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NEW RETAIL DEVELOPMENTB5.23 The C&TCS included a quantitative and qualitative assessment of the need for new retail floorspace in the District during the Local Plan period. The assessment took account of the needs of the wide variety of groups who shop in the District, focusing on meeting the needs of local residents as the first priority. The projected floorspace requirements to 2006 are set out in Table 1 below. B5.24 Projected floorspace requirements are detailed for convenience and comparison shops. Comparison retail floorspace is split into two categories; high street comparison and bulky goods. High street comparison floorspace relates to provision that is normally made via shops located within the existing centres. Bulky goods shops sell items such as carpets, furniture and D.I.Y. goods which often require large sites that may not be available within existing centres. Therefore, such provision may need to be made in edge or out of centre locations. Table 1: Projected Retail Floorspace Requirements for B&NES
B5.25 Long term expenditure growth trends are uncertain and the longer term impact of innovations such as Internet shopping on floorspace requirements is unclear. Therefore, floorspace projections beyond 2006 will need to be made in a future review of the Local Plan when greater accuracy should be possible. The Plan has not identified specific sites to meet post 2006 requirements. However, should such proposals come forward they will be considered in the context of the policies in this chapter. B5.26 Having identified the scope for additional retail floorspace provision, locations have been assessed for meeting the requirement within a sequential framework (see policy S.4). B5.27 In accordance with PPG6 new retail development is directed towards the centres identified in policy S.1. New provision can help to maintain and enhance their vitality and viability. Such development will need to respect the relevant centre’s environmental quality and ensure that it is maintained and enhanced. It will also need to be fully integrated with existing shopping facilities in terms of pedestrian access and links to public transport services and car parking. In all cases new provision must be of a scale and nature appropriate to the centre concerned.
Retail Development AllocationsConvenience ShoppingB5.28 The convenience floorspace projections to 2006 should be principally met by the replacement of the existing Somerfield store in Southgate in Bath’s central shopping area with a larger food store (up to approximately 1,500 sq.m. net) and a new medium to large food store in Keynsham town centre (up to approximately 2,000 sq.m. net). B5.29 Both locations lie within existing centres and the provision of a food store in Keynsham should help to reduce the existing high level of expenditure outflow to Bristol and increase town centre activity and attractiveness. B5.30 Further provision in Norton-Radstock is not proposed as existing provision is regarded as being sufficient to meet the needs of residents of the town and surrounding villages. High Street Comparison ShoppingB5.31 The majority of the projected requirement for high street comparison shopping floorspace to 2006 (see Table 1) should be met in Bath’s central shopping area as the main destination within the District for this type of shopping. The redevelopment of the Southgate Area should provide the bulk of this additional floorspace. B5.32 In addition there may be scope for some small-scale comparison shopping provision elsewhere within the central shopping area or, if no sites are available, on the edge of the central shopping area. Other opportunities for comparison shopping provision in Keynsham and Midsomer Norton town centres may come forward, although no sites are identified in the Plan.
