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3. TOWN CENTRE AND RETAIL DEVELOPMENTS CHAPTER
 
S1 RETAILING IN SHOPPING CENTRES
S2 NON-RETAIL USES IN DISTRICT SHOPPING CENTRES
S3 USE OF UPPER FLOORS IN SHOPPING AREAS
S4 ENVIRONMENTAL IMPROVEMENTS
S5 ARNOLD TOWN CENTRE
S6 ARNOLD SECONDARY SHOPPING CENTRE
S7 CARLTON SQUARE
S8 MAPPERLEY PLAINS
S9 NETHERFIELD
S10 LOCAL SHOPPING CENTRES
S11 RETAIL DEVELOPMENT OUTSIDE SHOPPING CENTRES
S12 RETAIL DEVELOPMENT OUTSIDE OF DISTRICT, LOCAL AND TOWN CENTRES
S13 LOCAL DAY TO DAY SHOPPING NEEDS
S14 FOOD AND DRINK USES
S15 PETROL FILLING STATIONS
S16 DESIGN OF SHOP FRONTS
S17 SECURITY SHUTTERS
   
   
  INTRODUCTION
3.1 It is the objective of the Borough Council through this Replacement Local Plan to continue to plan for high quality retail facilities which are accessible to residents of the Borough. A more positive approach towards retailing is required and the recent shopping surveys offer the basis for greater understanding of shopping behaviour.
3.2 The principal district shopping centre is Arnold which has a good range of both comparison and convenience retailing, having net floorspace totals of 7,525 m2 and 8,315 m2 respectively (G.L. Hearn Capacity Study 1999). The total net floorspace is estimated at over 21,000 m2. At the smaller district centre level, Carlton Square, Mapperley Plains and Netherfield provide a more limited range of comparison facilities and tend to have a very strong convenience retail function for a more immediate catchment area. The local and village centres vary in size from quite large to small parades of shops. The shopping centres are defined on the Proposals Map and in the case of Arnold the shopping centre is both the Primary and Secondary shopping areas. In addition to the general shopping centre policies (S1 to S4) there are Centre specific policies which should be read in conjunction with this first part of the chapter and the rest of the Plan.
 
POLICY S1 RETAILING IN SHOPPING CENTRES
Objectives
Sustainability 2, 5, 9
Town centre and retail developments 2, 4
Retail development (Class A1 of the Town and Country Planning (Use Classes) Order 2005) will be permitted in the district centres and local shopping centres, as shown on the Proposals Map, provided:-
a. it would be in keeping with the scale and character of the Centre; and
b. the proposal would not prejudice the effective use of upper floors.
   
3.3 PPS1, paragraph 27 (February 2005) states that developments that attract a large number of people, especially retail, leisure and office development; should be focussed in existing centres to promote their vitality and viability. This depends upon retaining and developing a wide range of attractions and amenities; creating and maintaining an attractive environment; improving accessibility and attracting investment. It includes the need to promote and enhance existing development by encouraging a wide range of services in a good environment to reinforce the centre's vitality and viability. This is endorsed in PPS6 (March 2005) and in the Nottinghamshire Structure Plan Review, where Policy 6/1 (c) continues to protect and enhance the role of the established District Centres in the Borough; Arnold, Carlton Square, Mapperley Plains and Netherfield. The Local Centres are Carlton Hill, Westdale Lane/ Main Road Gedling, Calverton St. Wilfrid's Square, Burton Joyce Village Centre and Ravenshead. The boundaries of the centres are shown on the proposals map which in essence shows where new retailing will be permitted, with the aim of sustaining and enhancing the role of the centres.
3.4 The objectives within the strategy for the Replacement Local Plan seek to direct future retail development to defined shopping centres. The Borough Council supports the 'sequential' approach to retail development (PPS6, paragraph 2.44) with preference for new retail development within defined shopping centres, followed by edge of centre sites. If no such sites are available, only then would out of centre sites be considered, but only if they were or could be made accessible by a choice of means of transport. In these cases the first consideration must be clear evidence of the need for the new retail development. Shopping accounts for more journeys (20%) than any other purpose except journeys to work and therefore it is important to ensure that new retail development is readily accessible by public transport, bicycle or on foot.
3.5 It is also important to consider the use of upper floors since they can provide opportunities for more diverse uses, adding vitality and, in the case of residential use, an element of security at night. It is important that development proposals do not prejudice the future alternative and/or separate use of upper floors and therefore possibilities for separate access to ground and upper floors should be considered.
3.6 There is a local hierarchy for shopping in the Borough, with the principal centre, Arnold, having primary and secondary areas. Policies adapted to each level will enable development to be controlled appropriately.
 
POLICY S2 NON-RETAIL USES IN DISTRICT SHOPPING CENTRES
Objectives
Sustainability 9
Community services 1
Recreation 3
Town centre and retail developments 4
In the primary and secondary shopping areas in Arnold and throughout the other district shopping centres, proposals for development, redevelopment or change of use for non (A1) retail uses which are appropriate in a town centre, including A2-A5 and D2 at ground floor level, will be permitted unless they would:-
a. create an unacceptable grouping of 4 or more non-A1 retail units; and/ or
b. result in the proportion of non-A1 retail uses exceeding 35% of the frontage in the shopping centre.
   
