INTRODUCTION

5.1 The primary role of the town centre is often shopping as it is both a necessity and recreational activity which can take place on a day to day basis for essential items of food and drink or less frequently for items such as clothes, decorative or functional items for the home and lifestyle to meet individual aspirations.

5.2 One of the indicators of a buoyant local economy is the performance of the uses within the town centre in terms of their vitality and viability. A number of indicators are used to make this assessment including commercial property yields, shop rents, pedestrian numbers and movements, the nature and diversity of uses and the proportion of vacant units.

5.3 Shopping has changed dramatically, largely as a result of changing lifestyles. Greater affluence has increased our personal mobility, demand for higher quality products, greater convenience and shopping environments.

5.4 Not all of the changes have been positive. Some shopping centres have suffered decline as a result of larger out-of-town centres being built that offer a ‘˜one-stop-shop’ for consumers with busy lifestyles, limited time and also seeking a broader shopping experience with restaurants and ancillary leisure facilities. The resulting impact of the out-of-town centres has reduced the confidence in the traditional town centre as retailers have relocated to the new centres leaving vacant units, reduced variety and quality of goods offered, and declining environmental quality through lack of investment. Another result has been the introduction of shopping activity into quiet, previously undeveloped areas.

5.5 Although shopping is a key function of town centres, it is important to remember the ancillary uses and services which can also be found in town centres. Town centres are also places where people live, work and find their entertainment, leisure and recreation facilities. In broad terms, the town centre acts as an advertisement for an area, promoting its attractiveness, sense of worth and good image.

AIMS AND OBJECTIVES

5.6 The Council is committed to maintaining and enhancing the shopping role of its town and village centres and accommodating, where possible, the development requirements of new retailing trends. There are a number of aims and objectives:

·  To accommodate any new retail and associated development within the three town centres to strengthen the role as a retail and service centre in order to maintain and enhance the vitality and viability of the town centre economy.

·  To ensure that outside the town centres, everyday shopping and service requirements can be met and be accessible to all in the community.

·  To prevent the development of out-of-town retail floorspace which is detrimental to the economy of the town centre and increases the use of private transport.

·  To ensure that the design of new retail proposals is appropriate to the character of the location.

NATIONAL, REGIONAL & STRATEGIC GUIDANCE

5.7 Central Government Policy in PPS6 (Planning for Town Centres) seeks to promote the vitality and viability of the town centres and ensure the existence of a wide range of facilities, services and retail outlets. In particular National policy emphasises a sequential approach for selecting sites for development for retail and commercial leisure and other key town centre uses. PPS7 (Sustainable Development in Rural Areas) sets out how larger villages should be seen as local service centres.

5.8 Diversity of town centres is the key to their success and careful attention should be paid to proposals for town centres, which will enhance their vitality and viability. Some retail proposals can have a seriously adverse effect on the town centre, damaging both the vitality and viability of the retail and entertainment uses within it.

5.9 The Regional Spatial Strategy for the East Midlands (RSS8) highlights the importance of maintaining the network and hierarchy of established town centres, which play a pivotal role in the region’s economic and social life. More specifically, the Strategy calls on Development Plans to promote mixed-use developments within town centres, which are hailed as the most effective mechanism for enhancing town centre vitality and viability in the longer term.

5.10 Furthermore, RSS8 suggests that retailing should underpin the strength of the town centres but they should also be a location for community, civic, cultural, entertainment and leisure facilities. Mixed-uses can stimulate the interaction of shopping, culture, leisure, entertainment, education and residence to keep the town centres alive, reduce the need to travel and add viability to the schemes.

5.11 At the strategic level, the Lincolnshire Structure Plan Review identifies a functional hierarchy of the County’s town centres. Within this hierarchy Gainsborough is classified as a ‘˜Main Town’ with Market Rasen and Caistor being identified as ‘˜Small Towns’.

5.12 The strategy set out in the Structure Plan Review seeks to maintain and strengthen town centres as the primary shopping and service locations within the County by encouraging within them a mix and diversity of land uses. The Structure Plan Review also reaffirms the sequential approach to be adopted for selecting sites for the large retail developments.

