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| Chapter 6 |
| City Centre |
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Introduction |
| 6.1 |
The City Centre is essential to the image,
economic prosperity and future success of Peterborough. It is the
part of the City most likely to be used by residents and visitors
and is a major focus in the region in terms of shopping, leisure,
employment and culture, providing a diversity of experience and activity.
A lively, successful City Centre contributes greatly to the quality
of life of the people of Peterborough and of the surrounding area.
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| 6.2 |
The City Centre has many positive attributes
and generally is in a healthy condition. However, this can only be
maintained by its continual evolution to reflect changing lifestyles
and commercial pressures. Developments in telecommunications and competition
from out of town developments and neighbouring cities mean that we
must continually improve the quality and range of what is available
in the City Centre. This involves making better use of that which
currently exists and attracting new development to add further variety,
vitality and quality. |
| 6.3 |
The City Council is a member of the Peterborough
City Centre Forum, a public/private sector partnership set up to promote
and improve the City Centre. The Council is working closely with its
partners in the Forum and the City Centre Manager to protect and enhance
the quality of the centre. |
| 6.4 |
This chapter relates to issues specific
to the City Centre, reflecting its unique situation and its importance
to Peterborough and the overall Plan strategy. The policies in this
chapter apply to the City Centre area shown on the Proposals Map,
unless otherwise specified. Policies in the other Chapters in this
Plan may also be relevant to the City Centre. |
| 6.5 |
Throughout the chapter, references are
made to the City Centre and the Central Retail Area, which is also
shown on the Proposals Map. The Central Retail Area is the only location
within Peterborough that meets the definition of "town centre" as
defined in PPG6 and is therefore used as the first preference in the
sequential approach search sequence. The Central Retail Area acts
as a focus for both the community and for public transport providing
a broad range of facilities and services. The City Centre covers a
much wider area and acts as a centre for tourism, business and recreation
in addition to shopping. |
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Vision |
| 6.6 |
The City Council will work in partnership
with the City Centre Forum and other relevant bodies to achieve its
vision for the City Centre. The Council wishes to: |
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- achieve a sustainable, successful and vibrant City Centre with
an increased regional role;
- create a centre with an attractive and distinctive character,
which provides a wide range of retail and other facilities accessible
to all members of society;
- retain and improve what is best about the centre, while increasing
the range of what is on offer; and
- produce a high quality built environment which people can reach
and get around easily and safely.
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From this vision come a series of aims
for the Plan in relation to the City Centre. |
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Aims |
| 6.7 |
The aims of the Plan for the City Centre
are: |
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- to expand the role of Peterborough City Centre within the region
in terms of shopping, working and leisure, and develop its sense
of identity;
- to facilitate new development and guide the redevelopment of
key parts of the centre;
- to create a diverse, lively and successful centre with a wide
mix of uses, providing a choice of activity to meet the needs
of residents and visitors throughout the day and night;
- to conserve and enhance the quality and character of the City
Centre environment;
- to ensure people can travel to the centre by a choice of means
of transport;
- to improve pedestrian and cycle accessibility within the centre
and between the core and the periphery; and
- to encourage additional residential development in the City
Centre and resist the loss of existing housing.
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City Centre Strategy |
| 6.8 |
To meet the Plan's aims and deliver its
vision for the City Centre, a strategy and series of policies have
been developed, which are set out in the remainder of this Chapter.
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| 6.9 |
There are proposals to transform the City
Centre into a dynamic modern city whilst at the same time conserving
and enhancing its historic core. The City Council has identified a
number of Opportunity Areas that will enhance Peterborough as a place
for retail, business, education, leisure and tourism. Of these Opportunity
Areas, only North Westgate lies within the Central Retail Area. The
policy for each Opportunity Area is set out later in the chapter and
the supporting text provides details of the relationship of each area
to the rest of the City Centre. The Council plans to significantly
improve the Central Retail Area and will strengthen the retail core
through a variety of initiatives that will improve the connectivity
and linkages within the city. These ideas have been developed further,
through the preparation of the City Centre Framework, a document which
provides a vision that will identify potential over the next 15-20
years. The City Centre Framework was adopted on 28 April 2004. |
| 6.10 |
The strategy for the City Centre can be
divided into four main elements, although they are all closely interrelated. |
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Vitality and Viability |
| 6.11 |
Increasing the number and quality of the
facilities and activities on offer in the City Centre is fundamental
to building on its current success. New development of retail, leisure
and other key uses will be concentrated in the City Centre to ensure
its future vitality and viability. Other uses such as housing and
offices are also encouraged in the centre to increase the variety
of uses. |
| 6.12 |
Policies CC1, CC2, CC3, CC4, CC7, CC8