3.7 This policy is explicitly aimed at protecting the vitality and viability of the district centres and the shopping character of individual frontages. However, in the secondary shopping area of Arnold there may be scope for a more relaxed approach. Uses appropriate to a town centre are listed in PPS6 and include those defined in the Town and Country Planning Use Classes Order April 2005, Class A1 to A5 and D2. The vitality and viability of the district centres is said to depend, amongst other things, on retaining and developing a wide range of attractions and amenities. PPS1 seeks to promote the more efficient use of land through higher density, mixed use development, and to create and sustain an appropriate mix of uses. This advice is repeated in PPS6 where it is considered that promoting and developing a specialist or new role and encouraging specific types of uses in some centres may be the best way forward. Vitality and viability may be found in a wider mix of uses that fits better with the surrounding community retail patterns. However, the need to support the shopping function of the primary shopping areas is recognised. Primary shopping frontages occur in each District Centre wherein the predominant use is for retail (A1 use) and it is there that PPS6 allows the maintenance of a high proportion of retail uses (A1 uses).
3.8 The approach is to try and ensure that non-retail frontages do not coalesce to give four or more continuous units, and/or form more than 35 percent of the total street frontage. The grouping and percentage has been guided from discussion papers from the Unit for Retail Planning Information.
 
POLICY S3 USE OF UPPER FLOORS IN SHOPPING AREAS
Objectives
Community services 1
Sustainability 2, 5, 9
Housing 4
Recreation 3
Town centre and retail developments 4
Planning permission will be granted for the change of use of upper floors in shopping areas as defined on the Proposals Map for any purpose appropriate to a shopping area, including residential use and small scale B1 (a) offices, provided:-
a. it would not cause unacceptable conflict with the need for rear servicing; and
b. in the secondary shopping area of Arnold it would not be seriously detrimental to local residential amenity.
   
3.9 The Borough Council wishes to encourage the use of vacant and under used space above shops. Occupation of flats above shops can increase activity and therefore natural surveillance while ensuring buildings are in good repair. The policy recognises that rear servicing and parking should normally be provided but owing to the location a flexible approach should be adopted. Sensitive handling is required to avoid conflict with surrounding occupiers and issues of frontage access, disabled access, parking and disturbance should also be considered in relation to any proposed use.
 
POLICY S4 ENVIRONMENTAL IMPROVEMENTS
Objectives
Town centre and retail developments 1, 2
Transport (Accessibility) 4
In the district shopping centres:-
a. the Borough Council may undertake environmental enhancement, improved rear-servicing facilities, and the provision of off-street parking; and
b. planning permission will not be granted for development which would prejudice environmental works, rear-servicing facilities or off-street parking provision.
   
3.10 A key policy objective in PPS6 is to promote high quality and inclusive design to improve the quality of the public realm and open spaces. Town centres must provide a high quality environment if they are to continue to be places where people wish to come. Greater consideration of design will help to improve this. The quality of the environment of the centres is important for continuing prosperity and enhancement. Within the district centres, a number of schemes have taken place since the adoption of the 1990 Local Plan including:-
 
  • A scheme of repair and refurbishment of the existing pedestrianised area of Arnold: Improvements to the St. Albans Road and Blatherwick's yard car parks and improvements to floorspace and lighting of walkways between car parks and Front Street in Arnold;
  • Improvement works to the lighting in the existing car park at Carlton Square; and
  • Mapperley Plains has been the subject of a major scheme of road improvements and an associated improvement scheme which was completed in 1991/1992, together with a new public car park and rear servicing to shops on the northern side of Plains Road (completed in January 1993).
3.11 Possible future schemes are dependant upon the availability of Council resources. A "Health Check" produced for Arnold town centre by G.L.Hearn (1999), identified conflict between vehicular and pedestrian traffic and recognised opportunities to improve pedestrian access. Any such proposals would require full consultation with the Statutory Undertakers to ensure a co-ordinated approach to improvements. The current Council policy of providing short stay and long stay car parking areas within the council controlled car parks was adopted in 1993 and is currently under review. The need to ensure that everyone has access to a range of facilities in order to maintain the competitiveness of town centres compared to other retail locations is emphasised in PPS6. A review of the security aspects of Borough Council car parks took place in 1999. Any measure which renders car parking less attractive to shoppers might encourage the migration of those shoppers to other areas, for example nearby shopping centres.
3.12 In addition, there is a need to ensure accessibility by a choice of means of transport. Providing too much parking can encourage more traffic than the town centre can cope with and undermine its attractiveness. However, it may be possible to locate parking areas either underground or on upper floors to reduce the visual impact upon the shopping environment and maintain vitality and viability of the shopping frontage. Results from local questionnaires and the 1995 Greater Nottingham Shopping Survey indicated that respondents were unhappy with the quantity of car parking. The Borough Council is hampered in its efforts to provide environmental improvements, car parking and ancillary services through limited finances and therefore it is considered necessary to channel resources and prioritise the district centres.
   
  DISTRICT CENTRES
3.13 In accordance with the advice highlighted within PPS6, regular data collection ("health checks") should be undertaken to monitor the health of town centres and provide an indication of the vitality and viability of the district centres. The results of a "health check" for a town centre help explain the policy approach taken for the individual district centres.
 
