7.1 The role of the town centre in the social and economic life of a town is recognised and protected through Government Guidance in PPG6 - "Town Centres and Retail Development". This guidance emphasises the need for Local Plans to make provision for new forms of retail development through policies which will ensure that the essential vitality and viability of town centres is not undermined.
7.2 The importance of town centres depends upon much more than its retail function but the strength of this sector is often what determines the extent of provision in other sectors such as entertainment, public transport and financial services. Policies and proposals need to ensure that the town centres retain their competitive edge against provision elsewhere and against improvements to other centres outside the Borough whose particular characteristics attract trade from within the Borough.
7.3 Policies S15 and S16 in the Humberside Structure Plan and Alteration Not provide a basis for this framework, identifying the potential of the Borough's four main towns for further development and directing development towards these centres in preference to out of centre locations.
7.4 Maintaining the role of the town centres cannot be achieved solely through the expansion of shopping floorspace but requires a more co-ordinated approach targeting those matters which will have the greatest effect on the attraction of town centres. This may involve environmental improvement, traffic calming and increased accessibility. PPGl3 - "Transport", states the Government's opinion that town centres should act as a focal point and that policies should direct development towards these areas to minimise the need for travel and therefore reduce pollution from transport. Encouraging a diverse range of land uses and increasing population levels within town centre areas can also help to extend the use of central areas in the evenings as well as during the day.
7.5 Shopping policies need to recognise and be responsive to changing lifestyles and the increasing role of shopping as a leisure activity as well as its traditional role as a necessity. Retailing itself is a dynamic industry affected greatly by the buoyancy of the local economy. As such it is impossible to anticipate all the opportunities which will be presented for retail development during the plan period but the market will only respond where Local Plan policies provide the flexibility for new initiatives to emerge.
7.6 Outside the main towns, local retail provision is clearly needed to serve rural communities. The operation of these uses is often marginal and subject to intense pressure for conversion to alternative uses such as residential. Recognising this, housing allocations have taken account of the availability of services and the need to support their retention. Efforts to secure tourist related development and to diversify the rural economy will also provide added impetus for the protection of existing services and may encourage the establishment of new enterprises such as farm shops which can provide an important supply of fresh produce to isolated rural markets.
7.7 Guiding this positive approach are the following objectives:
OBJECTIVES
1. TO SUPPORT THE ROLE OF THE MAIN TOWN CENTRES AS THE FOCAL POINT FOR SHOPPING, ENTERTAINMENT, EMPLOYMENT AND CULTURAL ACTIVITIES WITHIN THE BOROUGH.
2. TO ENSURE THAT ALL SECTIONS OF THE COMMUNITY HAVE REASONABLE ACCESS TO A WIDE RANGE OF SHOPPING PROVISION.
3. TO SUSTAIN THE VITALITY OF RURAL COMMUNITIES.
POLICY S1 - DEFINED SHOPPING AREAS
PROPOSALS FOR NEW RETAIL DEVELOPMENT WITHIN THE DEFINED SHOPPING AREAS OF BRIDLINGTON, POCKLINGTON, DRIFFIELD AND MARKET WEIGHTON WILL BE PERMITTED WHERE:
1. THEY ARE OF A SCALE AND NATURE APPROPRIATE TO THE CHARACTER AND ROLE OF THE CENTRE; AND
2. SATISFACTORY ACCESS AND SERVICING ARRANGEMENTS CAN BE ACHIEVED.
Justification
7.8 Town centres provide the central location where the largest concentrations of people make use of facilities and services. They represent the most interesting and diverse part of the built environment and are supported by infrastructure provision intended to cater for a wide variety of land uses. It is important that this role continues so that the combination of land uses is made more attractive for local residents, visitors and shoppers. Continuing confidence is essential to attract new investment and to encourage this the central areas of the main town centres have been defined within which investment can be concentrated. In defining the central areas, the Council has had regard to the overall capacity for growth within the centre and has identified the key opportunity sites where development would provide the greatest benefit to the central area.