RETAIL AND TOWN CENTRES IN WEST LINDSEY

5.13 In 2001 the Council commissioned a ‘˜Retail and Commercial Leisure Study’ for the District. The report produced by Drivas Jonas has been used as a ‘˜health check’ of existing towns and provides an independent retail-based assessment of future need and demand for retail facilities in the District. The findings of the study have informed the policies within this chapter.

5.14 A priority for the Council is to encourage the regeneration of the three towns of Gainsborough, Market Rasen and Caistor by promoting and enhancing the retail and service functions.

5.15 In Gainsborough, the largest of the three market towns, the services and facilities are concentrated in the Market Place extending to Silver Street, Lord Street, Market Street and the southern end of Church Street. A market is held every Tuesday and Saturday in the market square.

5.16 Market Rasen is the second largest market town, with a produce market held every week. The Council has a rural development project underway based around its tourism potential and a number of town centre improvements are planned. Caistor has half the number of shops, services and facilities as Market Rasen and its small market is held once a week.

5.17 The primary settlements act as service centres in their own right for the smaller surrounding settlements, which have few or no shops, services and facilities.

5.18 Within the smaller rural settlements, visits by the mobile shops are particularly valuable if very limited or no services or facilities exist. The Council will encourage small post offices or convenience stores to meet local needs. Policy CRT 4 offers protection for rural post offices and is in line with the Central Government’s Rural White Paper.

TOWN CENTRE DEVELOPMENT

JUSTIFICATION

5.19 This policy is designed to deal with proposals for a range of specified uses which the Council would prefer to see located within more tightly defined town centre boundaries.

5.20 The policy is positively worded and designed to strengthen the role of town centres by attracting shoppers and visitors from beyond the local area. Shopping should underpin this strength but town centres should also be promoted as mixed land use areas, offering shopping, business, culture, leisure, recreation, residence and education opportunities.

5.21 The Council seeks to protect the shopping function of the town centres by discouraging an over concentration of non-A1 uses.

5.22 It is recognised however, that a non-A1 use may be the only way of restoring or improving a building and supporting a wider regeneration programme. Additional criteria relating to A3, A4 and A5 uses are set out in Policy RTC 9. Additional criteria for miscellaneous town centre uses are also set out in Policy RTC 5.

RETAIL DEVELOPMENT IN TRINITY STREET, GAINSBOROUGH

JUSTIFICATION

5.23 This policy is primarily designed to prohibit and restrict new development proposals for A1 and A2 uses along Trinity Street. During the previous plan period Trinity Street was defined as a secondary shopping zone within which A1 and A2 uses were considered acceptable in principle. This previous policy stance has helped to contribute to a dispersal of shopping activity away from the main shopping centre around the Market Place, Market Street, Silver Street and Lord Street resulting in an increase in town centre vacancy rates and damage to the centre’s vitality and viability.

5.24 The Council considers that the newly defined town centre (as identified on the inset map) should be a prime location and focus for future A1 and A2 development in order to stimulate further pedestrian activity and retailer demand for locating within the town centre.

5.25 Within Trinity Street the Council will look favourably upon new proposals for a variety of developments, which encourage the sustenance and enhancement of a mixed-use character within which businesses, leisure and community uses can flourish. This approach should act as a mechanism to diminish the capacity of the Trinity Street area to compete with the main shopping centre.

5.26 Trinity Street is an important thoroughfare within the town. It is important, therefore, that new development proposals do not create or exacerbate highway problems through significant traffic generation and on-street car parking.

5.27 Proposals will be expected to safeguard residential amenity, be reflective of the existing street character and be capable of adequate controls over their nature and operation through the imposition of conditions on planning permission.

5.28 Small-scale retail proposals designed to meet local needs within the immediate hinterland of Trinity Street may be acceptable. Local needs development is defined as that which is likely to increase the accessibility of shopping facilities to local people, particularly those without cars and which can help to reduce the need to travel by car.

5.29 In assessing whether a shopping proposal is primarily to serve local needs, regard will be had to the scale of the development, the type of goods to be provided and existing retail provision in the locality. Generally, facilities should not attract shoppers from outside the local Trinity Street neighbourhood.

VILLAGE CENTRES IN PRIMARY RURAL SETTLEMENTS

JUSTIFICATION

5.30 Many of the District’s most populated villages, termed ‘˜primary rural settlements’, have a distinct areawhere concentrations of retailing and community activity performing an important local service role can be found. These areas are characterised by a collection of small retail units and service provision such as a health centre, village hall and library. These areas are a focus of rural and community life and perform a vital support and ‘˜top-up’ role to the larger town centres and, over time, have developed their own unique and distinctive characters. The Council wishes to see this role and character sustained, protected and enhanced with a small retail hub forming the key land use activity.

