Vitality and Viability of Existing Centres

STATEMENT 10

"To enhance the vitality and viability of Horsham town centre and the centres of the smaller towns and villages in the District."

Background

3.143 Core Strategy Policy CP17 - Vitality and Viability of Existing Centres sets out the Council's strategy for the town and village centres within the District. The policy recognises that the centres perform a valuable role in meeting the needs of local communities and visitors and states that their role as a focus for activities is fundamental to the achievement of sustainable development.

3.144 Similarly, Planning Policy Statement 6 (PPS6) - Planning for Town Centres - sets out the Government's key objectives for town and village centres and promotes their vitality and viability by focusing development for town centre uses in the existing centres. The Statement requires Local Planning Authorities to identify, not only primary and, if applicable, secondary retail frontages, but also the primary shopping area(s) and a town or village centre boundary for each centre within their area.

3.145 Core Strategy Policy CP14 - Protection and Enhancement of Community Facilities and Services states that it is important to protect community facilities and services that play an important role in the social infrastructure of the area. It goes on to say that, for proposals for alternative use of sites and premises, it will be necessary to demonstrate that continued use as a community facility or service is no longer feasible. Certain community facilities and services may fall within the A-class use of the Use Classes Order 2005 and Policy CP14 is therefore relevant to this section of the General Development Control Policies document.

3.146 The Development Control policies contained within this document seek to build on the key objectives and principles of Core Strategy Policies CP14, CP17 and PPS6. The policies focus on retail frontages, primary shopping areas and town and village centre boundaries as defined in the policy statement and seek to guide new development to areas that are within or well connected to the existing centres. This approach will secure the vitality and viability of all existing centres in the District and will encourage a wide range of services in a good environment, accessible to all. The policies provide flexibility for new retail development whilst allowing for stringent control of the change of use of units within the defined centres. However, this policy approach also recognises the benefits the other A-class uses can bring to the town and village centres should an A1-use (Shops) no longer be a viable option. Consequently, the policy allows for flexibility between change of use between the different A-class uses outside the Defined Retail Frontages. This approach will assist in maintaining the vitality and viability of a wider area and will contribute to enhancing the health of the main shopping area as a whole as other A-class uses are either traditional town centre uses or closely associated with our modern town and village centres. The defined retail frontages, main shopping areas and town and village centre boundaries referred to in the policies below are identified on the Proposals Map which accompanies this document.

3.147 The policies particularly support the following sustainability objective:

  • To maintain and enhance the vitality and viability of Horsham Town and village centres.

3.148 The policies set out below should be read in conjunction with Core Strategy Policies CP14: Protection and Enhancement of Community Facilities and Services and CP17: Vitality and Viability of Existing Centres.

POLICY DC 34

NEW RETAIL DEVELOPMENT WITHIN THE DEFINED TOWN AND VILLAGE CENTRES

Town and Village Centre Boundaries, Primary Shopping Areas and Retail Frontages have been identified in Horsham Town and in the District's larger centres (Billingshurst, Henfield, Pulborough, Southwater, Steyning and Storrington).

Proposed retail development will be permitted within the defined Town and Village Centres provided that:

  1. the proposal does not exceed 2,500 square metres gross (proposals exceeding 2,500 square metres gross will be considered against Policy DC 35, criteria a,c,d,e and f);
  2. it relates and connects well to the defined Frontage(s) and Primary Shopping Area(s) of the centre;
  3. the proposal will complement the vitality and viability of the centre; its function and role at the local level and its position in the wider network of centres; and,
  4. the proposal will improve the shopping range, quality and function of the Primary Shopping Area and the retail centre as a whole.

Proposals within the town and village boundaries must be accompanied by a Green Travel Plan.

View interactive maps of the Town and Village Centre Boundaries, Main Shopping Areas and Retail Frontages (Broadband connection recommended)

3.149 The Council considers that it is fundamental that, within the defined Town and Village Centres and the Retail Frontages within them, retail needs are met and that the vitality and viability of the centres is not undermined. On this basis, Policy DC34: New Retail Development within the Defined Town and Village Centres seeks to maintain and enhance the vitality and viability of the centres by permitting appropriate new retail proposals whilst resisting any proposals which may potentially undermine their vitality and viability, either because of their nature, size or their location. The policy also seeks to ensure that wherever possible, proposals improve the shopping range, quality and function of the shopping area.