and the Opportunity Area policies guide and encourage new City Centre
development, while policies CC5 and CC9 protect existing uses. |
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Redevelopment Opportunities |
| 6.13 |
The City Council will work in partnership
with developers and landowners to secure the redevelopment of the
key City Centre Opportunity Area sites at North Westgate, the South
Bank, the Railway Station and Peterborough District Hospital. The
redevelopment of these sites is crucial to the future of the City
Centre and provides a unique opportunity to enhance the City Centre
through new high quality development which increases the range of
uses in the centre and better integrates more peripheral areas with
the existing core. |
| 6.14 |
Policies CC10 to CC13 set the framework
for the redevelopment of the Opportunity Areas. |
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Environment |
| 6.15 |
A safe, welcoming and attractive environment
is of great importance if people are to want to visit and spend time
in the City Centre and if the centre is to provide a positive image
for the City. The design of new buildings in the City Centre must
be of high quality, appropriate to its important location. All new
City Centre development should maintain and enhance the character
of the central area. New public open space, good quality landscaping
and the enhancement of the Embankment and Riverside area are also
encouraged. |
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6.16 Policies CC6 and CC17 to CC19 relate
to the design and quality of the City Centre environment. Chapter
9 - Design and Amenity and Chapter 10 - Conservation of the Built
Environment contain relevant policies for the whole of the District. |
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Transport and Access |
| 6.17 |
High quality access by a choice of means
of transport and easy and safe movement around the City Centre are
vital if it is to reach its full potential. Policies to guide the
provision of parking for vehicles and bicycles and ensure development
is accessible to people of all levels of mobility are contained in
this chapter. The implementation of the Council's Local Transport
Plan and the policies in Chapter 4 - Transport will also contribute
to the improvement of access and transport to, and within, the City
Centre. |
| 6.18 |
Policies CC14 to CC16 deal specifically
with access and transport, although these matters are also covered
in many of the other policies in this chapter. |
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Key Uses |
| 6.19 |
For the City Centre to retain and build
on its current position, it is important for major new investment
in key town centre uses, such as retail and leisure, to be located
in the City Centre. It is in the interests of the whole City to concentrate
significant development in the centre rather than at locations which
may act as competition and potentially undermine its success. |
| 6.20 |
The policies below set out the Council's
position in relation to retail, leisure, office and housing development
in the City Centre. Further relevant policies are contained in the
chapters of the Plan which specifically relate to these uses. |
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New Retail Development
in the Central Retail Area |
| CC1 |
Retail development will
be permitted within the boundary of the Central Retail Area, as shown
on the Proposals Map, provided it would: |
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(a) |
not prevent or put at risk
the achievement of the retail strategy; and |
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(b) |
not act as a separate and
isolated destination, but be fully integrated with the existing facilities
within the Central Retail Area. |
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Proposals for new retail
development elsewhere in the City Centre will be assessed against
policy R4. |
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Proposals for new retail
development elsewhere in the City Centre will be assessed against
policy R4. |
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| 6.21 |
It is important that any new retail development
complements and strengthens the Central Retail Area. It should integrate
with it and not act as a separate destination, in order to prevent
one area becoming excessively dominant as a retail draw and having
a detrimental impact on the viability of other parts of the centre.
Integrating new development depends largely on creating pedestrian
links between the new and the existing that are clear, convenient,
attractive and safe, and on providing a variety and layout of uses
in a way that generates activity and interest, and enhances the attractiveness
of the centre as a whole. It does not mean that the use, layout and
design of existing buildings have to be copied or imitated, and it
does not preclude an innovative and original approach. Proposals that
would create or enhance a distinctive sense of place, whilst respecting
the character of their surroundings and of the City Centre as a whole,
will be encouraged. |
| 6.22 |
The Central Retail Area would benefit
from more specialist shops. The historic area around Priestgate offers
opportunities for the conversion of properties to high quality premises
for shops or restaurants. The Council will look favourably on such
applications provided they respect the character of the area and protected
buildings in accordance with policies CBE3, CBE6 and CBE9 and resolve
any access, transport or operational problems. |
| 6.23 |
The Central Retail Area also contains
Peterborough market. The City Council recognises that this plays a
valuable role in increasing the range and choice of goods and food
available in the City Centre. It adds to the vitality of the centre
and increases its range of attractions. The Council will support schemes
which will improve the market, increase its attractiveness and improve
its accessibility for pedestrians. |
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Non-Retail Uses in
Primary Retail Frontages of the Central Retail Area |
| CC2 |
Within primary retail frontages
of the Central Retail Area, as shown on the Proposals Map, planning
permission for uses other than A1 will be granted, provided that the
development would not: |