5.31 New retail and community development proposals within these areasshould be small in scale in order to maintain their attraction to local communities only and be reflective of the local service centre character.

5.32 Shopping development proposed to be located within primary rural settlements but outside of the defined areaswill not be looked upon favourably by the Council.

5.33 This policy is designed to focus and promote shopping activity within the defined primary rural village areasto prevent dispersal and vacancy. In relation to new community facilities, however, it may be more appropriate in some cases to locate outside the areadue to space requirements. Individual proposals will be judged on their merits but the primary aim will be to sustain and enhance the vitality of the area.

MAJOR RETAIL DEVELOPMENT

JUSTIFICATION

5.34 The independent retail and commercial leisure study in 2001 concluded that there may be scope within the District over the plan period for a small retail warehouse park.

5.35 Current demand for further retail warehouse representation in the District is low, due primarily to the close proximity of other retail warehouses just beyond the District’s boundaries.

5.36 Economic capacity for further retail floorspace in this sector will depend to a large degree on a demonstrable increase in the available expenditure of the District’s residents. A small retail park could also help to claw back expenditure which is currently leaking out of the District and would be beneficial in sustainability terms by helping to reduce journey times to competing facilities beyond the District’s boundaries. However, it is anticipated that economic capacity for further floorspace will take time to materialise and thus the Council will take a cautious approach towards proposals for this type of development early on in the plan period.

5.37 The requirement to demonstrate a need for further retail warehouse floorspace by a relevant assessment will form a key element of any planning application. This will need to address the impact the proposal may have on the vitality and viability of all surrounding centres.

5.38 There are many indicators of need and other material considerations of which applicants should take account. These include:

·  Expenditure Growth or Economic Capacity.

·  Retailer Demand.

·  Regeneration/Urban Renaissance Enabler Argument.

·  Demonstrated Demand from Public through Consultation Exercise.

·  Physical Capacity of Site to Accommodate Proposed Development.

5.39 As well as demonstrating need, applicants will also be required to select a sequentially preferable site in order to help sustain and enhance the vitality and viability of the town centre. Town centre sites will always be the priority and the Council considers the former Britannia Works site in Gainsborough to be the most preferred location. This site is currently being developed as the new Marshall’s Yard complex.

5.40 Overall, the aim of the Council is that any new major retail development should complement the existing town centre of Gainsborough as a priority. It should not be of a scale that will pull shoppers away from the town centre, or nearby village centres, as this will damage their economic base and adversely impact upon the vitality and viability of the existing centre. The proposal should allow access to all of the community and by modes of transport other than the private car; and should not have a detrimental visual effect on the surrounding area.

MISCELLANEOUS TOWN CENTRE USES

5.41 The town centre should be a place where more services and facilities are provided to complement the retail function. Town Centres are locations where a balance between retail, leisure and related services can aid the overall vitality out of normal shopping hours.

JUSTIFICATION

5.42 A variety and diversity of land uses and activities can assist in sustaining and enhancing the vitality and viability of defined town centres. However, caution does need to be taken with less conventional proposals which may dilute or undermine this primary shopping role.

5.43 This policy is designed to cover an array of potential land use proposals for which there may be a demand to locate within the town centres.

5.44 Miscellaneous uses will need to demonstrate that they are compatible with the defined and established role and character of the town centre. This will require applicants to demonstrate that their proposal adds something new or diverse to the town centre which would contribute to sustaining or enhancing its vitality and viability without threat to highway/pedestrian safety, residential amenity or the character and appearance of the local streetscape, or adversely affect any Conservation Area or Listed Building.

5.45 In some cases it may be necessary to impose conditions to control and restrict the operation of particular uses and the negative impacts such as noise and litter which may be associated with them.

NEIGHBOURHOOD RETAILING

5.46 Neighbourhoods can be either urban or rural-based but the essential characteristic of any proposal is that it should serve the needs of the local town neighbourhood or village community only. This policy applies to areas of settlements not within the defined Town Centres or the Primary Rural Settlement Village Centres.

