODATED IN THE TOWN CENTRE, WILL BE PERMITTED IN THE TOWN PROVIDING IT IS:
ON A SITE WHICH WILL ENSURE THAT OVERALL TRAVEL COSTS ARE MINIMISED;
ACCESSIBLE BY A RANGE OF TRANSPORT MODES, INCLUDING PUBLIC TRANSPORT; AND
WHEREVER POSSIBLE, IN CLOSE ASSOCIATION WITH EXISTING OR PROPOSED RETAIL USES.
5.8. It is likely that most shopping development to serve the needs of the Borough can be located in the town centre in view of the new mixed use development sites that have been identified there. Nevertheless, large stores selling bulky goods may not be readily accommodated in view of their car-based access demands; large 'retail shed' type developments may be at odds with conserving and enhancing the traditional character of the town centre. Flexibility on the part of developers as referred to in paragraph 5.7 may overcome certain constraints but where it can be demonstrated that suitable sites or premises suitable for conversion are not available, alternative locations may be acceptable. In such circumstances and subject to there being no adverse impact as set out in Policy S1, proposals will be judged against Policy S3.
5.9. Combining proposals with existing out of centre developments will increase the ability for single trips to serve several purposes and thereby reduce travel demands. Sites should be in close proximity to public transport. Where appropriate the Borough Council will negotiate improvements to public transport accessibility. This coupled with the availability or creation, as appropriate, of pedestrian and cycle routes will maximise access by means other than by car.
PLANNING PERMISSION FOR MAJOR RETAIL DEVELOPMENT OUTSIDE THE TOWN CENTRE WILL ONLY BE GRANTED SUBJECT TO CONDITIONS CONTROLLING THE CHARACTER OF RETAILING WHICH CAN TAKE PLACE.
5.10. It will be necessary in general to establish the character of retailing which is intended in an out-of-centre development, in order that informed judgements of impact can be made. Normally conditions will be imposed upon a consent to control subsequent changes of character which would result in unacceptable impact upon the town centre as a whole.
SHOPPING DEVELOPMENT WITHIN RESIDENTIAL AREAS OF THE TOWN WILL ONLY BE PERMITTED IF IT IS:
SMALL SCALE; AND
LOCATED WITHIN A LOCAL CENTRE, WHEREVER POSSIBLE, OR WITHIN A GROUP OF SHOPS.
CHANGES OF USE FROM RETAILING OR FROM A SHOP TO ANOTHER FORM OF RETAILING IN A LOCAL CENTRE WITH VERY LITTLE SHOPPING PROVISION WILL NOT BE PERMITTED.
EXCEPTIONS MAY BE MADE TO REDEVELOP A LOCAL CENTRE FOR OTHER USES IF SECURE ARRANGEMENTS ARE ENTERED INTO FOR SATISFACTORY REPLACEMENT PROVISION NEARBY.
5.11. It is desired to keep small-scale town 'estate' shopping facilities in use as such as they maintain vitality and provide an important service for local residents, particularly the elderly, the infirm and those without access to a car. A certain proportion of other 'retail' type uses such as financial and professional services and hot foot outlets (see definition in paragraph 10.1 below) are of course appropriate in local centres, but it is considered that traditional shops should normally predominate.
5.12. There is sufficient potential for retail facilities in the town for further new shopping development in residential areas to be restricted normally to small scale uses commensurate with the everyday needs of the locality and thereby avoid undue conflict with residential amenity. Control will relate both to new development and extensions to existing facilities. Wherever possible, local shopping facilities should be associated with the purpose built local centres, designed and located to minimise disturbance to the surrounding area.
LOCAL SHOPPING FACILITIES FOR THE NEW HOUSING AREAS AT REDHILL FARM AND LAND TO THE EAST WELLINGBOROUGH EAST WILL BE PERMITTED WITHIN SPECIFICALLY DESIGNED LOCAL CENTRES.
5.13. Provision has been made within most housing areas for local centres, which typically include a small supermarket and three or four other shop units. Local centres will be required as part of the comprehensive schemes for the major new housing areas now proposed. The centres should be designed and located to minimise disturbance to the surrounding area, be integrated with the footpath/cycleway network and incorporate off street parking and servicing. Detailed briefs are to be agreed by the Borough Council and agreements will be sought to ensure that the centres are built in phase with the housing. These matters are referred to in Chapter 9.
