TOWN CENTRES AND RETAIL DEVELOPMENT

Introduction

This chapter sets out the Council’s policies for retail development and the respective roles of the town centre, district and local centres. The policies are framed within national guidance but reflect the particular circumstances of Warrington as a former new town with a planned provision of new district centres augmented by a wide range of local, village and neighbourhood facilities. The policies also address the role of the town centre and the range of out of centre retailing that has occurred in recent years.

Historical context

The gateway to the region from prehistoric times, Warrington had emerged as a mediaeval town, centred first around Church Street and later on Bridge Street and the Old Market area. (Warrington in Camera 1850s - 1950s; Warrington Museum and Art Gallery, 1981)

Warrington’s first charters to hold markets and fairs were granted in the mid-13th century. The market charters were important in that they ensured the town’s dominance over neighbouring settlements and drew visitors from a wide area. The market hall remains a popular attraction today. The town centre developed in its present location from the construction of the first bridge over the River Mersey circa 1285. The cruciform pattern of the major streets formed by the intersection at Market Gate of the new north-south route via the bridge and the east-west route between Liverpool and Manchester was well established by the mid-15th century. During the 17th and 18th centuries these routes became part of a network of long distance coaching routes, upon which Warrington was an important node.

The town centre developed as a commercial, civic and cultural centre for an expanding industrial population during the 19th century. Major public buildings were constructed, e.g. the Parr Hall, library, museum, arts and technical schools. Civic improvements included the widening out of the principal thoroughfares and the erection of fine shopping frontages; the laying out of Bank Park as a setting for the fine Palladian mansion which became the Town Hall in 1872, and Palmyra Square. Physical expansion of town centre uses was, however, effectively boxed in by heavy industry, railways and the river, resulting in a compact centre with a diversity of uses within easy reach of each other and a focus of road and rail transport.

The New Town Era and Town Centre Redevelopment

New Town expansion took place mainly on the periphery of the built up area of Warrington within the framework of the Warrington New Town Draft Master Plan and later the New Town Outline Plan. New district centres were developed at Birchwood and Westbrook. Stockton Heath, an old established suburban centre was reinforced to serve as a district centre for the southern part of the new town. These centres were planned primarily to serve the ‘convenience’ shopping needs of their respective districts, supplementing an established pattern of local and neighbourhood centres located within the former County Borough and the surrounding suburbs and village settlements. The town centre was to remain the primary location for comparative goods shopping thus, in effect, establishing a hierarchy of town, district, and local centres.

The town centre itself underwent major redevelopment and renewal during the 1970s and 1980s, the principal element being the Golden Square shopping centre which occupies the North West Quadrant of the historic Market Gate crossroads and the new market hall in the south east quadrant. These developments coupled with infrastructure works such as new and improved roads, new car parks, bus station, and pedestrianisation of the principal shopping streets, have served to consolidate the town centre’s role in the retail hierarchy.

Out of Centre Retail Development

The move towards large format warehouse-type retail development from the 1980s resulted in a range of out of centre retail locations being established, the most notable being within the Gemini Employment Area. Out of centre retail floorspace (excluding district centres) now equates to that within the primary core. Other out of town locations notably the Trafford Centre and Cheshire Oaks have emerged as competitors for consumer spending within Warrington’s trade draw area.

National Planning Policy Guidance

Since 1996, PPG6 has established a plan-led approach to retail development underpinned by assessment of need and capacity and a sequential approach to site selection. It encourages measures to sustain vital and viable town centres as optimum locations for activities which attract large numbers of trips where maximum benefits can be derived from access by varied modes of travel. It supports the complementary roles of district and local centres which serve community needs. PPG6 has been superseded by Planning Policy Statement 6 ‘Planning for Town Centres’ (PPS6) which will now provide the basis for policy advice on retailing and town centres, however there were no significant changes which would materially impact upon the the adoption of policies within the UDP prepared in accordance with PPG6, pending review through the Local Development Framework process.