JUSTIFICATION

5.47 This policy is worded positively in order to encourage development, which is particularly needed in rural areas to reduce the need to travel to larger centres on a frequent basis especially to meet basic day to day needs.

5.48 It is criteria-based to reflect the need to consider important factors in the acceptability of proposals.

5.49 The local village and neighbourhood shops, post offices, hairdressers and other such class A1 uses can provide vital services to many local residents and can reduce the need to travel to larger centres for everyday goods and minor services. The Council will take a positive view of development proposals aimed at improving the retail offer available to villagers and town neighbourhood residents, provided that they serve local needs only and are in keeping with the character and appearance of the locality.

5.50 Key issues to consider will be implications for residential amenity, design and parking. In most cases customers will walk to the shops or park on the street for a short period only. Dedicated parking provision is thus unlikely to be necessary in most cases. There may, however, be a need to control hours of operation and open storage through the imposition of conditions.

RETAILING IN THE COUNTRYSIDE

5.51 In Central Government Policy rural diversification is encouraged to broaden the rural economy, but the preservation of the landscape and the open and undeveloped nature of the countryside are also important considerations.

5.52 Generally retailing facilities should be concentrated in or adjacent to the town centres. Facilities to meet day to day needs should be available throughout the urban areas and in village settlements. Retail development should not be allowed to proliferate in the countryside.

JUSTIFICATION

5.53 Generally, retail development in the open countryside is unacceptable; because of its effect on the character of the countryside, both visually and by means of new activity introduced; because it is not usually convenient or accessible to those without cars; and because it is unlikely to prove viable.

5.54 It would be unreasonable, however, to turn down a proposal where it can be demonstrated that a suitable site has been sought, but not found within a settlement boundary. In the interest of convenience and of protecting the countryside such developments will be expected to closely adjoin a settlement boundary.

5.55 Large-scale retail developments will not be permissible in the countryside both because of the significant detrimental impact they can have on the character of these areas and because they could have a harmful effect on the economic well-being of nearby town centres. Allowing such locations outside settlements often restricts travel choices, introduces new traffic to quiet areas and leads to the generation of additional vehicle pollutants.

5.56 Some retail developments, such as shops which are ancillary to another use (e.g. farm shops), may require a countryside location. These types of development need careful control if a proliferation of such development in the countryside is to be avoided. Proposals for the expansion of existing retail uses in the countryside need similar care.

5.57 In considering proposals for such development, the Council will therefore have regard to the number of existing similar developments within the District, and beyond if the proposed development is located close to the District boundary. It is expected that proposals for farm shops and the like, outside of settlements, will nonetheless be located in close proximity to an existing settlement, have good highway access, ample car parking space and provide a range of goods which make a countryside location an important requirement. In granting planning permission for ancillary retail development, the Council will need to be satisfied that the use is ancillary. Garden centres and markets are dealt with by Policies RTC 11 and RTC 12.

DESIGN OF RETAIL PREMISES AND ALTERATIONS TO SHOP FRONTS

5.58 Design remains of paramount importance when considering all new proposals for development, including retail.

5.59 When considering retail proposals, the Council will consider the scale, mass and location of the buildings, the materials to be used and the treatment of spaces around the building. Facilities for recycling household waste materials should be made available in new large-scale developments.

5.60 The aim of the Council is to encourage good design in development and to preserve and enhance the character, environment and historic qualities of its landscape, towns and villages.

5.61 An information leaflet dealing with shop design matters, particularly shop fronts and shutters, has been prepared by the Council. The Council regards this information leaflet as being an important consideration in the planning process. The following policy is related to the design of new shopping developments.

JUSTIFICATION

5.62 The Council wishes to ensure that new retail development and schemes for the refurbishment or extension of properties do not have an adverse effect on the character of individual buildings or of shopping streets in general. In the long term, If no such control is exercised, such changes may have a detrimental effect on the traditional character of the town or village centres which are attractive to many people.

5.63 It is the aim of the Council generally, to enhance the environment of the shopping areas within West Lindsey. The visual appearance of the buildings is an important element in this environment. In the long term, the character of the town centre areas will be an important element in retaining custom and drawing it away from other new purpose-built shopping facilities.