POLICY DC 35

NEW RETAIL AND LEISURE DEVELOPMENT OUTSIDE THE DEFINED TOWN AND VILLAGE CENTRES

Proposals for new retail development, including retail warehouses, superstores, extensions to existing retail units, recreation, leisure and entertainment uses outside the defined town and village centres will be permitted only when the relevant criteria in PPS6 are met, particularly when:

  1. a clear qualitative and primarily quantitative need exists and can be demonstrated;
  2. the sequential approach to site selection has been applied, including application of flexible formats to enable the possibility of locating closer to the established centre;
  3. the proposed development will be accessible by a variety of modes of transport, walking and cycling. Proposals must be accompanied by an agreed Green Travel Plan;
  4. the proposal will not significantly undermine the vitality and viability of the nearest centre, its function and role at the local level and its position in the wider network of centres;
  5. adequate parking arrangements can be provided in connection with the proposal; and,
  6. the range of goods and products sold at the proposed retail development is appropriate for its location and will not undermine the vitality and viability of the District's centres.

In order to meet these objectives if planning permission is granted for retail development in an edge-of-centre or out-of-centre location, the range sold at the development may be restricted either through planning conditions or legal agreement.

Proposals for retail areas attached to petrol filling stations and garages (whether within or outside the defined town and village centres) will be permitted only where they would not affect seriously the vitality and viability of existing local shopping facilities. Where appropriate, permission will be subject to a condition or legal agreement restricting the amount of retail sales area which is dedicated to the sale of non-garage related goods.

Extensions to existing village and neighbourhood shops outside any defined Town and Village Centre will be assessed against Policy DC 37.

3.150 For the purposes of this policy, recreation, leisure and entertainment include cinemas, theatres, restaurants, public houses, bars, cafes and nightclubs. Applications for other sports/recreation and community facilities will be assessed against Core Strategy Policy CP14: Protection and Enhancement of Community Services and Facilities and Policy DC21: Protection of Existing Open Space, Sport and Recreation Facilities.

3.151 Further guidance on the sequential approach and the application of flexible formats is available in Planning Policy Statement 6 - Planning for Town Centres.

3.152 The Council considers that an integral part of protecting the vitality and viability of the District's retail centres, and in accordance with all retail planning policy and guidance, is rigidly controlling the proposals for retail development outside the Town and Village Centres as defined on the Proposals Map. This approach supports the key objectives and principles of both the Core Strategy Policy CP17 and Government guidance contained in PPS6.

3.153 Proposals for new retail development that are larger than 1000 sqm gross must be accompanied by an agreed Green Travel Plan which demonstrates how travel in ways other than in private cars will be encouraged.

POLICY DC 36

CHANGE OF USE WITHIN DEFINED TOWN AND VILLAGE CENTRES

Proposals for change of use from A1 (Shops) to other A-class uses at ground floor level within the defined Town and Village Centre Boundaries will be permitted provided that:

  1. The proposal will not result in more than 2 out of 10 units within the Primary Retail Frontages or 4 out of 10 units within the Secondary Retail Frontages being in non-retail use (or the proportional equivalent where there are less than 10 adjoining units in a defined retail frontage);
  2. the proposal will not result in more than 2 permitted non-retail uses operating adjacent to each other in the defined Primary Retail Frontages or result in more than 3 permitted non-retail uses operating adjacent to each other within the defined Secondary Retail Frontages;
  3. the proposal will not result in the loss of local amenity particularly in terms of noise, litter, smell, parking and traffic creation and trading hours; and,
  4. for applications where an A3, A4 or A5 use is proposed, the application is accompanied by a statement giving full details of means of control of emission of fumes, storage and disposal of refuse and means of insulation.

Proposals for the change of use from units with a permitted A-class use to residential at ground floor level within the defined Retail Frontages will be considered against criteria a, b and c above and will not be permitted unless:

  1. In terms of change of use of an A1 unit to residential, the Council is satisfied that the retail unit is no longer viable as a consequence of the unit having been marketed at a reasonable price for 18 months for units, within a defined Primary Frontage, and 12 months for units in a defined Secondary Frontage elsewhere and within the defined Town or Village Boundary, prior to the application submission date.
  2. In terms of change of use of a unit in another A class use other than A1 to residential, the Council is satisfied that the unit has been marketed at a reasonable price for 18 months for units within a defined Primary or Secondary Frontage or 12 months elsewhere within the defined Town or Village Centre Boundary, prior to the application submission date.

