Bath & North East Somerset Local Plan Revised Deposit 2003

Chapter B5. Shopping

INTRODUCTION

B5.1 Shopping is a fundamental part of day to day life. The availability of a good range of convenience and comparison shops makes an important contribution to people’s quality of life. Convenience shops are those that sell essential goods, principally food, and comparison shops generally sell durable goods e.g. clothes, shoes, electrical items etc.

B5.2 The Strategy of Balanced Communities means providing for a choice and diversity in shopping, ensuring that it is accessible to all especially those without a car.

B5.3 Shopping provision is primarily focused in town, district and local centres which also provide a range of other services and facilities. PPG6 (Town Centres and Retail Developments) and the JRSP stress the importance of maintaining and enhancing the vitality and viability of these centres, as they are able to meet the various shopping needs of residents and visitors in the most sustainable way. The need to travel is reduced and opportunities for walking, cycling and using public transport are increased.

B5.4 In addition shopping provision within these centres makes an important contribution to a vibrant and vital public realm. New retail development required should be directed towards existing centres in order to help ensure that their vitality and viability is maintained and enhanced.

B5.5 The assessment of how retail development requirements should be met must also be set within a context of an innovative and rapidly changing retail sector. For example Internet shopping is likely to play an increasingly important role.

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B&NES Bath & North East Somerset Context

B5.6 Local plans should be based on up to date information. A City and Town Centres study (C&TCS) was undertaken on behalf of the Council in July 2000.  The study considered the relationships between the existing centres in B&NES Bath & North East Somerset and assessed the District's retail needs.

 B5.7     B&NES Bath & North East Somerset contains a network of centres that serve not only residents of the District, but also the wider area.

Bath

B5.8 Bath City centre is a major shopping destination.  Retail activity is primarily focussed in the central shopping area, which lies within the wider City centre.  The central shopping area serves meets the convenience and comparison shopping needs of the local population, is a regional retail and leisure centre and also contains a number of international tourist attractions.  As such it contains local needs shops, national comparison multiples and a range of small independent specialist shops, which it is important to retain as they contribute to the uniqueness of the centre.

B5.9 The central shopping area is both highly successful and attractive. Its compact nature and high quality historic environment contribute to this attractiveness.

B5.10 In addition to bringing many visitors and income into the District, the retailing function of this part of the City centre is an important source of employment. It is crucial that the central shopping area continues to serve its many roles and that its current healthy market position and attractiveness is maintained.

Keynsham

B5.11 Keynsham town centre serves the day to day shopping needs of local residents and those of the surrounding rural areas. It currently contains a reasonable range of comparison and convenience shops. However, representation of national multiples is limited and it lacks a large store to act as a focus. There is significant diversion of expenditure from Keynsham to Bath and more particularly to food stores and retail warehouses in Bristol.

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Midsomer Norton

B5.12 Midsomer Norton town centre serves the daily shopping needs of Norton-Radstock residents and those villages in the southern part of B&NES Bath & North East Somerset and northern Mendip District.  The town has a good range of convenience shopping facilities, both within the town centre and out-of-centre at Thicket Mead (which lies within the Parish of Paulton).  The town centre also provides for a range of day to day comparison goods shopping and residents tend to travel to Bath to meet their other shopping needs.

B5.13 Despite providing a range of shops there is still scope for improving the town centre. However, there are few medium or large units available that would be suitable for national multiples. Proposals funded by the Single Regeneration Budget (SRB) should help to enhance the centre by making better use of public spaces and improving linkages between different parts of the retail frontage.

Radstock

B5.14 The centre of Radstock town centre provides a small shopping area that is dominated by a large general store (Radco).  The centre serves two shopping roles.  The parade of shops and services acts as a local centre for Radstock residents and the Radco store serves a wider catchment area for food and comparison shopping. The centre currently has a high proportion of units in use for services other than retail and the vacancy rate is relatively high.

B5.15 SRB funded proposals to redevelop disused railway land adjacent to the current shopping area, for mixed uses (including residential) should help to facilitate improvements to the centre. Improvements to pedestrian linkages between the Radco store and the rest of the centre have also been identified by the C&TCS as a priority.