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(a) |
reduce the proportion of
a frontage in Class A1 use to below 75% or further reduce the proportion
of a frontage in A1 use where this is already below 75%; or |
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(b) |
result in more than three
non-retail uses adjacent to one another; or |
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(c) |
be likely to have an unacceptably
detrimental effect on the amenities of occupiers of nearby properties;
or |
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(d) |
be of an appearance inappropriate
to its location within a retail centre. |
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A3 proposals which do not
meet criteria (a) or (b) will be permitted where they would contribute
to the quality of the City Centre and improve the overall City Centre
offer. |
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Proposals for A3 uses outside
the Central Retail Area will be considered against policy R7. |
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| 6.24 |
Shops within the core of the Central Retail
Area have been designated as primary retail frontages, as shown on
the Proposals Map. Only the ground floor level is designated as a
primary retail frontage. It is essential to retain the concentration
of retail uses in this area to maintain the attractiveness and convenience
of the Central Retail Area as a shopping destination and to preserve
its character and vitality. |
| 6.25 |
Some non-retail uses, particularly A3
uses, such as pubs, restaurants and cafes, and A2 uses, such as banks
and building societies, may be beneficial to retail areas, either
by increasing activity or by providing complementary services. However,
the character and economic well-being of a centre can be adversely
affected by too many, or poorly located, non-retail uses. |
| 6.26 |
Policy CC2 allows for the provision of
a controlled number of non-retail uses within primary frontages but
prevents any proliferation which would adversely affect the amenity
of neighbouring properties or the character of the Central Retail
Area. |
| 6.27 |
It is important that units used for non-retail
uses retain their appearance as shops to maintain the character of
the Central Retail Area. To achieve this, when granting permission
for a non-retail use, the City Council will normally attach a condition
requiring a window display and/or views into the interior of the premises
to be provided and maintained, where this is practicable (shop front
design is covered in policy DA19). |
| 6.28 |
For criterion (a) the percentage of non-retail
uses along a frontage will be calculated along the length of a continuous
parade of shop units (without any significant break or corner), as
shown on the Proposals Map. The City Council will produce a guidance
note identifying and describing the retail frontages within the Central
Retail Area. It will provide detailed information, clarifying precisely
how the relevant frontage will be calculated enabling a consistent
approach to be adopted. |
| 6.29 |
CC2 relates to the ground floor of shop
units only. The use of upper floors above shops for non-retail uses
is encouraged, provided it is in accordance with relevant polices
in this Plan. |
| 6.30 |
Where appropriate, the City Council will
impose conditions when granting permission for a hot food outlet to
prevent any detrimental impact on the amenities of nearby residents.
These may relate to the maximum permissible hours of use, the installation
of soundproofing, ventilation or fume extraction equipment, or any
other relevant matter. |
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Non-Retail Uses in
Other Retail Frontages of the Central Retail Area |
| CC3 |
At locations within the
Central Retail Area but outside primary retail frontages, planning
permission will be granted for non-A1 uses, provided that the proposed
use would not: |
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(a) |
be inappropriate within
the Central Retail Area; or |
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(b) |
generate levels of traffic
or parking which would result in unacceptable congestion or road safety
hazard; or |
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(c) |
be likely to have an unacceptably
detrimental effect on the amenities of occupiers of nearby properties. |
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Proposals for A3 uses outside
the Central Retail Area will be considered against policy R7. |
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| 6.31 |
The primary retail frontages are the most
appropriate location for the majority of retail development in the
Central Retail Area and policy CC2 aims to protect their retail character
from inappropriate changes of use. Many of the non-retail uses which
require shop premises are best located within other retail frontages.
Policy CC3 allows this, provided that the proposed use is not inappropriate
by virtue of its impact on the vitality and viability of its surroundings;
and does not have an adverse impact on traffic or amenity. CC3 relates
to the ground floor of shop units only. The use of upper floors above
shops for non-retail uses is encouraged, provided it is in accordance
with relevant policies in this Plan. |
| 6.32 |
When granting permission for a non-retail
use, the City Council will normally attach a condition requiring a
window display and/or views into the interior of the premises to be
provided and maintained, where this is practicable (shop front design
is covered in policy DA19). |
| 6.33 |
Restaurants and bars contribute greatly
to the City Centre in terms of the range of facilities on offer, its
economic success and its vitality, particularly outside normal working
hours. The number and range of restaurants in the City Centre remains
below that expected for a city of the size of Peterborough. The Council
welcomes the provision of new restaurants in the central retail area,
in accordance with policies CC2 and CC3, which control the balance
of retail and non-retail uses in retail frontages within the Central
Retail Area. |
| 6.34 |
Where appropriate, the City
Council will impose conditions when granting permission for a hot
food outlet to prevent any detrimental impact on the amenities of
nearby residents. These may relate to the maximum permissible hours