3.154 The Council considers the stringent control of proposals for change of use from A1 (Shops) to either A2 (Financial and Professional Services), A3 (Restaurants and Cafes), A4 (Drinking Establishments), A5 (Hot Food Takeaway) or residential is essential both within the Primary and Secondary Defined Retail Frontages (as shown on the Proposals Map). It is considered that the over provision or the dominance of service uses or residential development within the Defined Retail Frontages will have a detrimental impact on the vitality and viability of the Town and Village Centres.  As a consequence this policy seeks to control proposals for change of use with the objective of protecting the existing vitality and viability of the District's Town and Village Centres.  At the same time the Council acknowledges the valuable role service uses can play in contributing to a retail centre’s vitality and viability.  Consequently, this policy recognises the positive contribution service uses can have on the District’s retail centres if appropriately controlled and located.  In addition, Policy DC36: Change of Use within Defined Town and Village Centres seeks to ensure that any proposals for change of use from A1 (Shops) to alternative uses do not result in the loss of local amenity and accord with the requirements of the Licensing Act 2003.

3.155 It is considered that proposals for change of use from A1 (Shops) to residential at ground floor level should be strictly controlled as residential use at ground floor level represents a “dead” frontage and on this basis this policy sets out a vigorous criteria against which to assess proposals.

POLICY DC 37

NEIGHBOURHOOD AND VILLAGE SHOPS

Proposals for small scale retail development or extensions to existing village shops and retail units in the neighbourhood centres will be permitted provided that:

  1. The proposal will not significantly undermine the vitality and viability of the nearest defined Retail Frontage;
  2. the proposed retail development does not exceed 200 sqm gross (if the proposal does exceed 200 sqm gross the proposal will be considered against Policy DC 35); and,
  3. the proposal will not result in the loss of local amenity particularly in terms of noise, litter, smell, parking and traffic creation and trading hours.

Proposals for change of use will only be permitted provided that the proposal satisfies criterion c above and the relevant criterion outlined below:

  1. In terms of change of use of an A1 (Shops) unit to residential, the Council is satisfied the retail unit is no longer viable as a consequence of the unit having been marketed at a reasonable price for 18 months prior to the application submission.
  2. In terms of change of use of an A1 (Shops) unit to an alternative A-class use, the Council is satisfied the retail unit is no longer viable as a consequence of the unit having been marketed at a reasonable price for 12 months prior to the application submission.
  3. For applications where an A3, A4 or A5 use is proposed, the application is accompanied by a statement giving full details of means of control of emission of fumes, storage and disposal of refuse and means of insulation.
  4. In terms of a proposal for change use of a unit in A2 (Financial and Professional Services) or A3 (Restaurants and Cafes), A4 (Drinking Establishments) or A5 (Hot Food Takeaways) use to residential, the Council is satisfied the unit has been marketed at a reasonable price for 18 months prior to the application submission.

3.156 The Council considers that neighbourhood and village shops play a crucial role in meeting the “everyday” retail needs of the District’s population.  On this basis the Council, in the context of Policy DC37: Neighbourhood and Village Shops, will consider proposals for further neighbourhood and village shops or extensions to existing units on their planning and retail merits.  In terms of change of use from A1 (Shops) to either A2 (Financial and Professional Services), A3 (Restaurants and Cafes), A4 (Drinking Establishments), A5 (Hot Food Takeaway) or residential the Council considers that it is essential that viable neighbourhood and villages shops are as far as reasonably possible protected to ensure the “everyday” retail needs of the local population continue to be met. The policy also recognises the importance of protecting, as far as is possible, other existing services and other local amenities. However, the Council can not prevent the closure of neighbourhood and village shops and other local amenities which are no longer economically viable.

POLICY DC 38

FARM SHOPS AND GARDEN CENTRES IN RURAL AREAS

Proposals for Farm Shops and Garden Centres will be permitted only when:

  1. the proposal is small scale and appropriate to its location; and,
  2. existing buildings are used where possible.

In terms of proposals for farm shops and garden centres, the development is related, ancillary and appropriate to the operation of the farm unit or farming/nursery enterprise.

New buildings relating to farm shops will be acceptable only where they are justified to meet an agricultural need.

Where appropriate, permission will be subject to conditions or legal agreements restricting the goods sold to those associated to the farm shop/nursery and appropriate to a rural location. 

3.157 The Government, in PPS6 and PPS7, provides guidance on development in rural areas.  It is recognised that certain development such as farm shops can meet a demand for local produce in a sustainable way and can contribute to the rural economy.  The above policy ensures that this is not on the expense of other rural policies and that the development does not adversely affect easily accessible convenience shopping available to the local community.