DEVELOPMENT FOR FINANCIAL AND PROFESSIONAL SERVICES WILL ONLY BE PERMITTED OUTSIDE THE TOWN CENTRE SUBJECT, AS APPROPRIATE, TO CONDITIONS TO MAINTAIN FUTURE CONTROL OF THE NATURE OF RETAILING WHICH CAN TAKE PLACE FROM THE SITE AND PROVIDED THAT:
EITHER BY VIRTUE OF THE SPECIFIC USE PROPOSED IT CANNOT BE ACCOMMODATED IN THE TOWN CENTRE OR IS FOR A SMALL SCALE USE WITH A LOW VISITOR ATTRACTION;
IT IS ON A SITE WHICH WILL ENSURE THAT OVERALL TRAVEL COSTS ARE MINIMISED;
IT IS ACCESSIBLE BY A RANGE OF TRANSPORT MODES INCLUDING PUBLIC TRANSPORT; AND
WHERE POSSIBLE, IT IS IN CLOSE ASSOCIATION WITH EXISTING OR PROPOSED RETAIL USES.
5.14. Banks, building societies, estate agencies and other offices, providing services principally to visiting members of the public, are normally appropriately located within shopping areas, thereby being convenient to customers and lessening conflict with incompatible uses. For a town such as Wellingborough it is likely that the majority of such uses will seek locations within or close to the town centre. For town centre sites reference should be made to the policies within Chapter 10.
5.15. Small scale financial and professional services with low visitor attraction are unlikely to create significant amenity problems. Therefore a flexible stance may be taken not to unduly preclude appropriate alternative locations, subject to control of subsequent changes to more intrusive activities, such as a general shop use. In order to protect local amenity and ensure that the shopping strategy is not compromised, similar control will be imposed in respect of permitting other financial and professional services - such as a bank serving a local catchment area - to locate outside the town centre.
DEVELOPMENT FOR RESTAURANTS, PUBS AND SIMILAR FOOD AND DRINK RETAILING WILL BE PERMITTED OUTSIDE THE TOWN CENTRE SUBJECT TO CONDITIONS TO LIMIT LOCAL DISTURBANCE AND MAINTAIN FUTURE CONTROL, AS APPROPRIATE, OF THE NATURE OF RETAILING WHICH CAN TAKE PLACE FROM THE SITE AND PROVIDED THAT:
IN RESIDENTIAL AREAS IT IS SMALL SCALE AND LOCATED WITHIN A LOCAL CENTRE OR GROUP OF SHOPS; OR
ELSEWHERE IT IS ACCESSIBLE BY A RANGE OF TRANSPORT MODES.
5.16. Many snack bars, some hot food take-aways, public houses and restaurants are also closely associated with shopping trips and appropriately located in shopping areas. A flexible stance may be taken with those uses whose function is largely independent of shopping activities. Exceptions may be permitted in mixed use areas, or greenfield sites in close proximity to existing or proposed development, provided site location and design will not normally result in general loss of amenity nearby.
5.17. The latter condition is important as sale of food and drink for consumption on the premises or of hot food to be taken away can create significant problems of disturbance from fumes, cooking smells, noise, litter and parking. In residential areas new uses and extensions to existing establishments will therefore normally only be permitted if the use is of a small scale which would relate essentially to local needs. New development should normally be located in a local centre. Even in this case it may be necessary to oppose development or impose conditions, such as limiting opening hours, where disturbance generated, especially in the evenings and at weekends, will be obtrusive to nearby occupiers.
NEW DEVELOPMENT FOR RETAIL USES HAVING SPECIALISED REQUIREMENTS, SUCH AS LARGE OUTDOOR DISPLAY AREAS, OR WHICH MAY CREATE SIGNIFICANT DISTURBANCE, FOR EXAMPLE THROUGH NOISE, TRAFFIC, HOURS OF OPENING OR ILLUMINATION, WILL BE PERMITTED WITHIN OR ADJACENT TO EXISTING OR ALLOCATED URBAN DEVELOPMENT PROVIDED THAT:
THE SITE PROPOSED IS SEPARATE FROM PREDOMINANTLY RESIDENTIAL OR OTHER CONFLICTING USES;
THE SITE HAS SATISFACTORY ACCESS TO THE MAIN ROAD NETWORK AND IS ACCESSIBLE BY A RANGE OF TRANSPORT MODES; AND
CONDITIONS CAN BE IMPOSED OR AGREEMENTS NEGOTIATED TO MAINTAIN FUTURE CONTROL OF THE NATURE OF RETAILING WHICH CAN TAKE PLACE FROM THE SITE.