Regional Spatial Strategy

RSS for the North West seeks to protect and enhance town centres by encouraging development within or on the edge of existing centres. It also seeks to resist the further development or expansion of free-standing regional and sub-regional shopping centres like the Trafford Centre and Cheshire Oaks.

Local Strategy/Part 1 UDP Policies

Preliminary consultation indicates widespread support for the hierarchical concept, for the retention of the town centre’s role as the focus of shopping and for the complementary roles of district and local centres.

The retail policies within the UDP are aimed at supporting the hierarchy of centres, retaining the town centre’s role as the major centre for shopping with a complementary and diverse range of social, cultural, entertainment and employment based activities.

Taken together, part 1 policies TCD1 to TCD6 set out the basis for channelling investment in retail development and other town centre uses towards Warrington town centre and the other established centres in the borough, and for subjecting proposals to the sequential tests set out in PPG6 and subsequently in PPS6.

The Town Centre

Physical barriers formed by railways and roads continue to provide legible definition of the general town centre area. Railways contain the centre on its southern, western and northern sides, their bridges acting as ‘gateways’. The northern edge is further reinforced by the town centre relief road, Midland Way, whilst the eastern boundary is effectively delineated by the dual carriageway A49 diversion route. Within the general town centre area, a primary retail area can be identified, centred upon Market Gate and comprising the pedestrianised zone within the line of the inner-circulatory road and including the principal shopping frontages. Retail development, particularly of large format type, has taken place beyond the primary shopping area. UDP policies establish criteria for determining edge of centre and out of centre retail proposals in the terms required by national guidance.

The town centre remains a focus of public transport services and has benefited from massive public and private sector investment. Its retail infrastructure is essentially modern and in good or excellent condition, but it is now recognised that further investment must be made to retain the town centre’s share of catchment area consumer spending in the face of strong regional competition and to accommodate the changing space requirements of retailers. The Council is continuing its commitment to support the town centre by further major investment in high-quality public realm enhancements in the primary retail area. Developer interest in the town centre remains strong and the key indices of vitality and viability remain positive.

A retail capacity study¹ (October 2000) identified that consumer spending within Warrington town centre’s primary trade draw area can sustain some 19,000sq metres of additional comparison goods floor-space (excluding retail warehousing) in the period up to 2011. Research has indicated that the best means of ensuring that the town centre retains its market share of growing consumer spending is to consolidate and enhance its primary shopping area, in particular to seek to attract a departmental type store and to diversify the evening economy. UDP policies will ensure that the additional capacity is directed to sustaining the vitality and viability of the town centre’s primary retail area in accordance with the principles set out in PPG6. The major extension of the Golden Square shopping centre, including a Debenhams department store, is in line with this approach.

The UDP identifies the primary retail area as the ‘retail core’, which has the potential to accommodate the forecast increase in retail capacity, as the principal focus for new shopping development. The extent of the defined retail core is a reflection of the situation ‘on the ground’ and its definition is not intended as a policy constraint on its extension into adjacent areas.

The Town Centre Strategy (2003) builds upon the planning framework established in the UDP to promote the vitality and viability of the town centre in accordance with the guidelines set out in PPG6. The strategy aims to ensure the preservation and enhancement of the town centre’s historic and architectural qualities and promote quality design in new development within the UDP policy framework for urban design and conservation. The strategy also addresses issues of regeneration particularly the fringe areas and their relationship to the primary retail area. It seeks to integrate other relevant corporate strategies in a holistic approach to sustaining the town centre’s vitality and viability.

TCD7 DESIGN OF RETAIL DEVELOPMENT PROPOSALS

The design of retail development proposals should reflect local circumstances and promote local distinctiveness in accordance with the principles set out in policy DCS1, and should not simply adopt a stereotyped format.