POLICY S5 ARNOLD TOWN CENTRE
Objectives
Sustainability 9
Community Services 1
Recreation 3
Town centre and retail developments 1, 4
Transport (Accessibility) 4
In order to consolidate and enhance the role of Arnold town centre as a major district centre, planning permission will be granted for extensions, infilling and redevelopment for A1 - A5 and D2 uses in Arnold town centre, provided the development meets the following criteria:-
a. maintaining the compact nature of the existing shopping centre;
b. improving the appearance of the town centre;
c. creating safe, attractive and convenient pedestrian routes;
d. assisting the improvement of public transport infrastructure;
e. retaining the shopping function of the centre;
f. improving the evening economy and footfall; and
g. would not significantly increase shopping provision on the West side of High Street.
   
3.14 The principal retail and administrative centre in the Borough is Arnold town which serves the north-east corner of Greater Nottingham. The shopping centre is defined by the primary and secondary shopping areas (policies S1 and S2) and it is important to consider these and other relevant policies since S5 cannot be applied in isolation. Policy 13/4 in the NSPR highlights enhanced status for certain district centres in the South Nottinghamshire sub-area and identifies the four largest district centres which include Arnold. These centres already have wider catchment areas than the other district centres in the sub-area and have more comparison goods shopping floorspace. Arnold's role as a principal district centre is reflected in the high levels of comparison retailing and service uses in the centre. The retail function is reflected in the size of the main retail area and the range and quantity of shops present in the centre.
3.15 The Borough Council wishes to consolidate and enhance Arnold town centre's function as a major district centre, in accordance with NSPR policy 6/1 (c), and will favourably consider planning applications for retail development, including infilling and redevelopment, which expands and strengthens its retail role. Sustaining and enhancing the shopping role of Arnold town centre is in accordance with the principles of sustainable development, focusing major retail activity where public transport facilities are well developed. This will be expanded in the Arnold Town Centre Action Area Plan.
3.16 A study undertaken by consultants G.L.Hearn (Arnold Retail Capacity Study Oct. 1999) has assessed the need for new retail floorspace in quantitative terms for the plan period. Based on calculations on the catchment area within 5,10 and 15 minute drivebands of the town centre and the forecast expenditure per head, estimates of available expenditure were established. Using trading levels of stores within the catchment area, calculations concluded that the supply and demand for convenience floorspace is (at 1999) in balance. However in order to accommodate the forecasts of expenditure growth, and to strengthen the town centre's role by increasing its share of convenience expenditure, additional convenience floorspace would be required. The study concludes at paragraph 5.2 that up to 2300m2 additional convenience floorspace may be supportable by 2011 if increased efficiency of existing floorspace, increases in the value of goods sold and the likely improvement in the initial trading patterns of the recently opened Sainsburys store are taken into account. The provision of this additional floorspace would be unrealistic in the short term since it is reliant on gradual expenditure growth over the plan period.
3.17 The study also stated that expenditure growth in the comparison goods sector was also forecast and it had been evident through their shopper surveys that there was customer demand for an enhanced range in provision. The study points out however that it is important to consider the strength of Nottingham City Centre in this sector, the magnitude and nature of current market demands and the constraints on the town centre in the lack of appropriate sites. In view of these considerations the theoretical potential for increased comparison floorspace is not realistic and the town centre should accept its role as complementary to the City by allowing for marginal increases in floorspace to improve the towns comparison offer. However, the appeal decision in July 2003 to grant 929 m2 of comparison shopping on a site adjacent to B & Q on Mansfield Road, Daybrook was justified during the Local Plan Inquiry because of the need for an additional 1000 m2 at that time and the lack of available town centre sites.
3.18 These levels of growth (paras. 3.16 & 3.17) could be met through extensions to, and redevelopment of, existing facilities within the town centre. Extensions to retail premises in the primary shopping area and opportunities for redevelopment in the secondary area should be considered. New sites may be found through more efficient development of sites such as the current market place area and such central but non-retail uses as the Health Centre. Indeed the study suggested that if an alternative, more peripheral site could be found for the Health Centre, the market could be relocated there. Such a proposal would allow for the redevelopment of the prime, central market area and would create a prominent attraction on the High Street approach to the town centre with potentially less impact on residential properties than is experienced at the existing site and an encouragement, through increased footfalls, for retail development in the secondary shopping area along High Street. There is no need to enlarge the town centre to meet the levels of growth predicted.
3.19 The study also identified that as a result of the development of the new "edge-of-centre" Sainsburys store, some gravitational shift southwards of the perceived core of the town centre had occurred. This has subsequently left the northernmost part of Front Street, that which lies between the Asda store and the library, with low footfall rates and rental levels. A report produced by surveyor consultants Fisher Hargreaves Proctor (Arnold Health Check Sept. 1999) determined this area as being of tertiary status in rental and retail quality terms (see policy S6). However some opportunities exist for the redevelopment of this area utilising the large Borough Council car park. This would also have the effect of integrating the leisure facilities at this northern end with the town centre and may create an attraction resulting in improved footfall and rental levels in this area. This site has progressed and a master plan is to be prepared in 2006.
3.20 PPS1 advises on how a local planning authority should approach design generally with PPS6 encouraging a high quality design of both urban spaces and buildings. Pedestrian improvements for the whole of Front Street will provide a safer and more attractive environment for shoppers. The pedestrianisation of the part of Front Street north of Croft Road/ Ravenswood Road through to Coppice Road is feasible but would be dependent on the provision of a new bus station and replacement car parking. Congestion in the town is a problem. Such a scheme could be implemented on a similar basis to the existing pedestrianised area, closing the area to traffic during the main shopping hours but allowing vehicle access in the evenings to help keep the centre alive after the shops have closed. A further option worthy of investigation is to allow buses along that section of Front Street during shopping hours and opening it to all vehicles in the evening. Any scheme will require full investigation and full consultation, through the preparation of the Arnold Town Centre Action Area Plan, following the master plan for the Leisure Centre car park, sometime in 2008-9 (Local Development Scheme, March 2005).
3.21 Existing sports facilities and recreational opportunities in Arnold town centre are limited. The King George V playing field is retained as protected open space (policy R1) but could provide opportunities to diversify recreational opportunities complementary to the Town Centre which would strengthen the central area where the highest footfall is witnessed. The site has a prime frontage location and generally has the benefit of being served by non-car modes. This area could be used to help to create a lively street frontage adjacent to the area defined by the shopping centre boundary and also provide a boost for the evening economy, as encouraged in PPS6, paragraphs 2.23-2.26. The Arnold shoppers questionnaire provides support for the need to provide for the evening economy.
 