CRITERION 3 WILL APPLY ALSO TO PROPOSED ALTERATIONS OR EXTENSIONS TO EXISTING PREMISES.
5.18. New amusement centres should be located within the Commercial Fringe or Mixed Use Areas of the town centre subject to the provisions of Policy C4 or C10.
5.19. Certain retail uses, such as car or caravan sales or garden centres which require large open display areas, are normally not readily accommodated within shopping areas. Transport-related activities of service garages and tyre centres can create noise problems as well as disturbance arising from vehicular movement and should normally be located on special sites. This applies also to petrol filling stations, which may create further disturbance by extended opening hours and illumination at night, and to uses such as wholesale warehouses whose trade is not directed principally to the general shopping public.
5.20. In all cases referred to in paragraph 5.19, sites with good access to the main road network and separate from predominantly residential areas will be encouraged. Necessary conditions to safeguard surrounding development will be applied : for example to ensure that open display areas, screening, security enclosures and lighting do not unduly detract from the appearance or amenity of an area. Where appropriate, conditions will normally be imposed to preclude changes which do not warrant an exception to other retail policies.
5.21. Sites associated with major new development, such as Land to the East Wellingborough East or redevelopment proposals, will be advantageous in that specific design measures to overcome potential problems can normally be undertaken. There are, however, restrictions upon retail development on industrial estates, referred to in the following section. Roadside service areas on the strategic highway network are considered separately within Chapter 7 and retailing associated with leisure uses is referred to in Chapter 6.
RETAIL USE OF INDUSTRIAL PREMISES AND LAND WILL BE REFUSED. EXCEPTIONALLY, PERMISSION MAY BE GRANTED ON INDUSTRIAL ESTATES FOR:
FACTORY SHOPS TO SELL PRODUCTS MANUFACTURED ON THE PREMISES;
SPECIALISED USES, SUCH AS TRADE WAREHOUSES, ON A SITE WITH GOOD DIRECT ACCESS TO THE MAIN ROAD NETWORK, IF APPROPRIATE ALTERNATIVE SITES ARE UNLIKELY TO BE AVAILABLE; AND
LOCAL CENTRES APPROPRIATE TO PRINCIPALLY SERVING THE EVERYDAY SHOPPING NEEDS OF EMPLOYEES WITHIN THE ESTATE.
IN ALL CASES PROPOSALS MUST NOT UNDULY PREJUDICE THE SHOPPING STRATEGY, SUPPLY OF EMPLOYMENT LAND OR THE EFFICIENT OPERATION OF THE INDUSTRIAL ESTATE.
5.22. There has been some pressure to use factories in the town for retail purposes. Normally changes of use of industrial premises to retail will be contrary to shopping and industry/business policies. There is unlikely to be over provision of employment land in the medium to long term (refer to Chapter 4 ) and short term lack of demand is not in itself sufficient justification for exceptions.
5.23. There may be sufficient land use justification which does not conflict with plan objectives, however, to exceptionally grant permission for a limited range of retail uses within industrial estates in order to meet the Borough's needs. Permission may be required for a factory shop selling direct to the public goods manufactured on the premises if the shop use is not clearly the ancillary activity. The use of premises elsewhere could result in unacceptable disturbance to nearby uses. Factory outlets remote from the manufacturing process will not, however, normally be permitted. Specialised uses, such as trade warehouses, which are inappropriately located in shopping areas, should preferably have good access to the main road network. Most industrial estates are well located in these respects and alternative sites to allow adequate provision are in short supply. The local shopping facilities must relate to the reasonable everyday needs of local employees for items such as newspapers, sandwiches and possibly banking, to avoid prejudicing the retail hierarchy. It is anticipated that only the large estates of Park Farm, Finedon Road and Land to the East Wellingborough East will generate sufficient demand.
PROPOSALS FOR CHANGE OF USE FROM RETAIL IN A VILLAGE WITH VERY LITTLE SHOPPING PROVISION WILL NOT BE PERMITTED.
5.24. As a result of factors such as increasing car ownership and bulk purchasing from supermarkets, there is a continued threat to village shops. Their retention is considered to be important in order to maintain basic provision for the needs of all members of the community. Whilst the Borough Council cannot prevent closures, it can resist a change to a different use. Such an approach will not be unreasonably sustained if a shop use would no longer be viable. In such circumstances, however, another retail use would be preferable, whenever possible. A change to an otherwise acceptable alternative use is unlikely to be resisted in Limited Development Villages or others with several retail units.