of use, the installation of soundproofing, ventilation or fume extraction
equipment, or any other relevant matter. |
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Leisure Development
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| CC4 |
In the Central Retail Area
and, subject to the sequential approach, at edge of centre locations
(as defined by Appendix VI), planning permission will be granted for
leisure development provided that the proposal: |
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(a) |
would provide safe and
convenient access by foot, cycle and public transport and maximise
the proportion of trips generated by these modes; and |
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(b) |
would provide high quality
links to the rest of the centre; and |
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(c) |
would not be likely to
generate levels of traffic or parking which would result in unacceptable
congestion or road safety hazard; and |
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(c) |
would not be likely to generate
levels of traffic or parking which would result in unacceptable congestion
or road safety hazard; and |
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(d) |
would not have an unacceptably
adverse impact on neighbouring uses or any other functions of the
centre; and |
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(e) |
would be of high design
quality appropriate to a City Centre location. |
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Proposals for leisure development
elsewhere in the City Centre will be determined in accordance with
policy LT9. |
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| 6.35 |
The City Centre is the most suitable location
for many leisure uses, in particular those which serve the whole of
the City and those which attract a large number of trips. Such uses
greatly add to the liveliness and attractiveness of the centre, particularly
in the evening. For example, locating new cinema development in the
centre would be of great benefit to its evening economy and prevent
other locations developing as damaging competitors. |
| 6.36 |
The importance of leisure uses in the
City Centre has grown, with an increase in such development, particularly
in the Broadway - Northminster area. The City Council wishes to see
this continue. Leisure development in accordance with policy CC4 will
normally be permitted. For applications for leisure uses elsewhere,
a sequential approach will be applied in accordance with LT9. The
uses covered by the term 'leisure development' are specified in Chapter
7 - Leisure and Tourism (para. 7.26). |
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Loss of Leisure and
Cultural Facilities |
| CC5 |
Development which would
result in the loss of existing leisure or cultural facilities in the
City Centre will not be permitted where there is a reasonable prospect
of that use continuing, unless alternative provision is made or the
use is no longer viable in that location. |
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| 6.37 |
The City Centre contains a variety of
leisure-related and cultural facilities which contribute greatly to
the quality of life in the City and the vitality of the centre, particularly
in evenings and weekends. In addition to encouraging new development
of this type, the City Council aims to encourage the retention of
existing facilities. |
| 6.38 |
The level and nature of demand for such
uses change over time, with new forms of leisure replacing previously
successful activities. Where facilities are no longer commercially
viable, use for an alternative leisure or cultural use will be encouraged.
Only when applicants can demonstrate that such facilities are no longer
viable at that location will change to another use be allowed. Proposals
for changes of use which would lead to the loss of these facilities
in locations where they remain viable will not normally be permitted. |
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Embankment |
| CC6 |
The Embankment west of
Frank Perkins Parkway, as shown on the Proposals Map, shall remain
a generally open area for social, recreational and cultural uses.
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Built development will
be confined to the northern and western parts of the site. Proposals
will be required to be of high design quality and improve pedestrian
links to the core of the City Centre and, where appropriate, the South
Bank Opportunity Area. Open views of the Cathedral from the south
and south-east should be preserved. |
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| 6.39 |
The Embankment, north of the River Nene
to the west of Frank Perkins Parkway, provides valuable recreational
and cultural opportunities in the heart of Peterborough. However,
the Embankment and the other parts of the centre adjacent to the River
Nene have the potential to become an even greater resource for the
City. For this potential to be fully realised, the area needs to be
used and, where appropriate, developed sensitively and become better
integrated with its surroundings and the rest of the City Centre. |
| 6.40 |
The open area of the Embankment provides
a visual link between the City and the Fens and helps protect views
of the Cathedral from the south. It is also an important venue for
major outdoor events, including circuses, pop concerts and the annual
Peterborough Beer Festival. Due to its visual and functional importance,
the City Council wishes to retain the open character of this area
and will resist proposals for built development on this part of the
Embankment. |
| 6.41 |
Built development on the Embankment is
predominately located to the north and west. Policy CC6 ensures that
future built development on the Embankment will also be concentrated
to the north and west and be restricted to recreational and cultural
uses. Views of the Cathedral must be preserved and any new buildings
will need to be of high architectural quality, respecting their prominent
location. |
| 6.42 |
The Embankment and the riverside area
south of Bourges Boulevard generally act as a secondary part of the
City Centre due to their poor links to the rest of the centre, with
Bourges Boulevard and the Rivergate gyratory acting as major barriers.