POLICY S6 ARNOLD SECONDARY SHOPPING AREA
Objectives
Sustainability 2, 5, 9
Town centre and retail developments 4
Retail and appropriate Town Centre uses (Class A1 - A5, small scale B1 (a) and D2 uses) will be permitted in the Arnold secondary shopping area, as shown on the Proposals Map, provided that:-
a. the proposal will not harm townscape quality or be detrimental to local residential amenity;
b. the proposal provides for the effective use of upper floors; and
c. the policy would not significantly increase shopping provision on the west side of High Street.
   
3.22 The area to the west of the High Street is within the secondary shopping area of Arnold, as defined on the Proposals Map. In considering proposals for retail development the Borough Council would consider the area to the West of the High Street to be a more desirable location than an out-of-town location, particularly in terms of the sequential test as outlined in PPS6. Annexe B of PPS6 defines the different types of town centre location, including primary and secondary frontages. These definitions must be applied realistically with prevailing commercial rental values and footfall providing good indications as to the boundary between primary and secondary areas. In accordance with the justification for primary shopping areas in policy S2, the only District Centre suitable for such a policy distinction is Arnold. Netherfield, Mapperley and Carlton Square are too restricted in terms of size (and other factors) for a secondary shopping policy. Policy E.17 from the 1990 Local Plan proposed office uses in the commercial area of High Street, Arnold which adjoined the defined shopping centre. It is considered appropriate to redefine this area with minor amendments at the northern and southern periphery of Arnold, as the secondary shopping area, in accordance with the report from consultants Fisher Hargreaves Proctor in the G.L.Hearn Study (1999)). The southern boundary of Arnold's secondary shopping area safeguards the separation of the shopping centre from the 'edge-of-centre' superstore development on the former Home Brewery site. By maintaining this position, and resisting retail redevelopment in this vicinity it will maintain the town centre's efficient form and length.
3.23 The promotion of diverse, but complementary uses is encouraged in PPS6. Where vacant retail premises seem unlikely to be re-used for that purpose, encouragement should be given to conversion to other service, leisure or residential uses. However, planning research shows that viable and vibrant shopping centres have empty units even during periods of prosperity. The policy is flexible and should allow for the accommodation of these uses where harm is not caused to the vitality and viability of the centre and the shopping character of the frontage. Mixed use development has taken place in Arnold, for example, on land at Croft Road.
3.24 Different but complementary uses during the day and in the evening can reinforce each other, making town centres more attractive. Non-shopping uses all add variety to a shopping centre. The use of upper floors can provide opportunities for more diverse uses, adding vitality and, in the case of residential use, an element of security at night. Therefore development proposals should not prejudice against the future alternative and/ or separate use of upper floors.
 
POLICY S7 CARLTON SQUARE
Objectives
Sustainability 9
Town centre and retail developments 1, 4
Within Carlton Square District Centre planning permission will be granted for appropriate development (A1 - A5 and D2) which would result in:-
a. improvements to the appearance of the Centre and the creation of attractive public spaces;
b. the creation of attractive and convenient pedestrian and cycle routes; and
c. improvements to public transport infrastructure.
   
3.25 Carlton Square is a combination of a large food store separated by a busy road junction from an older local centre. It is considered necessary to link Tesco to the rest of Carlton Square to provide cohesion. The area is environmentally unattractive but there is scope for redevelopment. Negotiations with B.T. Property have revealed that the majority of their site which adjoins this area is surplus to their operational needs. It is considered necessary to produce a development brief for the site, due to the differences in levels and potential difficulties of servicing the site on this busy corner. This will ensure thorough consideration of appropriate uses and comprehensive redevelopment of the site, including residential use of upper floors (para. 3.10) and the retention of B.T. Property's operational requirements. The Tesco superstore underpins the centre and until the opening of the store, Carlton Square was no more than a local centre. Trade diversions have been experienced as a result of the opening of Morrison's at Victoria Retail Park. According to PPS6 paragraph 3.25, it is necessary to determine the distance of proposed developments from existing or proposed public transport facilities, frequency and capacity of services, and whether access is easy, safe and convenient for pedestrians, cyclists and disabled people, to ensure that these are genuinely accessible.
 