7.9 In Bridlington the local population supports a number of local shopping centres which primarily meet day to day shopping requirements but also provide other specialist services such as antique sales in the Old Town. These centres have a lesser role than the main town centre but make an important contribution to overall provision. Policy guidance on the type and scale of shopping provision appropriate to these local centres is set out in the Bridlington Chapter.
POLICY S2 - OUT OF CENTRE RETAIL DEVELOPMENT
WHERE SITES WITHIN OR ADJOINING THE DEFINEDTOWN CENTRES OF BRIDLINGTON, DRIFFIELD, MARKET WEIGHTON AND POCKLINGTON ARE NOT PRACTICABLE, PROPOSALS FOR LARGE SCALE OUT OF CENTRE RETAIL DEVELOPMENT WILL BE PERMITTED WHERE, IN TERMS OF THEIR SITING, DESIGN, OPERATIONAL CHARACTERISTICS AND CUMULATNE IMPACT WITH OTHER EXISTING OR PROPOSED DEVELOPMENT:
1. THEY WILL NOT UNDERMINE THE VITALIN OR VIABILITY OF AN EXISTING TOWN CENTRE AS A WHOLE; AND
2. THEY WILL NOT CONFLICT WITH NEIGHBOURING LAND USES OR OTHERWISE HARM THE CHARACTER OF THE SURROUNDING AREA; AND
3. THEY SATISFY POLICIES TM4 AND TM6; AND
4. THEY WOULD NOT RESULT IN A MATERIAL LOSS OF LAND REOUIRED FOR OTHER PURPOSES.
Justification
7.10 New retail development can bring forward significant benefits to the community, particularly through its catalytic role in attracting investment. Where such benefits can be achieved within the town centre, they will have the greatest impact through providing support for other town centre functions.
7.11 Locations elsewhere might also bring forward benefits but these have to be balanced against the negative effects of development perhaps felt through the diversion of trade away from the central area and the consequent loss of support for other town centre uses and support services such as public transport. The aim of the Policy is to provide opportunities for new forms of retail development which will complement rather than duplicate provision made within existing centres, What constitutes "large scale" will depend upon the nature of the goods to be sold and upon the size and role of the existing centre. Particular caution will be needed where proposals are entirely speculative. Where necessary, the Borough Council will condition any planning permission to ensure that unit sizes and goods to be sold will not harm the role of the town centre.
7.12 In assessing the effects of proposals on the vitality and viability of existing centres the Council will need to be satisfied that the quality, character and attractiveness of the centre will not be harmed by a reduction in the range of services available or increased vacancy levels. The attraction of shopping centres relies heavily on their physical appearance which requires investment confidence to maintain the built fabric and to sustain provision. Where this confidence could be harmed in the long term, this will be a major consideration and proposals will only be acceptable where developers make adequate provision to safeguard the role of the town centre.
7.13 A major objective of the Plan is to reduce the need for travel by car and to encourage more efficient methods of transport. Certain forms of retail development are aimed specifically at shoppers with use of a car primarily because of the nature of goods which are sold, i.e. bulky items such as DIY products. PPG6 - "Town Centres and Retail Development" and PPGl3 - "Transport", advise that the optimum location for such developments is on the edge of the town centre where they will reduce the need for unnecessary car joumeys into the central area , reducing congestion and parking difficulties but where they are still readily accessible by other forms of transport and provide opportunitie5 for joint shopping trips.
7.14 Where this cannot be achieved it will be essential that proposals are located close to existing transport interchanges or include specific provision for alternative methods of transport through stopping-off points or by a specific dedicated service.
PROPOSALS FOR RETAIL FACILITIES DESIGNED TO SERVE A PURELY LOCAL FUNCTION WILL BE PERMITTED WITHIN RESIDENTIAL AREAS WHERE:
THEY WOULD NOT BE DETRIMENTAL TO HIGHWAY SAFETY; AND
2. THEY WOULD NOT HARM THE AMENITY OF LOCAL RESIDENTS.
Justification
7.15 Small scale, locally based facilities have a valuable role to play in meeting the needs of the less mobile sections of the community. PPGl3 - "Transport", acknowledges that such development can contribute to reduced traffic congestion generally by meeting the day to day needs of local residents. In rural areas the importance of such facilities is enhanced. It is important however that such uses are compatible with the character of the surrounding area and will not harm the amenity of residential areas or affect the safety and convenience of road users.