This affects the use and vitality of the area. New development provides
an opportunity to improve the area's attractiveness and benefit the
whole of the centre. For this to be achieved, schemes for the Embankment
and riverside area must significantly improve or otherwise create
pedestrian and cycle links to the rest of the City Centre and, where
appropriate, improve public transport facilities. |
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Proposals for Key City
Centre Uses |
| CC7 |
Proposals for the development
of key city centre uses (other than retail, food and drink, and leisure)
which will attract large numbers of people, will be permitted in the
Central Retail Area; and at other City Centre locations subject to
the sequential approach (as set out in Appendix VI); provided that:
|
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(a) |
it would not have an unacceptably
adverse impact on any other City Centre uses; and |
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(b) |
it would provide safe and
convenient access by foot, cycle and public transport and maximise
the proportion of trips generated by these modes; and |
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(c) |
it would not be in a primary
retail frontage. |
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Proposals for such uses
in other locations will be subject to the sequential approach (as
set out in Appendix VI). |
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| 6.43 |
The City Centre is the preferred location
for developments that attract many trips as it is generally accessible
by a variety of means of transport. Such key city centre uses may
include commercial, public offices and other major venues. Locating
major new development in the centre will strengthen its position by
increasing the range of opportunities and facilities available. |
| 6.44 |
The location of retail and leisure uses
will be controlled by policies in their respective chapters and relevant
policies in this chapter. A sequential approach will be taken to the
location of other key town centre uses and developments which will
be the focus of large numbers of journeys in accordance with policy
CC7. |
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Office Development |
| 6.45 |
Large numbers of people work in offices
in the City Centre. The development of further office floorspace is
desirable in terms of the future well-being of the economy of the
City Centre and the District as a whole, and is welcomed by the City
Council. |
| 6.46 |
Proposals for new offices in the City
Centre will be assessed in line with policy OIW5. This supports new
office developments and conversions of existing non-office premises
provided they are in accordance with criteria aimed at preventing
schemes which have a detrimental impact on the rest of the centre. |
| 6.47 |
There is a wide range of office provision
in the City Centre, including large, purpose-built offices at locations
throughout the centre; smaller-scale offices, often in converted premises,
for example, in the Cowgate - Priestgate area; and re-used floorspace
on the upper floors of shops. |
| 6.48 |
Plan policies OIW3 and OIW4 in Chapter
3 - Offices, Industry and Warehousing designate three Business Parks
around Peterborough for office development and allocate specific sites
for office use. Office development is also expected to be an element
in the comprehensive mixed use redevelopment of a number of the Opportunity
Areas designated in this chapter. |
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Housing Development
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| CC8 |
New residential development
and the change of use of buildings or part of buildings to residential
use will be permitted within the City Centre, provided it: |
| |
(a) |
produces suitable amenity
for residents; and |
| |
(b) |
does not impair the operation
of any existing commercial activity; and |
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(c) |
does not have a significant
adverse impact on the Central Retail Area. |
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|
| 6.49 |
City Centre living has a number of benefits: |
| |
- it increases levels of activity throughout the day, making
the City Centre feel a safer place;
- it helps support shops, pubs, restaurants and other businesses;
and
- it can make the best use of the building stock by re-using previously
vacant floorspace.
|
| 6.50 |
The City Council welcomes residential
development in the City Centre, whether this takes the form of new
development or a conversion from another use, and will look favourably
on schemes which meet the criteria set out in policy CC8. |
| 6.51 |
The level of residential amenity in the
City Centre will be different to that found in other areas. People
living in new City Centre housing developments accept a specific living
environment and it is reasonable for them to have different amenity
expectations from those living in more traditional residential locations
(for example, no or reduced levels of private open space). |
| 6.52 |
Policy CC8 ensures that housing schemes
provide a satisfactory residential environment with a level of amenity
appropriate to City Centre living. In assessing amenity, consideration
will be given to factors such as noise, natural light and provision
of separate access arrangements. Parking provision for City Centre
housing schemes should be in accordance with policy CC15 below. |
| 6.53 |
Financial factors can sometimes make the
provision of housing within the City Centre difficult. It is recognised
that seeking certain levels of contributions from developers may make
schemes unviable. This will be taken into consideration when negotiating
with developers on proposals for City Centre housing. For example,
as City Centre housing often tends to be occupied by single people
and childless couples rather than families, it may be reasonable for
contributions towards the provision of educational services to be
reduced for City Centre housing schemes. |
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Loss of Housing |
| CC9 |
Planning permission will
not be granted for any proposal which would result in the loss of
residential accommodation, either through change of use or redevelopment,
in the following areas, as shown on the Proposals Map: |
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(a) |
St. Mark's Street area; |
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(b) |
Rivergate flats; |
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(c) |
St. Mary's Court; |
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(d) |
New Road/Crawthorne Road; |
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(e) |
Minster Precincts. |
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|
| 6.54 |
Existing City Centre residential accommodation
makes a valuable contribution to the life of the centre but can be
vulnerable to pressure for redevelopment. Therefore, to achieve optimum
levels of City Centre living, applications which lead to the loss
of flats and houses in the areas included in policy CC9 will normally
be resisted. |
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Opportunity Areas |
| 6.55 |
The City Centre needs continued investment
if it is to build on its current success. Opportunities for major
development in the centre are limited, but a number of locations have
been identified as having significant potential for high quality redevelopment.