POLICY S8 MAPPERLEY PLAINS
Objectives
Sustainability 9
Town centre and retail developments 1, 4
Within Mapperley Plains District Centre changes of use from retail (A1) and financial services (A2) to restaurants and cafes (A3), drinking establishments (A4) and hot food takeaways (A5) will only be approved where they do not result in the loss of the predominantly retail character of the shopping frontage at ground floor level. In assessing applications the Borough Council will take account of:-
a. the length of frontage of the proposal and adjacent non A1 uses;
b. the proportion of frontages or relevant parts of frontages already in non A1 use; and
c. the position of the shopping frontage in the district centre and whether the proposed use, by itself or with other non-retail uses would cut off part of the shopping frontage from the main area of retail activity and footfall.
   
3.26 Mapperley Plains is a vital and viable broad based minor district centre. It is primarily a convenience centre serving a local population but is constrained by straddling a busy main road. It has an immediate catchment area as evidenced by a high percentage of walk-in trade but still attracts a fair measure of car-borne custom, as established from the 1995 Greater Nottingham Household survey. There is little scope for expansion of Mapperley Plains retail area without affecting adjacent residential areas and it seems that pressure for expansion is unlikely bearing in mind the role of Mapperley Plains which functions principally as a convenience centre serving the food and daily needs shopping requirements of a locally resident catchment. When assessing the health of the centre, particular attention has been given as to whether the quality of the centre's attractions have been changing fundamentally through changes in retailer representation. Problems can arise when too many A1 shops are replaced by non-retail and in Mapperley there has been a significant increase in A3 - A5 frontage. The proportion of A3 - A5 frontage rose from 7.3% in June 1993 to 15% in September 1997. In addition, the Greater Nottingham Shopping Survey provided information on the likes and dislikes of Mapperley Plains shoppers, where a number of respondents, 29.1%, disliked the shopping centre because of the poor range of shops.
3.27 Shops are the predominant use in the centre and should remain so to give vitality. The continuity of shopping frontages, with their varied window displays, also contribute to the character of the shopping centre. Pedestrian flow is a significant indicator of vitality and provides the most basic measure of usage. From pedestrian counts, it has been identified that pedestrian footfall is centred around the precinct and the Co-op, trailing off towards the periphery of the centre. It is considered that flow rates will diminish further during the day if a disproportionate number of non retail units are allowed.
3.28 The report of a Unit for Retail Planning Information Ltd Workshop in 1979 entitled "Service Outlets in Shopping Centres" highlights that the proportion of service outlets add an extra dimension to a shopping centre. Shoppers will not continue to support shopping centres where there are increasingly large gaps between shops. Shops grouped conveniently together attract shoppers. Generally, the URPI workshop accepted that a single non-retail outlet occupying a standard shop frontage of 5-6 metres is unlikely to have a serious effect on adjoining shops, but that wedges of such outlets, running to 3 or 4 units in a row, making a dense section of frontage, would be more problematic. It is considered that generally it is better for units to be occupied by service outlets rather than remain vacant even at the cost of a high proportion of services, provided they are dispersed throughout the predominant retail (A1) frontage, (see policy S2).
 
POLICY S9 NETHERFIELD
Objectives
Sustainability 9
Community services 1
Recreation 3
Town centre and retail developments 1, 4
Within Netherfield District Centre, planning permission will be granted for retail (A1), residential and other appropriate uses (A2 - A5 and D2).
   
3.29 Netherfield is dominated by Victorian properties and is situated in the eastern corner of Greater Nottingham, drawing trade from a local area. The centre has experienced the most significant change of all of the district centres in terms of diversity of uses and numbers of vacancies. Recent survey work has shown that the vacancy rate in Netherfield district centre is higher than the national average and considerably higher than that exhibited at other Gedling shopping centres. Assessment of the vacant units suggests that a number have been vacant for some time especially those vacant units falling within the area to the east of Forester Street. Therefore the boundary of the centre has been drawn inwards from the area in the 1990 Plan. The need to put vacant units back into use will in some cases override the retail protection policy S2.
2.20 Survey work has highlighted a number of crucial issues in this Centre, including:- poorly maintained buildings; empty space over shops and the length of shopping frontage. Any retail use should be directed to the District Centre as shown on the proposals map. The aim is to encourage a positive approach towards the re-use of vacant units with consideration to alternative uses which could include service, leisure and residential. Uses other than retail (Class A1) will be acceptable subject to the use not being seriously detrimental to the local residential amenity of nearby property (including conversion to residential). This policy is intended to encourage a long term contraction of the shopping frontages to a more compact area more related to the community facilities and the major shops. It is intended that retail uses will eventually move into appropriate vacant properties in the contracted centre. First floor uses also come into play to add vitality and an example of this is the residential conversion of upper floors of shops at Dunstan Street and Victoria Road.
2.21 The definition of the shopping centre boundary has been revised due to a change in planning circumstances since the adoption of the 1990 Plan. The former E17 policy area in the 1990 Plan has now been removed. This means existing uses will remain but retail investment is directed to the contracted centre. An area to the north of the centre, considered appropriate for additional shoppers parking, was previously included in the shopping Centre boundary. However development associated with adjacent industrial premises has now taken place on this area and therefore it is considered appropriate to redraw the boundary to exclude it. A further minor change to the shopping centre boundary is necessary to take account of planning permission for Class A1 retail sales adjacent to the public car park on the west side of Victoria Road.
   