POLICY S4 - RETAIL DEVELOPMENT IN THE OPEN COUNTRYSIDE
PROPOSALS FOR RETAIL DEVELOPMENT IN THE OPEN COUNTRYSIDE WILL BE PERMITTED ONLY WHERE:
1. THEY ARE OF A TYPE AND CHARACTER REOUIRING A RURAL LOCATION; AND
2. THEY ARE SITUATED IN AN EXISTING BUILDING OR ON SITES ADJOINING OR IN CLOSE PROXIMITY TO SETTLEMENTS AND WILL NOT BE OBTRUSIVE IN A COUNTRYSIDE SETTING; AND
3. THEYARE ACCEPTABLE IN TERMS OF PLAN POLICIES FOR THE PROTECTION OF THE OPEN
COUNTRYSIDE, THE WATER ENVIRONMENT AND NATURE CONSERVATION; AND
4. SATISFACTORY ACCESS AND PARKING CAN BE ACHIEVED FROM THE MAIN ROAD NETWORK.
Justification
7.16 Certain forms of retail development such as farm shops, nurseries and garden centres are appropriately located in rural locations where they can serve a wide catchment area and provide diversity in the rural economy. Farm shops in particular can provide a valued source of fresh produce to rural communities which might not otherwise be capable of supporting a traditional retail outlet. These benefits need to be assessed against the potential damage which could result to the character of the countryside from permitting sporadic and isolated development which attracts significant volumes of traffic into rural locations. Proposals which minimise these potentially harmful effects by being located close to existing development where they can also help to support local services will be considered favourably, as an exception to normal restraint policies. It is essential however, in the interest of protecting the character of the countryside, that these facilities do not diversity to the extent that they have little relevance to a rural location.
POLICY S5 - RETAIL DEVELOPMENT IN DEFINED EMPLOYMENT AREAS
WITH THE EXCEPTION OF THE BESSINGBY WAY EMPLOYMENT AREA, THE RETAIL USE OF DEFINED EMPLOYMENT AREAS WILL BE RESTRICTED TO THAT WHICH IS ANCILLARY TO MANUFACTURING PROCESSES CARRIED OUT ON THE SITE UP TO A LIMIT OF 20% OF THE TOTAL INTERNAL FLOOR AREA OF THE UNIT OR S00 SOUARE METRES, WHICHEVER IS THE SMALLER.
Justification
7.17 The Borough has a substantial supply of employment land serving the main population centres and this supply is supplemented by new allocations made within this Plan. However, the vast majority of the defined employment areas are situated on former airfield sites in the open countryside. away from residential areas where there are few constraints to the type of process which can be carried out. Where vacant development land exists it is well assimilated into its rural setting and does not have the appearance of vacant land as would sites within the urban areas.
7.18 There is therefore no benefit in accommodating retail development other than as ancillary to the primary industrial use. Policies S1 and S2 and specific land allocations made in Part II of the Plan provide sufficient flexibility for new retail development to proceed in a manner which will help to support rather than detract from other town centre services. Part of this flexibility is provided by the Bessingby Industrial Estate which is situated within the built-up area of Bridlington and is readily accessible by foot, cycle, bus and car from a large part of the town. Retail development is now established in this area and is expanding the range of retail facilities available to the town rather than competing with the town centre.
WITHIN THE DEFINED SHOPPING AREAS OF DRIFFIELD AND MARKET WEIGHTON AND THE DEFINED PRIME SHOPPING AREA OF BRIDLINGTON, PROPOSALS FOR THE CHANGE OF USE FROM CLASS A1 (SHOPS) OF THE TOWN AND COUNTRY PLANNING (USE CLASSES) ORDER TO OTHER USES AT GROUND FLOOR LEVEL WILL ONLY BE PERMITTED WHERE THEIR LOSS WOULD NOT HARM THE FUNCTION OF THE IMMEDIATE AREA AS A SHOPPING CENTRE. IN POCKLINGTON TOWN CENTRE THIS POLICY WILLAPPLY ONLYTO THAT PART OFTHE CENTRE OUTSIDE THE DEFINED PRIME SHOPPING FRONTAGE WHERE POLICY POCK9 WILL APPLY.