The boundaries of these Opportunity Areas are shown on the Proposals
Map. |
| 6.56 |
The successful redevelopment of these
areas is crucial for the future of the City Centre. They provide an
exciting opportunity to introduce new uses, increase the quality and
range of what is on offer in the centre and generate activity. By
providing new areas of high design quality with attractive uses, the
City Centre and the City as a whole will benefit greatly. |
| 6.57 |
It is vital that the redevelopment of
the Opportunity Areas creates lively and successful areas that act
as part of the City Centre. The redevelopment of these areas must
not take place in isolation but be seen as an element in the strategy
which contributes towards the success of the centre as a whole. It
is important that they do not operate as locations separate from the
rest of the City Centre, but have high quality links to other parts
of the centre and the core in particular. Where Opportunity Areas
are adjacent to one another, they must be redeveloped in a complementary
manner with high quality links between them. |
| 6.58 |
The Opportunity Areas all have substantial
potential but are complex sites. Delivering development will not be
easy and is likely to occur over the medium to long-term. The City
Council will work closely in partnership with developers and landowners
and will consider using its land assembly powers to achieve the successful
regeneration of these brownfield sites, in accordance with Plan policies. |
|
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North Westgate Opportunity
Area |
| CC10 |
Within the North Westgate
Opportunity Area as shown on the Proposals Map, planning permission
will be granted for a comprehensive mixed use redevelopment including
retail. Housing will be required in accordance with policy H3. Leisure
uses may also be acceptable in accordance with policy CC4. The scheme
should: |
| |
(a) |
provide high quality links
to the railway station and, as far as possible, relate to redevelopment
of the Station Opportunity Area; and |
| |
(b) |
provide satisfactory vehicular,
cycle and pedestrian access to ensure the area is well integrated
with the rest of the Central Retail Area; and |
| |
(c) |
be of high design quality
integrated with and appropriate to its City Centre location; and |
| |
(d) |
retain and respect the
setting of significant buildings. |
| |
Proposals for any development
which would prejudice the comprehensive redevelopment of the Opportunity
Area will not be permitted. |
| |
|
| 6.59 |
North Westgate provides an excellent opportunity
for a major mixed use redevelopment which can greatly increase the
attractiveness of the City Centre and provide quality new retail floorspace.
Any redevelopment scheme should also include housing and leisure uses,
such as restaurants, bars and possibly a cinema. |
| 6.60 |
This will contribute greatly to the continued
success and economic viability of the City Centre and the wider image
and success of the City of Peterborough. CB Hillier Parker's study
found that a key reason for the success of many town centres is the
development of new retail floorspace closely integrated with the established
shopping core. |
| 6.61 |
The North Westgate Opportunity Area is
a 3.4 hectare site located in the north of the City Centre, bounded
by Westgate, Bright Street, Bourges Boulevard and Lincoln Road. It
is currently under-utilised, with low key and low density uses, including
a large amount of car parking. However, its close proximity to the
bus and railway stations and Queensgate shopping centre provide a
significant opportunity to improve the City Centre. |
| 6.62 |
The redevelopment of this area will make
better use of a City Centre brownfield site and visually improve an
unattractive area. A comprehensive redevelopment is sought as a piecemeal
approach is unlikely to deliver the necessary integration with the
rest of the City Centre or a unified development scheme. The phased
development of the site within a comprehensive redevelopment framework
is likely to be the most appropriate way forward. |
| 6.63 |
To make full use of the opportunity to
secure a natural extension to the retail core at North Westgate, links
to Queensgate and the rest of the retail area must ensure that movement
is easy and safe for pedestrians of all levels of mobility. Any scheme
should ensure that pedestrian and cycle movement into the development
from the residential area to the north, and through it to the rest
of the City Centre, are enhanced or new provision is made. Safe, convenient
and attractive routes for pedestrians and cyclists through North Westgate,
available for use outside shop opening hours as well as within them,
should be an integral part of the development. |
| 6.64 |
It is important that the North Westgate
and Railway Station Opportunity Area redevelopments are complementary
and that pedestrian and cycle links across Bourges Boulevard are greatly
improved (see policy CC12). Good quality links should be provided
which ensure safe and easy access for all throughout the day and night. |
| 6.65 |
A transport assessment will be required
as part of the formulation of any redevelopment proposals, which should
include, among other matters, consideration of public transport, pedestrian
and cycle access, links to the rail and bus stations, traffic circulation
and the provision of an enhanced coach park/bus layover. Due to the
site's proximity to the bus and railway stations, opportunities to
create a development which is highly accessible by public transport
should be maximised. This should be reflected in the level of car
parking provided on site. |
| 6.66 |
Development guidelines for the North Westgate
area were endorsed by Peterborough City Council Environment Committee
on 16 March 1999. This sets out the Council's position on the site
in greater detail. |
|
|
| |
South Bank Opportunity
Area |
| CC11 |
Within the South Bank Opportunity
Area as shown on the Proposals Map, planning permission will be granted
for mixed redevelopment within a comprehensive framework. Housing