RESTAURANTS – CAFÉS, DRINKING ESTABLISHMENTS AND HOT FOOD TAKEAWAYS

5.64 A3, A4 and A5 uses have the potential to create particular problems because of the nature of their business and their times of operation. There is demand for these premises as they add variety to town centres and can also be located in residential areas.

JUSTIFICATION

5.65 The Council recognises the important role that class A3, A4 and A5 uses have to play in helping to sustain and enhance the vitality and viability of town centres. A mixture and diversity of land uses should include places to eat and relax both during the day and in the evenings, in order to increase the overall appeal of town centres. These land uses should be encouraged within town centres but caution needs to be taken to avoid the excessive build-up of concentrations of class A3, A4 and A5 uses. They should complement, not compete with, the primary class A1 shopping units.

5.66 The Council also recognises that there will be a demand for such premises in residential areas, within Gainsborough, Market Rasen and Caistor and the rural villages. This policy is designed to ensure a satisfactory form of development where such a demand arises.

5.67 The most noticeable problems associated with hot food establishments and licensed premises are noise, odours and litter. Traffic can also be a problem, in the form of vehicle engine noises, slamming doors and road safety implications.

5.68 When premises are open late at night and are situated in residential locations the activity they can generate can be a particular problem. Technical methods of solving one problem, such as extractors or chimneys to remove odours, may create other problems such as noise and a reduction in the visual amenity of the area. Control over hours of operation and ancillary uses will be particularly needed in residential areas.

RETAILING FROM INDUSTRIAL ESTATES

5.69 Retailing from industrial estates has become increasingly popular with small scale ancillary factory shops or services for employees being provided.

JUSTIFICATION

5.70 The Council, through the Local Plan First Review has allocated land for specific uses, one of which is employment. The regeneration of the District’s economy is a major issue for the Council, and the loss of any such employment land may be detrimental to future employment generation. Depending upon its scale and nature, such development has the potential to reduce the vitality or viability of nearby town centres.

5.71 The Council wishes therefore to avoid retail development on allocated employment sites where possible. Factory shops are often developed on industrial sites and these may be acceptable, as they are usually ancillary to an adjacent use, as may be cafés or other minor uses which are mainly for the use of employees within the area. Certain other uses may also be more appropriately sited within an employment area.

GARDEN CENTRES

5.72 Some garden centres have expanded and diversified their operations in recent years to incorporate children’s play parks, tea rooms and other non-horticultural uses, which has changed the nature and intensity of the activities carried out at garden centres.

JUSTIFICATION

5.73 Shopping activity in the countryside is generally discouraged, as it is contrary to the strategic policies of the Structure Plan Review and Central Government Policy set out in PPS6 (Planning for Town Centres) and PPS7 (Sustainable Development in Rural Areas). Policy RTC 7 follows this approach for other types of retail proposals.

5.74 As a result of the nature of goods sold in garden centres, the location of such uses in the countryside may encourage unnecessary journeys by the private car, and may also adversely affect the vitality and viability of neighbouring settlements.

5.75 A substantial part of most garden centres is required for the growing and display of plants, and a more rural location may be justified. Where other goods may be sold, a location closer to the edge of, or within, a settlement would be a more preferable option. Otherwise, any development of such uses in the countryside should be restricted to the sale of plants, in order to reduce the amount of unnecessary travel.

5.76 No matter where the location, any such development should not create an adverse effect upon the surrounding area, in terms of scale, design and traffic flow, which all have the potential to affect the amenities of both nearby residents and the surrounding countryside.

OUTDOOR MARKETS IN THE OPEN COUNTRYSIDE

5.77 In recent years there has been a growth of outdoor markets to serve both a shopping and leisure function, particularly on Sundays. However, the operation of these markets has resulted in complaints and objections and therefore this policy is designed to address these issues and reduce future problems.

JUSTIFICATION

5.78 Outdoor markets are an increasingly attractive commercial operation. For the general public they are very popular as they serve a particular consumer market and are viewed as both a shopping and recreational activity.

5.79 However, objections are often received regarding the effects of traffic generation, localised congestion, impacts on highway safety and loss of and injury to visual amenity, by the erection of advanced signs and the overall condition of such sites after the holding of the market. The majority of these sites are proposed within the countryside, which may exacerbate any adverse effects.

5.80 Planning permission should only be granted for the use of sites as outdoor markets provided that all relevant factors are taken into account and the resulting impacts are minimised to acceptable levels.

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