Policy Derivation:

PPS1, PPS6

Reason and Explanation:

Government policy guidance stresses the need for good quality design in new development and the need to raise standards of quality in the built environment. There has been a tendency for developers of retail schemes to adopt a standard building format regardless of local circumstances, and this approach is not usually compatible with the principles of good design. Retail warehouses and many convenience stores in particular have exhibited this trend. This policy makes it clear that the Council expects a better standard of design tailored to the circumstances of the particular site in future schemes.

Area of coverage:

This policy applies to all retail development throughout the borough.

Other Related Policies:

DCS4, TCD2, TCD3, TCD4, TCD5

TCD8 PRINCIPAL SHOPPING FRONTAGES IN THE RETAIL CORE

The Council will reserve ground floor premises within the principal shopping frontages of the town centre retail core, as shown on the Proposals Map, primarily for shopping uses under Class A1 of the Use Classes Order. Proposals for the change of use of retail premises to other, non-retail uses within these frontages will be considered against the following criteria:

1. their particular effect on, or contribution to the character, diversity and vitality of the centre;

2. the need to prevent the introduction of excessive concentrations of non-retail uses; and

3. the need for the frontage of the premises to be treated in a fashion appropriate to a shopping centre.

TCD9 OTHER TOWN CENTRE SHOPPING FRONTAGES

Proposals for changes of use from retail to non-retail uses within other town centre shopping frontages will be permitted provided that:

1. the character, diversity and vitality of the area as a shopping frontage is not harmed; and

2. the frontage of the premises concerned is treated in a fashion appropriate to a shopping area.

Policy Derivation:

PPS6

Reason and Explanation:

1. The frontage of shops plays an important part in the perception of the town centre as a thriving and attractive shopping area. On the principal shopping streets it is particularly important to ensure a high degree of continuity of retail display windows and avoid the fragmentation caused by the introduction of other uses, particularly restaurants and ‘fast food’ outlets, and banks, building societies, etc.

2. In applying this policy the Council will use the following guidelines: -

(i) the proportion of the total number of outlets within any particular street frontage of outlets in non-retail use should not exceed 10-20%

(ii) there should not normally be more than two adjacent non-retail frontages

3. The figures presented are for guidance only and will be interpreted flexibly in individual cases where the qualitative criteria will be the determining considerations.

Area of coverage:

The Warrington town centre retail core and the principal shopping frontages within it are defined on the Proposals Map.

Other Related Policies:

TCD1, BH1, BH2, BH3, BH5, BH8

TCD10 NON-RETAIL USES WITHIN OTHER RETAIL CENTRES

Within the other centres in the retail hierarchy outside of Warrington Town Centre, planning permission will be granted for changes of use from retail to non-retail uses provided that no detriment is caused to the character, diversity and vitality of the centre in terms of its role as an attractive and viable shopping centre serving the needs of the public.

In assessing the effect of particular proposals, the Council will take into account:

1. the number and location of other non-retail uses in the centre, including outstanding planning permissions for such uses; and

2. the number and duration of vacancies among units in the centre

Policy Derivation:

PPS6

Reasons and Explanation:

To avoid the fragmentation, loss of identity and loss of attractiveness of the shopping centres. Appropriate non-retail uses, subject to other relevant plan policies, would normally include financial and professional services, and the sale of food and drink.

Area of coverage:

As defined on the Proposals Map.

Other Related Policies:

TCD1, TCD11, BH1, BH2, BH3, BH5, BH8

TCD11 PROTECTION OF LOCAL SERVICES

Proposals for the change of use of premises comprising convenience stores, post offices, or pharmacies in villages and other locations convenient to local communities will only be permitted where:-

• there is evidence that reasonable efforts have been made to sell or let the premises for their existing use

• in the case of convenience stores, there are shops of similar nature available in the locality to serve the needs of local residents.

Policy Derivation:

PPG6, PPG13

Reason and Explanation:

With an increasing emphasis being placed on the availability of convenient local shops and services within easy walking distance of residential communities, including villages, this policy is an important aspect of the Council’s commitment to develop and maintain sustainable communities.