  LOCAL CENTRES
 
POLICY S10 LOCAL SHOPPING CENTRES
Objectives
Sustainability 9
Town centre and retail developments 1
Transport (Density) 2
In the local shopping centres defined on the Proposals Map, new retail (A1) development and uses appropriate to the local centre (A2 - A5 and D2) will be permitted if proposals:-
a. are accessible by means of transport other than the private car;
b. are satisfactory in their scale, form and the provision of parking for customers and deliveries;
c. would not be seriously detrimental to residential amenity of nearby property; and
d. would not, individually or cumulatively, damage the character and viability of the centre as a local shopping facility.
   
3.32 PPS6 paragraph 2.55 states that a network of local centres is essential to provide easily accessible shopping to meet peoples day-to-day needs and should be the focus for investment in more accessible local services. The role of the local shopping centre, either within smaller settlements or in the urban area, is important in meeting the needs of local communities and in particular those who are less mobile. Within these centres both retail and other uses, such as leisure, community facilities and office uses, may well be acceptable. In appropriate areas, additional small scale proposals for new shops may, in principle, be acceptable provided they are essentially local in character and compatible with their surroundings. The balance of overall provision should not be ignored and the relationship between each centre and its contribution to the overall shopping provision must be recognised. The only new local centre which will not prejudice the existing centres and their future roles as set out in the rest of this chapter, is that necessary to cater for the larger of the housing allocations, as described in Chapter 2 where policies relating to the site make specific reference to their shopping needs. Any further new local centre provision would upset the existing balance between centres and undermine the approach adopted here. More importantly any other proposal is likely to threaten the commercial viability of the new proposals just as seriously as the existing centres. This would have serious consequences for the overall aims of the Replacement Plan - that is to offer a greater degree of transport choice whereby public transport is effectively provided to enhance and maintain the existing and planned retail provision.
   
  OTHER RETAIL DEVELOPMENT
 
POLICY S11 RETAIL DEVELOPMENT OUTSIDE SHOPPING CENTRES
Objectives
Sustainability 9, 10
Town centre and retail developments 4
Outside the shopping centres as identified on the proposals map, retail developments1 including extensions to existing floorspace will not be permitted unless all the following criteria are met:-
a. there is a need for the development;
b. a sequential approach has been applied with town centre sites being considered followed by edge of centre sites;
c. the proposal, either by itself or together with other shopping proposals or developments, will not cause demonstrable harm to the vitality or viability of another shopping centre;
d. the proposal is of an acceptable scale, materials and design and does not cause unacceptable harm to the urban or rural environment;
e. it would not be seriously detrimental to residential amenity of nearby property;
f. the traffic generated by the proposal can be accommodated safely on the local highway network;
g. the proposal is sited so as to reduce the number and length of car journeys and can serve not only car-borne shoppers but is also accessible to those on foot, bicycle or who rely on public transport; and
h. the proposal is not located on land used or allocated for industry or business and required to meet the employment objectives of the plan.
   
  1 From the Nottinghamshire Structure Plan Review, adopted November 1996, major retail development comprises development exceeding 1000 m2 gross floorspace.
   
3.33 PPS6 advises that impact assessments should be undertaken for any application for a main town centre use which would be in an edge-of-centre or out-of centre location and which is not in accordance with an up-to-date strategy. There is a need for greater awareness of the range of impacts of out-of-centre development not only in terms of trade diversions. Government planning policy statements and guidance, especially PPS6, PPG 12 and PPG 13 emphasise the need for a broader assessment framework, covering economic, social and environmental considerations. Such a framework, incorporating information on impact on retailing, travel, access and on the environment is needed to assess all major retail schemes. The cumulative effect of further out-of-town centre retailing on the viability and vitality of existing centres, in particular the four district centres and the policies affecting those centres, is fundamental to any assessment.
3.34 It is considered that in order that the existing shopping centres retain their importance in the shopping hierarchy, shopping policies should encourage new development to locate within or on acceptable sites adjoining existing shopping areas. This is the sequential test outlined in para. 3.4
3.35 Studies of convenience and comparison shopping floorspace capacity were carried out in 1999. Consultants and the Borough Council have agreed that there will be expenditure growth sufficient to provide further capacity for additional convenience shopping floorspace for the Arnold catchment area within the plan period. This study's catchment area includes Carlton, Netherfield, Mapperley Plains, Gedling, Carlton Hill and Carlton Square.(G.L.Hearn Arnold Retail Capacity Study 1999). However such growth is not considered sufficient to warrant the identification of a site for a further major food retailing outlet. In qualitative terms all parts of the urban area have adequate local facilities and a choice of large foodstores within a few minutes drive time. Future convenience shopping floorspace capacity would be more appropriately directed to the recognised centres to secure the necessary private investment in these areas. Small scale retail development is proposed in association with the largest of the housing allocations as set out in Chapter 2, where policies relating to the sites make specific reference to their retail provisions, and policy S13 is the appropriate retail policy to guide this form of new retail development.
 
POLICY S12 RETAIL DEVELOPMENT OUTSIDE OF DISTRICT, LOCAL AND TOWN CENTRES
Objectives
Sustainability 10
Where planning permission has been (or is in future) granted relating to retail floorspace outside the district and local centres (and this includes the existing superstores at the Home Brewery Site and Victoria Business Park as well as all the units at Victoria and Madford Retail Parks), planning powers (including conditions and/or obligations) will be used to ensure that the development does not change its character in such a way as to harm the vitality and viability of existing centres. Planning powers may be used to restrict the range of goods to be sold and/or to control the future use, extension and subdivision of retail floorspace.
Subdividing existing units used for the purpose of comparison retailing and any new comparison goods retail units developed outside of the district/town centre boundaries, below 1000 square metres will not be permitted. Such units are restricted to the sale of the following goods:-
(i) building, decorating and home improvement materials and equipment;
(ii) electrical goods and equipment;
(ii) furniture, carpets and floor coverings;
(iv) household textiles, curtains and soft furnishings;
(v) garden goods and equipment;
(vi) car parts, maintenance goods and equipment and cycles;
(vii) caravans, camping equipment and boats; and
(viii) toys.
   