Retail Development outside existing centresB5.33 Projected convenience and comparison retail floorspace requirements can be met primarily within existing centres. However, retail proposals, including large-scale development, outside existing centres may still come forward. B5.34 These proposals will only be permitted if a need can be clearly demonstrated in line with PPG6, which cannot be met within the centres identified under Policy S.1 and if the proposal would not adversely affect their vitality and viability. If need can be demonstrated proposals will be considered within the sequential framework outlined in PPG6. B5.35 The sequential approach gives preference to city and town centre sites; followed by edge-of-centre sites; sites in district and local centres; and only then out-of-centre sites that are accessible by a variety of means of transport. If an out-of-centre site is proposed it should also be in an area that best meets an identified deficiency in provision. Bulky goods provisionB5.36 Residents living within the District have a more limited choice of bulky goods shopping than for other forms of comparison retailing. There is significant diversion of expenditure to provision in Bristol and Wiltshire. Therefore, there is quantitative and qualitative scope for some bulky goods floorspace provision in the District (see Table 1). B5.37 This provision should primarily be made in Bath, which is the largest centre of population within the District and is currently the main destination for comparison shopping. Provision would serve the needs of local residents and would reduce the number of long distance, often car borne, journeys to competing centres. B5.38 Traditionally bulky goods shopping has been provided via retail warehouses, usually with substantial on-site car parking provision. These stores require large sites. However, the supply of land in Bath is very limited. In addition some bulky goods shops have opened in local centres within the City and therefore, the impact of retail warehouse type provision on these shops will need to be carefully considered. B5.39 Within Bath the restricted opportunities in the central shopping area mean that bulky goods provision would best be made in an edge-of-centre or if no suitable sites are available an out-of-centre location. In addition retailers will need to be flexible with regard to shop formats. Whilst the scope and general location for some provision has been identified no sites are allocated at this stage. A number of options require further investigation, including potential within the Western Riverside general development site. In the meantime proposals for this type of shop will be considered under Policy S.4. B5.40 Should proposals for bulky goods shops come forward the range and type of goods offered for sale will need to be carefully controlled in order to ensure that they do not compete directly with shops in existing centres, thereby adversely affecting their vitality and viability. This will be done through conditions imposed when granting planning permission. Furthermore, any subsequent applications for either subdividing bulky goods shop units or varying the conditions imposed will need to be tested against the sequential approach and the vitality and viability impacts set out in Policy S.4.
USES APPROPRIATE IN CITY AND TOWN CENTRESPrimary FrontagesB5.41 A diversity of uses and attractions within a city or town centre can help to maintain and enhance its vitality and viability. Uses that are complementary to shopping (A1 Use Class), such as banks, building societies, restaurants, cafes and pubs (A2 and A3 Use Classes) can reinforce all day activity and increase attractiveness. Leisure facilities and residential use e.g. through the creation of dwellings above shops can also play a useful role (see Policy HG.12 in the Housing section). B5.42 However, whilst this is the case for centres as a whole, there is a need to ensure that their shopping function is maintained by recognising and supporting a strong accessible shopping core. B5.43 The attractiveness of shopping centres is dependent upon their cohesive nature. It is therefore considered important to safeguard against the fragmentation of the core or primary shopping areas through the introduction of non-shop uses. B5.44 In Bath’s central shopping area the need to protect retail uses is increased by the City’s role as a major tourist destination. This leads to considerable pressure for tourist related uses within the heart of the central shopping area. B5.45 Primary frontages, within which retail use is protected, are defined for Bath central shopping area and Keynsham and Midsomer Norton town centres and they are shown on the Proposals Map. They have been defined in accordance with PPG6 and take account of each centre’s physical layout and shopping development pattern. It should be noted that where a primary frontage covers a shopping mall or similar arrangement of shops the notation shown on the Proposals Map and therefore Policy S.5 relates to all of the units contained within them. B5.46 Outside the primary shopping frontage, but within the shopping areas of the City and town centres a greater diversification of uses is appropriate. The introduction of other complementary A2 and A3 uses may help to make the centre more attractive.
Bath City centre A3 UsesB5.47 Whilst greater diversification of uses outside the primary shopping areas should be encouraged an over concentration of one particular use can be harmful and should be avoided. In the centre of Bath A3 uses (pubs in particular) have clustered on the edge of the primary shopping area. This trend is reinforced by local plan policy which protects retail use within identified frontages. B5.48 A3 uses complement the shopping function of the primary areas and encourage customers to walk through them. They contribute to the vibrant mix of uses within the City centre and also help to maintain its historic fabric through the conversion and occupation of large, often listed, buildings. B5.49 However, an over concentration of such uses can be detrimental to the mix of uses and therefore, the character of parts of the Conservation Area. In addition many people live within the City centre (both within and adjoining the central shopping area) and such uses both singly and in over concentration can have an unacceptable adverse impact on the amenity of nearby residential occupiers. B5.50 In considering applications for A3 uses within and adjoining Bath central shopping area it is crucial that the impacts on the character of the Conservation Area and on residential amenity are carefully assessed. Where permission is granted it may be necessary, in the interests of safeguarding residential amenity, for conditions to be attached restricting the type of operation carried out.