IN THE RURAL AREA RETAIL DEVELOPMENT, INCLUDING EXTENSIONS TO EXISTING ESTABLISHMENTS, WILL BE PERMITTED AS FOLLOWS:
IN THE VILLAGES ONLY IF IT IS SMALL SCALE AND
APPROPRIATE ESSENTIALLY TO MEET THE NEEDS OF THE VILLAGE; OR
A FARM SHOP; OR
A FACTORY SHOP TO SELL PRODUCTS MANUFACTURED ON THE PREMISES; OR
A SHOP WHICH IS MINOR AND ANCILLARY TO AN APPROVED LOCAL RECREATION OR TOURIST FACILITY;
IN THE OPEN COUNTRYSIDE ONLY IF IT IS SMALL SCALE AND
MINOR AND ANCILLARY TO AND LOCATED WITHIN AN APPROVED RECREATION OR TOURIST FACILITY; OR
A FARM SHOP ASSOCIATED WITH AN EXISTING COMPLEX OF FARM BUILDINGS.
5.25. Village shops, together with some other retail establishments which also provide principally for everyday needs, complement the town centre, as discussed earlier. Retail development in the open countryside and large retail outlets, whether in the open countryside or the villages, would be contrary to the shopping strategy. They would be likely to be inadequately served by public transport and result in increased travel needs overall. They would also be likely to adversely affect the rural character of the area.
5.26. Additional retail development in the rural area will normally be limited to that which both essentially serves a village community and is located within the village. Proposals which are primarily intended to serve demands from outside a village may exceptionally be granted in the case of small scale facilities directly related to approved recreation uses or tourist attractions, including in the villages restaurants which are independent of shopping activities or farm shops and factory shops (where permission is required). Exceptions related to the reclamation of large areas of derelict land or other environmental improvements, as referred to in the Structure Plan, are unlikely to be applicable in the Borough.
5.27. In the light of the threat to village shopping, referred to above, normal standards of parking and servicing may be flexibly interpreted with respect to local shopping proposals in villages which have inadequate existing shopping provision. Any relaxation would be subject to the extent to which the impact upon surrounding occupiers would represent an undue loss of amenity.
5.28. Garden centres are normally of a large scale, generate a considerable amount of traffic and can be visually intrusive in a rural setting. Therefore, new centres, where not dependent upon a rural location, should be located on appropriate urban orientated sites. Extensions to existing establishments in the rural area must not result in substantial increases in traffic or other intrusion upon rural character in conflict with the General Policies of the Plan. With the exception of some village commercial garages, most other specialist uses referred to in paragraphs 5.18 - 5.21 are located in the urban area and new development should normally also be located there. Proposals for a local service/car sales garage and extensions to existing establishments should be in conformity with Policy S13. They are likely to require a larger site than a normal retail development. Therefore, where permission is to be granted it may be conditioned to preclude changes to other retail uses.
5.29. Wherever possible most retail uses will be encouraged to locate in close proximity to each other in order to allow for easier access and provide for greater convenience, thereby strengthening existing provision. In view of the need to maintain shop provision, however, other sites may be favourably considered for shopping use where there is neither a shop nor post office in the village or where there is a clear need in the larger villages for additional 'corner shop' provision.
5.30. Some flexibility may also be appropriate in respect of financial and professional services. Other than the large villages of Earls Barton, Finedon, Irchester and Wollaston, it is marginal whether sufficient demand can be generated to support a normal service use. The use of part of a dwelling may, therefore, be permitted in order to provide some opportunity for local employment, subject to conditions to prevent subsequent changes to more intrusive activities.
5.31. As discussed in paragraph 5.17, above, food and drink uses such as public houses and hot food take-aways can present particular problems of disturbance. Therefore, new development will be restricted to sites where such problems can be most effectively controlled, normally in association with other retail outlets in the centres of the larger villages, and by conditions limiting hours of opening where necessary. Proposals for non-shop retail uses will normally be resisted if they involve the loss of shopping contrary to Policy S12.
5.32. The use of industrial premises for retailing will not normally be acceptable, in order that the retention of employment uses, as discussed in Chapter 4 , is not prejudiced.