Area of coverage:

This policy applies throughout the borough.

Other Related Policies:

LUT2, TCD3, TCD10, SOC1, GRN4, GRN5

TCD12 FACTORY SALES

Proposals for the direct sale to the public or display of goods from factory or business premises will be approved provided that:

1. the sale or display of goods is limited to goods produced, assembled or manufactured on the premises;

2. the floorspace devoted to sale or display does not exceed some 20% of the total floorspace, to a maximum of about 1000 sq.m;

3. the sale or display takes place within the building;

4. provision for car parking is made in accordance with the Council’s approved standards for retail floorspace;

5. no detriment results to the appearance of the site or building, by way of loss of landscape or trees to car parking, or excessive signage; and

6. no unduly adverse environmental effects arise in the locality.

Policy Derivation:

PPG4, PPG6

Reason and Explanation:

The direct sale of goods from factory premises is an increasingly common practice which can offer benefits to the consumer and also to the viability of small businesses. However, not all premises or sites are suitable to accommodate this additional element of use or the increased traffic that can result. The policy sets down the criteria that will be applied to such proposals in order to prevent harm to amenity, and to avoid the establishment of a full retail use in contravention of the general policies and strategy governing the location of retail development.

Area of coverage:

Borough-wide

Other Related Policies:

GRN2, GRN22, LUT20, TCD5

TCD13 AMUSEMENT CENTRES

Changes of use to amusement centres will not be permitted in principal shopping streets, close to housing, schools, churches, hospitals or hotels, nor in conservation areas, if they would adversely affect visual amenity, or cause noise and disturbance.

Policy Derivation:

PPG6

Reason and Explanation:

1. Amusement centres need careful control because of their potential impact in terms of noise and disturbance, and appearance. They can also generate significant vehicular and pedestrian movements.

2. The policy is intended to relate to activities such as bingo halls and clubs, prize bingo centres, amusement-with-prizes machines, and amusement-only machines, and applies principally in the town centre where most demand for such activities arises. However, the policy is also applicable to proposals that arise elsewhere.

3. The Council also acts as Licensing Authority, a separate function which addresses non land-use issues outside the scope of the development plan.

Area of coverage:

Borough-wide

Other Related Policies:

HOU6, REP10, TCD8, TCD9, TCD10, BH1, BH3, BH5, BH8

TCD14 SHOP FRONTS, FASCIAS AND HANGING SIGNS

The Council will not approve proposals for the replacement or alteration or illumination of shop fronts and fascias, or the addition of hanging signs, which:-

1. cause the loss of or obscure features of visual merit; or

2. are alien to the character of the building’s design or fabric; or

3. are out of scale and harmony with the existing street scene; or

4. are in colours or materials inappropriate to their context; or

5. are out of scale and proportion with the building or insensitively positioned; or

6. have an adverse effect on visual amenity or public safety in the immediate area; or

7. do not preserve or enhance the character and amenity of a conservation area; or

8. in the case of a listed building, do not meet the requirements of policy BH2.

Illuminated projecting signs will only be permitted where they would not damage the character of the building concerned, and are in scale with the building, sited at fascia level, limited to one per property frontage, and subject to agreed levels and times of illumination.

Standard signs and corporate identities should not be imposed on buildings regardless of their character, and will only be acceptable where their size and proportion meets the basic criterion of fitting the fascia.

TCD15 EXTERNAL CASHPOINTS

Proposals for external cash points which require planning permission because they materially affect the external appearance of a building, or project beyond the face of a building, will be approved provided they have no adverse effect on public safety or the character of the building. If the proposals relate to a listed building, the requirements of policy BH2 will apply in every case.