will be required in accordance with policy H3. Offices, leisure and
cultural uses may also be acceptable. The redevelopment should: |
| |
(a) |
maximise the advantages
of its riverside setting and be of high design quality; and |
| |
(b) |
provide a sense of cohesion
between the various elements to give the area a sense of identity;
and |
| |
(c) |
improve pedestrian and
cycle links between the site and the rest of the City Centre and adjacent
areas, and provide pedestrian access along the river frontage; and |
| |
(d) |
provide safe and convenient
access by foot, cycle and public transport and maximise the proportion
of trips generated by these modes. |
| |
Proposals for any development
which would prejudice the comprehensive redevelopment of the Opportunity
Area will not be permitted. |
| |
|
| 6.67 |
The South Bank Opportunity Area is an
18 hectare area lying to the south of the River Nene opposite to the
Embankment. It provides an excellent opportunity for the high profile
redevelopment of a major City Centre brownfield site to create a prestigious
mixed use area, making successful use of its outstanding riverfront
location. |
| 6.68 |
Despite its prominent location, little
advantage is currently taken of the area's riverside setting and views
of the Cathedral. In addition, the area is generally under-developed,
with a number of uses which would be better located elsewhere. A high
quality redevelopment would make the most of the site's significant
potential and transform the South Bank into an exciting, well integrated
part of the City Centre. |
| 6.69 |
The size of the site and difficulties
in achieving its redevelopment mean a phased development is the most
practical way forward for the area. It may be appropriate to consider
the South Bank Opportunity Area as two main parts: |
| |
- land between the river and the railway line, which is suitable
for housing, offices, cultural and leisure uses (such as a museum,
restaurants, and bars) and ancillary small-scale retail; and
- land south of the railway line around the Peterborough United
football ground, which may be most suitable for leisure and housing
uses.
|
| 6.70 |
Although it is within the City Centre,
the South Bank is physically separated from the central area. As a
result, it is most likely to operate as a distinctive area rather
than an extension to the existing core. Redevelopment should ensure
that pedestrian and cycle links to the rest of the City Centre and
surrounding areas are substantially improved to create easy and safe
access for all. A bridge across the River Nene for use by pedestrians
and cyclists will be expected as part of any scheme. |
| 6.71 |
Redevelopment can greatly enhance use
of the site's location on the banks of the Nene. The provision of
a route for pedestrians along the length of the river frontage will
be required as part of any scheme to create an attractive, well-used
recreational feature. This should be achieved in a way which protects
and enhances the riverside area as an important wildlife habitat. |
| 6.72 |
Any scheme for the area will need to include
a Transport Assessment, make provision for improved public transport
facilities and resolve access and parking issues. |
| 6.73 |
The comprehensive redevelopment of the
northern part of the Opportunity Area is dependent on the relocation
of the milling operation and retail warehouses. The Council will consider
the regeneration of the South Bank area and the crucial role of relocation
in this as a material consideration when considering applications
to move the existing uses. Exceptionally, in appropriate circumstances,
the importance of achieving this end may outweigh other policy considerations.
|
| 6.74 |
A series of studies are to be carried
out in relation to the South Bank, for example, on transport, and
these will inform the Council's subsequent position on the area. |
|
|
| |
Railway Station Opportunity
Area |
| CC12 |
Within the Railway Station
Opportunity Area as shown on the Proposals Map, planning permission
will be granted for comprehensive redevelopment. Priority will be
given to railway operational requirements and ancillary uses. Potential
uses include a transport interchange, offices, hotel, leisure, conference
facilities and, possibly, housing. The suitability of a particular
use will depend on its location within the Opportunity Area. Developments
which would attract a significant proportion of journeys by rail may
also be considered suitable. |
| |
Redevelopment must substantially
improve the pedestrian and cycle accessibility of the station area
from Westgate, the bus station/Queensgate and adjacent areas. Vehicle
circulation and the provision of car parking for future expansion
in the use of the station must also be satisfactorily resolved. |
| |
Proposals for any development
which would prejudice the comprehensive redevelopment of the Opportunity
Area will not be permitted. |
| |
|
| 6.75 |
For many people, Peterborough Railway
Station and its surroundings offer a first glimpse of the City and
is where they form their first impressions. As a result, it is a vital
gateway into Peterborough and of great importance to its image. The
chance to redevelop this area is a major opportunity to create a high
quality landmark entrance to the City and significantly improve a
key part of the City Centre. |
| 6.76 |
The Railway Station Opportunity Area consists
of a series of sites over a large area of land around Peterborough
Station, both east and west of the railway. The area is generally
under-utilised but its excellent central location makes it an ideal
site for a major City Centre regeneration scheme. The intention to
redevelop Peterborough Station provides an opportunity to create a
station of a high quality design with a more prominent setting, which
will act both as a landmark and an attractive entry point to the City.
|
| 6.77 |
Facilities which are ancillary to the
station and other rail-related uses, such as repair, storage, parking
and mail handling are acceptable elements of any redevelopment scheme.