3.36 There are two existing food superstores within Gedling Borough which are located on Victoria Business Park and the former Home Brewery Site, as shown on the Proposals Map. The Borough Council would not permit the existing or any future food superstores to be sub-divided and the sale of goods is restricted to convenience goods (excluding 15% of the net floorspace which may be devoted to the sale of comparison goods).
3.37 Certain types of retail activity (particularly those associated with the sale of non-food bulky goods) may, subject to appropriate conditions, be satisfactorily sited in off-centre locations providing they do not undermine the vitality and viability of those town centres that would otherwise serve the community well. In addition, by consolidating development into the existing retail parks2 , pressure on important employment and housing land can be eased. While the primary function of the retail parks is to serve car-borne customers, it is an aim to make them more accessible to all types of customer in view of changing trends in retailing and environmental awareness. However they are not considered appropriate to be defined as 'shopping centres'.
   
  2 the definition  of a retail parks from PPS6 Annex A is "an agglomeration of at least 3 retail warehouses"
   
3.38 At Victoria Park, Netherfield restrictions on goods sold and the size of units help to retain this type of retail provision as a retail park. It is not proposed to allow further diversification or fragmentation both of which would seriously impact on existing local and district centres. The second retail park, as identified on the Proposals Map, at Madford Retail Park in Daybrook is currently a grouping of three units. As at Victoria Park it is limited by planning condition in terms of the range of goods sold and the size of unit.
3.39 As explained previously at paragraph 3.3 there is a need to retain the importance of existing shopping centres in the shopping hierarchy. In order that the hierarchy is not seriously undermined the role of different forms of retail provision should be carefully balanced. Given the balance of existing retail premises, there is a need to avoid excessive dispersal to ensure the existing centres do not lose their attraction, investment and scope for redevelopment. Therefore if the positive proposals in the Plan for the future of existing centres are to be successfully implemented a degree of control is necessary on the food and non-food superstores currently trading in the Borough.
   
  LOCAL SHOPS
 
POLICY S13 LOCAL DAY-TO-DAY SHOPPING NEEDS
Objectives
Town centre and retail developments 3
Transport (Density) 2
Outside the District and Local shopping centres as identified on the Proposals Map, planning permission will be granted for small-scale, individual shops or small groups of shops (Class A1 uses) providing for the day-to-day shopping needs of a local community if all the following criteria are met:-
a. they involve the sale of convenience goods;
b. the total net floor space is under 500 square metres;
c. they are located in an area of identified need;
d. they are accessible by means of transport other than the private car;
e. they will not impair the free flow of traffic or highway safety;
f. they will not be seriously detrimental to residential amenity of nearby property; and
g. the design of the proposal will fit in with its surroundings.
   
3.40 NSPR policy 6/3 states that provision will be made for new retail facilities or appropriate expansion of existing facilities in locations identified for major residential development. The location of the largest housing allocation as set out in Chapter 2 (where policies relating to the site make specific reference to retail provision) may result in existing shopping centres not being located conveniently to meet the convenience shopping requirements of this new residential area. A local centre, as defined in PPS6, includes a range of small shops of a local nature, serving a small catchment. Typically, local centres might include, amongst other shops, a small supermarket, a newsagent, a general grocery store, a sub-post office and occasionally a pharmacy, a hairdressers and other small shops of a local nature. This will need to complement the shopping hierarchy set out in this Plan and to ensure it does not undermine this hierarchy no new retail development should be of a scale equivalent to a new district centre. Any development granted by this policy will be local in scale and controlled in terms of the goods sold and the size and number of units. This is to ensure it remains as a local centre serving the immediate catchment area of the new development.
3.41 Policy 6/4 and 6/5 of the NSPR consider local shopping need in urban areas and shopping development in rural areas respectively. The purpose is to encourage appropriate forms of retail development in urban and rural areas, minimising the use of the motor car. It is considered that there is a clear distinction between defining need for urban and rural areas. Like local shopping centres, local shops offer an important service, providing for the day to day need, particularly convenience goods, of communities and particularly the less mobile. Beyond the catchment areas of the District Centres, peripheral housing estates such as at Top Valley and Colwick have limited access to a local shop. The rest of the urban area is well provided for, however small areas exist that are within the District centre catchment areas but are beyond an acceptable walking distance from a local shop3 . Some of the villages are also considered as being poorly served (1999) although all deficient areas may be subject to change during the plan period due to retail outlets opening. Conversely should outlets close new areas of need may be created within, for example, housing estates.
   
  3 distance of 400m taken from "Sustainable Settlements" a UWE/LGMB Design Guide
   
3.42 Small convenience shops should help achieve the overall aim of reducing reliance on the car for all trips but also provide a valuable local facility. The policy limits net floor space to below 500 square metres in order to ensure that only local facilities are provided outside established centres.
3.43 Some of the rural parts of the Borough are better served with local shops than others. The preservation of a minimum level of services, such as a general store and post office in each village continues to be an objective. The village shop is often seen as an important community asset in the smaller villages particularly for those with limited access to the better facilities in the urban area or larger villages such as Burton Joyce or Calverton. Small scale shopping proposals providing for local needs in the smaller villages will therefore normally be encouraged.
   