TCD16 AWNINGS, BLINDS AND CANOPIES

Proposals for the erection of awnings, blinds, and canopies on shop fronts and other commercial premises will be allowed provided that: -

1. they do not detract from the character of the building by reason of scale, design, colour or materials, or their positioning;

2. they do not obscure or damage important architectural features;

3. they do not have an adverse effect on visual amenity or public safety in the immediate area; and

4. they comply with policies relating to listed buildings and conservation areas where relevant.

Supplementary Planning Guidance:

Shopfronts & Advertisements

Policy Derivation:

PPG19

Reason and Explanation:

The Council wishes to encourage imaginative design of shops and signs in keeping with the character of existing buildings and the overall street scene, whilst having due regard to public safety considerations such as the potential for visual distraction of motorists and the safety of pedestrians and cyclists. These policies have been drawn up to guide applicants when preparing submissions for planning approval.

Area of coverage:

Borough-wide

Other Related Policies:

BH2, BH3, BH5, BH8, BH11, DCS1

TCD17 FOOD AND DRINK

Subject to the provisions of policy TCD8, TCD9 and TCD10 relating to non-retail uses within shopping centres, proposals for food and drink uses in the built-up areas of the borough will be allowed provided that:

1. there is no detriment to the amenity of nearby residents by way of noise, smell or disturbance; and

2. the safe movement and free flow of traffic, or the safe use of the road by others, is not adversely affected.

Planning permission for A3, A4 or A5 uses granted under this policy will be subject to conditions controlling opening hours, and fume extraction, where consent would otherwise be withheld by reason of harm to residential amenity.

Policy Derivation:

PPS6

Reason and Explanation:

Classes A3, A4 and A5 of the Use Classes Order 1987 as amended are concerned with Food and Drink uses and include restaurants and cafes, drinking establishments and hot food takeaways. In general, the Council considers all proposals falling within classes A3, A4 and A5 in terms of their potential impact on residential amenity and traffic, although it is recognised that such uses are less likely to have adverse effects in the town centre and district centres than at a more local level. This policy sets out the criteria against which A3, A4 and A5 uses will be assessed and the varying degrees of control to be exercised by the Council according to local circumstances

Area of coverage:

Within the built-up areas of the borough.

Other Related Policies:

TCD8, TCD9, TCD10, BH2, BH3, BH5, BH8, BH11

TCD18 RURAL SHOPPING FACILITIES

The Council will approve proposals for the re-use of buildings for farm shops, or other local shopping facilities meeting day-to-day needs, ancillary to established land uses in rural areas provided that the proposal :

• is small scale (not exceeding 250 sq.m gross)

• it can be demonstrated that there will be no adverse impact on nearby village shops

• in the case of a farm shop, the goods sold are limited to those produced on the farm or locally

• it satisfies the general criteria for the re-use of buildings in the green belt set out in policy GRN6

Policy Derivation:

PPS6, PPS7

Reason and Explanation:

PPS6 and PPS7 stress the need to sustain economic activity in rural areas and recognise that shops ancillary to other uses can serve a vital function by helping to meet demand for fresh produce and providing new sources of jobs and services. The rural areas of the borough are all designated as green belt, which means that it will not normally be appropriate to erect new buildings for shops outside inset village boundaries. However, the re-use of buildings will be appropriate subject to the criteria listed in this policy and policy GRN6.

Area of coverage:

The rural areas of the borough lying outside the built-up areas of the town, inset villages and green belt villages as defined on the Proposals Map.

Other Related Policies:

TCD5, TCD11, EMP9, GRN1, GRN6

PERFORMANCE INDICATORS

1. Changes in the number of outlets and amount of convenience and comparison shopping in the town centre and other centres

2. Proportion of street-level properties in town centre’s primary and secondary retail areas that are vacant.

3. Number and range of other commercial, cultural and entertainment facilities in the town centre.

4. Numbers and overall floorspace of retail and retail warehouse units outside town, district and local centres for which planning permissions have been granted and where schemes have been implemented.

5. Numbers of retail multiple traders and of independent shops in the town centre.

¹ Warrington UDP Retail Study, October 2000.

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