Justification
7.19 It is important that in allowing the main shopping areas to respond to new development opportunities, a balance is struck which allows the centres to continue to act as a focal point for shopping, entertainment, employment and cultural activities. The shopping function is perhaps the most vulnerable of these activities and is fundamental to the image of the centre as a whole. Non-retail uses are an intrinsic part of the success of a shopping centre but there is a limit to an acceptable level of provision. The circumstances will be different in each case: there may be more opportunities in Driffield where the central area is extended and there is no recognisable prime shopping frontage. It is therefore essential that the Plan enables such an assessment to be made at the time of each proposal. Development rights under the Town and Country Planning (Use Classes Order) 1987 remain unaffected by this Policy.
7.20 In Pocklington town centre, there is an area of prime retail frontage on Market Place where in recent years the increase in non-retail units has threatened its function as a shopping area. This area is important to the vitality of the town and no further permissions will be granted for non-retail uses other than within the terms of Policy POCK9.
PROPOSALS FOR CAFES, RESTAURANTS, PUBLIC HOUSES AND HOT FOOD TAIG:AWAY PREMISES WILL BE PERMITTED WITHIN THE DEFINED DEVELOPMENT LIMITS OF SETTLEMENTS WHERE:
1. THEY DO NOT CONFLICT WITH POLICY S6; AND
2. THEY WILL NOT HARM THE AMENITY OF RESIDENTWL OCCUPIERS BY REASON OF TRAFFIC, NOISE AND ODOURS; AND
3. THEY WILL NOT BE DETRIMENTAL TO HIGHWAY SAFETY.
Justification
7.21 Partly as a consequence of the efforts to expand the cultural, leisure and entertainment functions of town centres, particularly in Bridlington, demand for these uses can be high and can threaten the balance of uses within a shopping centre. It is therefore important that Policy S6 is used as a start point for considering the effects on the shopping role of the centre. Where this proves acceptable the particular characteristics of these uses need consideration, the intention being to limit the risk of future complaints on the basis of late night disturbance, cooking odours and litter problems. In Bridlington itself the proliferation of such uses has a serious effect on the amenity of shoppers within the centre and further permissions will not be granted within the defined area detailed in Part II of this Plan.
7.22 Planning permission is not required to change between the uses stated in Policy S7. It is therefore important when considering proposals, for the Borough Council to consider the implications for the local area should a future change occur. Where there are sound planning reasons, but where it would be unreasonable to refuse consent outright, planning permission may be limited by the use of conditions to a particular operation.
POLICY S8 - TOURISM BASED RETAILING
PROPOSALS FOR NEW RETAIL FLOORSPACE ASSOCIATED WITH TOURISM/LEISURE USES WILL ONLY BE PERMITTED WHERE THEY ARE OF A TYPE, CHARACTER AND SCALE WHICH IS ANCILLARY TO THE MAIN USE, AND PLANNING CONDITIONS/LEGAL AGREEMENTS WILL BE USED WHERE APPROPRIATE TO RESTRICT FLOORSPACE AND THE RANGE OF GOODS SOLD.
Justification
7.23 For commercial reasons there is a tendency for tourism or leisure development to include an element of retail floorspace. The Borough Council recognises that retailing itself has a major part to play in attracting visitors and maximising visitor spending. This recognition is manifest in recent efforts to enhance the shopping environment within the main towns by physical improvements and the approval of new shopping floorspace. In Bridlington considerable effort has been expended to link the traditional tourist areas on the seafront with the main shopping centre through pedestrianisation.
7.24 Policy S2 will allow the main towns to attract other forms of retailing where there is a genuine need for an out of centre location. Policy S8 allows the flexibility to permit limited retail floorspace to support tourism ventures, where it is genuinely incidental to the principal use. The level of retail floorspace and the type of goods sold will therefore be subject to stringent control to protect the tourism character of the site and to safeguard the role of the town centres as the principal focus for new shopping provision.