  SHOPPING PROPOSALS IN THE GREEN BELT
3.44 Farms and horticultural units can sell goods produced on the holding without the need for planning permission. PPS6 paragraph 2.63 notes that farm shops can meet a demand for local produce in a sustainable way and can contribute to the rural economy. A number of other factors require consideration, such as the scale and scope of retailing proposed, the utilisation of existing buildings; the potential harm to the rural character of the landscape and the amenities of the locality; and the generation of traffic on the local road network. Any proposed retail use which is beyond that appropriate to the rural area should be directed to the centres identified in this chapter.
3.45 There is concern over the proliferation of ancillary non-horticultural uses which in some instances have changed both the kind and intensity of activity carried out at garden centres. Other rural retail activity includes outdoor markets and car boot sales which may be seen as a recreational as well as a retail activity. There can be problems of traffic generation, localised highway congestion and injury to visual amenity on the site with the erection of advanced directional signs and the overall condition of the site following the holding of the market. Whilst most activities benefit from permitted development rights, the Council will consider serving Article 4 Directions to obtain the necessary controls. For example highway safety concerns would justify the Council using its powers to prevent an unacceptable impact.
 
POLICY S14 FOOD AND DRINK USES
Objectives
Sustainability 9
Outside the District and Local shopping centres planning permission will be granted for food and drink uses (A3 - A5) provided that:-
a. levels of traffic likely to be generated would not result in or aggravate traffic congestion or be a hazard to road safety; and
b. it would not be seriously detrimental to residential amenity or the character of the area.
   
3.46 Food and drink uses (A3 - A5) should be preferably located in district and local centres (policy S2 and S3) with the exception of Mapperley Plains, but they also provide for local needs and therefore it would not be appropriate for them to be restricted solely to shopping centres. In order to limit environmental problems, proposals for hot food take-away shops which adjoin houses should be avoided and, consequently, they should preferably be located within commercial frontages such as existing parades of shops.
 
POLICY S15 PETROL FILLING STATIONS
Objectives
Town centre and retail developments 3
Planning permission for petrol filling stations will only be granted where:-
a. the development would not result in or be a hazard to road safety;
b. the development would not be seriously detrimental to residential amenity of nearby properties;
c. the development would not be detrimental to the general character of the surrounding area; and
d. the site is not allocated for housing or industrial purposes.
   
3.47 In areas which are deficient in local shopping facilities the introduction of other retail sales from petrol filling stations can sometimes fill a gap for convenience 'top-up' purchases. PPS6 paragraph 3.30 notes that, "shops may be proposed as an ancillary element to other forms of development (for example, petrol filling stations...)". The layout and design of any proposed petrol filling stations must allow space for waiting vehicles to queue within the boundary of the site. Petrol filling stations present a pollution risk to groundwater resources and therefore Policies ENV3 and ENV42 are relevant.
   
  DESIGN MATTERS
 
POLICY S16 DESIGN OF SHOP FRONTS
Objectives
Environment 6
Town centre and retail developments 1
A new shop front or replacement will only be permitted if it:-
a. relates well to the building, taking into account upper floors, in scale, proportion, vertical alignment, architectural style and materials;
b. preserves any existing separate access to the floors above;
c. takes account of the design features of neighbouring shop fronts so that the development will fit in with the character of the street scene; and
d. ensures that access can be conveniently used by people with disabilities.
   
3.48 Design of retail developments should have proper regard to their relationship with their surroundings and develop and enhance local character. Designs should add interest and variety. Replacement shop fronts require planning permission where they would result in a material change in the appearance of the shop. When shops are refurbished, they should install level access unless there are valid conservation reasons for not doing so or for differences in level which cannot be overcome. Signs are usually an integral part of the appearance of a shop front although there is a tendency for them to be designed separately and to be changed more often than the shop front itself. Policy and design guidance should advocate their integration as part of shop front design.
 
POLICY S17 SECURITY SHUTTERS
Objectives
Environment 6
Town centre and retail developments 1
Planning permission will be granted for externally mounted roller shutters where:-
a. they are not sited within a Conservation Area or on a listed building;
b. when sited within shopping centres and parades of shops, the shutters are of an open nature;
c. the shutter and shutter box are designed as an integral part of the shop front; and
d. the shutter and shutter box are finished in an appropriate colour.
   
3.49 It is considered that external shutters are unlikely to be acceptable on listed buildings or premises within conservation areas. There is a need to ensure that shop shutters are appropriate to the building on which they are placed, and that when closed they should allow a reasonable degree of visibility into the shop. Any shutter or grille which allows a view into the shop when closed will usually look better than solid shutters and will allow casual 'window shopping'. The greater degree of openness the better in terms of the character and appearance of the area. In order that the appearance of the shutter respects the rest of the building and street scene it should always be of either an appropriate painted or coated finish. The box above shop windows needed to house security shutters is often an ugly and intrusive feature. Whenever possible it should be sited internally. When this is not practical it should be tied in with the design of the fascia sign. Details are expanded in supplementary design guidance, available from the Local Plans Section (address and telephone numbers at the front of the Plan).
 
 
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