Moorland Road District Centre

B5.16 Within Bath, Moorland Road is a sizeable and vibrant District centre. It contains approximately 60 retail units, comprising a variety of small independent convenience shops, a number of comparison goods retailers (including national multiples) and a large food store. It mainly caters for the daily shopping needs of local residents, and serves a wider than average catchment area because of the range of retail facilities and other services available. The low vacancy rate indicates that the centre is trading healthily.

Local and Village Centres

B5.17 Bath and the other towns of Keynsham and Midsomer Norton also contain a number of local neighbourhood centres, which provide for day to day and top-up shopping needs. These centres vary in size and significance according to their location and proximity to other centres.

B5.18 Outside the urban areas there are a number of villages that have concentrations of shops and other services (i.e. a village centre). These function as local service centres for residents of these and surrounding settlements.

B5.19 Of the villages classified as R.1 Rural Settlements under policy SC.1; Bathampton, Batheaston, Paulton, Peasedown St. John, Saltford, Timsbury and Whitchurch have a village centre, as does the R.3 Settlement of Chew Magna. The R.1 Settlements of Bathford, Bishop Sutton, Clutton / Temple Cloud, Farmborough and High Littleton do not have a defined village centre but they do contain local shops which are more dispersed (see Policy S.9).

B5.20 It is important that district, local and village centres continue to fulfil their vital shopping function and local improvements will be encouraged to help retain their vitality and viability.

B5.21 PPG6 states that the Development Plan should identify a range and hierarchy of centres where investment in new retail and other development will be promoted and existing provision enhanced.

B5.22 Based on JRSP policy 38, the C&TCS and local factors outlined above the hierarchy of centres proposed in the Local Plan is set out in policy S.1. The designation of these centres relates to the shopping polices of the Local Plan and their boundaries, which are shown on the Proposals Map, are defined accordingly. The Council is seeking to sustain and enhance the attractiveness of all of these centres.

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NEW RETAIL DEVELOPMENT

B5.23 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.

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Table 1: Projected Retail Floorspace Requirements for B&NES Bath & North East Somerset

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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. Long term expenditure growth trends are uncertain. The retail sector is dynamic and the impact of alternative forms of trading is unclear. Internet shopping is expected to account for an increasing proportion of total expenditure. However, at this time it is not known how great this increase will be nor what impact it will have on future retail floorspace requirements.  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.

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Retail Development Allocations

Convenience Shopping

B5.28 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 Midsomer Norton and Radstock is not proposed as existing provision is regarded as being sufficient to meet the needs of residents of the town and surrounding villages. However, proposals to provide additional convenience shopping may come forward and these will be considered against policies S.2 (within the town centres) and S.4 (outside the town centres).

High Street Comparison Shopping

B5.31 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, thereby helping to enhance the vitality and viability of this part of the City centre.

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 and Radstock town centres may come forward, although no sites are identified in the Plan.

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Retail Development outside existing centres

B5.33 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.  An edge-of-centre site is one that is within easy walking distance of the primary shopping area, which, dependent on topography and other factors, is about 200-300 metres. If an out-of-centre site is proposed it should also be in an area that best meets an identified deficiency in provision.

 B5.35A In applying the sequential approach, the relevant centres in which to search for sites will depend on the nature and scale of the proposed development and the catchment that the development seeks to serve.

Bulky goods provision

B5.36 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 for innovative solutions 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.

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.

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USES APPROPRIATE IN CITY AND TOWN CENTRES

Primary Frontages

B5.41 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.  Museums, libraries and leisure facilities (D1 and D2 uses), and as well as 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 and Radstock 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, A3, D1 and D2 uses may help to make the centre more attractive.

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Bath City centre A3 Uses

B5.47 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, including variations to existing A3 consents, 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 and/or the hours of operation.

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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 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.  Whilst such activity is focussed mainly within Bath City Centre, operators of A3 uses elsewhere in the District may wish to set up tables and chairs outside their premises.  In these areas, the same potential adverse impacts need to be avoided.

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LOCAL CONVENIENCE SHOPPING

Bath City centre

B5.53 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 centres

B5.57 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.  Shops within these centres, such as post offices, can also provide valuable social and community benefits (see also Chapter B3, particularly Policy CF.1).  They The centres 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 investments.

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 achieve this objective, in addition to maintaining local shopping choice.  However, these centres may be the location for other locally important community 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.

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DISPERSED LOCAL SHOPS

B5.62 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 offer valuable social and community benefits (see also Chapter B3, particularly Policy CF.1).  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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