B5.51 Bath City centre’s role as a major international tourist destination has led to growth in the number of cafes, restaurants and other food outlets (A3 Use Class). Increasingly operators are setting up tables and chairs outside their premises, with appropriate consents, thereby extending the use onto adjoining pavements. B5.52 This practice helps to increase street activity and can create a pleasant and lively atmosphere. Where appropriate such activity should be supported. However, in some locations it can have unacceptable safety and amenity impacts and detract from the City’s historic environment.
LOCAL CONVENIENCE SHOPPINGBath City centreB5.53 As well as its regional shopping role the central shopping area acts as a local shopping centre meeting the day to day needs of residents and workers. The Council recognises the significant economic and social benefit of local convenience shops and the important role they play in City centre retail provision. B5.54 In addition there are likely to be increased numbers of people living in and close to the City centre e.g. within the redeveloped Southgate Area and in accommodation that may be created over shops. B5.55 The Council’s ability to protect local convenience shops through the planning system is severely restricted by the present Use Classes Order (UCO). The UCO currently classifies retailing as an A1 use and therefore, changes of shop type within this use class do not require planning permission. B5.56 However, the Council will seek to encourage the provision of local convenience shops through its role as a significant property owner and where appropriate will seek to use planning obligations to ensure such provision is made in new developments. District, local and village centresB5.57 Residents within the District are also served by a range of district, local and village centres. These centres (identified in Policy S.1) play a valuable role in providing locally available convenience and top-up shopping. They are essential in helping to reduce the need to travel for shopping trips and are particularly important for residents with limited mobility e.g. those without a car. Therefore, it is important to maintain their shopping function and where possible to promote improvements. B5.58 The Government operates a rate relief scheme to help ensure that shops in small villages remain viable. The Council recently commissioned a study of local and village centres not covered by this scheme to assess their current viability and the problems they experience. B5.59 Following this study the Council has instigated the Local Shopping Centres Initiative aimed at maintaining and improving them. It is important that where appropriate the Local Plan facilitates these improvements (see Policy S.1). B5.60 Equally important is the need to retain existing shopping provision within the district, local and village centres. In particular the focus should be on retaining shops that meet a local need. B5.61 Given their importance locally it is critical that the vitality and viability of these centres is maintained. Safeguarding existing shops should help to achieve this objective, in addition to maintaining local shopping choice. However, these centres may be the location for other locally important services or facilities that contribute to their vitality. These roles should also be maintained. Therefore, in particular circumstances, the loss of a shop may be acceptable where the proposal replaces it with a service or facility that is of benefit to the local community.
DISPERSED LOCAL SHOPSB5.62 Small shops, either singly or in small groups, are also spread throughout the District both within the urban areas and in villages. These shops also provide a useful service for day to day needs and have valuable social benefits. Whilst many of the factors that contribute to their closure lie outside the Council's control, where possible their loss should be resisted. B5.63 Outside the centres identified in the shopping hierarchy the emphasis will be on protecting existing provision. However, there may be opportunities to provide new small-scale local shops or extend existing small shops e.g. in conjunction with new residential or mixed use development. B5.64 Where appropriate the provision of small-scale local shops should be encouraged. They should be located so as to be accessible by a variety of means of transport and they should not adversely impact upon the amenity of existing or new residents. In rural areas provision may also be made via farm shops. Whilst such shops can provide a useful service, their potentially adverse impact on the viability of existing village shops would need to be carefully considered (see Policy ET.10).
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