Uses crucial or ancillary to the operation of the railway will be
given priority. Existing land uses include the station itself, a hotel,
various Royal Mail and post office network facilities, wagon repair
sheds and depots, other industrial and warehousing uses, and car parking.
Many of these will need to be retained, but the appropriate relocation
of some may be necessary, subject to operational constraints, to achieve
a comprehensive development solution. |
| 6.78 |
An element of housing development within
the area is desirable, although it is accepted that the site has a
number of characteristics which may constrain residential use. Proposals
will need to ensure an acceptable level of amenity for residents and
that the housing is satisfactorily related to its surroundings. |
| 6.79 |
Although the Station Opportunity Area
is close to the Central Retail Area, Bourges Boulevard forms a major
barrier between them. Access, whether over the footbridge or under
the subway, is unsatisfactory and discourages movement. With the current
poor level of accessibility from the rest of the City Centre, the
site cannot be considered part of, or an extension to, the existing
retail core and the range of suitable uses is therefore restricted.
For example, retail uses should be complementary to the station and
not of a type that is more properly located in the Central Retail
Area. |
| 6.80 |
The redevelopment of Peterborough Station
and the adjacent area is crucial in creating an integrated transport
system in the City which will encourage fewer car journeys and increase
levels of walking, cycling and public transport use. Links between
the railway and bus stations should be significantly improved as part
of any scheme so that it is easy to change between bus and train journeys.
|
| 6.81 |
Any redevelopment must ensure the area
is highly integrated with the core of the City Centre and maximises
the accessibility of the station for pedestrians of all levels of
mobility at all times of the day and night. The station must be easy
and safe to reach from the City Centre and surrounding areas on foot
and by bicycle. High quality pedestrian links to Queensgate, Westgate,
Cowgate and adjacent areas are required. Cycle access should also
be significantly improved and more high quality, secure cycle parking
facilities should be provided. |
| 6.82 |
It is acknowledged that the station acts
as an important park and ride site, with many people travelling to
the station by car before continuing their journey by train. Future
increases in rail use will increase the pressure for additional car
parking. The scale and location of car parking provision will be an
important element in any redevelopment proposals, which should include
a Transport Assessment outlining how access to the station and adjoining
development by a full range of modes of transport will be provided. |
| 6.83 |
Any scheme for the area must be complementary
to the redevelopment of the adjacent Hospital Opportunity Area (policy
CC13) and the North Westgate Opportunity Area (policy CC10). All new
development in the Opportunity Area must also be sensitive to important
views of the Cathedral from the railway, in accordance with policy
CC17. |
| 6.84 |
Draft development guidelines for the station
area have been produced and were the subject of public consultation
during 2000. |
|
|
| |
Hospital Opportunity
Area |
| CC13 |
Within the Hospital Opportunity
Area as shown on the Proposals Map, planning permission will be granted
for the comprehensive redevelopment or re-use of the site. |
| |
The area would be suitable
for an educational/university facility and/or mixed use development
including housing, hotels, offices and other small-scale employment
uses, as well as small-scale leisure uses and shops to meet local
needs and community facilities. |
| |
It is envisaged that housing
will be the predominant use on the western part of the Opportunity
Area, while the eastern part may include a greater range of uses,
reflecting its more central location adjacent to the railway station.
|
| |
Proposals for any development
which would prejudice the comprehensive redevelopment of the Opportunity
Area will not be permitted. |
| |
|
| 6.85 |
The Peterborough District Hospital (PDH)
site consists of two distinct areas separated by Aldermans Drive.
The eastern site comprises the main block, outpatients, paediatrics
and Sutton Wing. The western site consists of the Maternity Hospital,
Fenland House, The Gables, School of Nursing and a variety of other
buildings partly interspersed with private property. |
| 6.86 |
The Peterborough Hospitals NHS Trust intends
to relocate facilities which are provided at the PDH to the Edith
Cavell Hospital site in Bretton (policy CF6). As a result, the PDH
sites will become available for alternative use and have been designated
an Opportunity Area to provide a general policy framework for any
redevelopment. |
| 6.87 |
Policy CC13 establishes the principle
of comprehensive redevelopment for both parts of the Opportunity Area,
although a development brief will be produced to provide more detailed
guidance on the appropriate mix of uses and other matters. This will
include the resolution of transport issues relating to Thorpe Road.
Proposals will be required to ensure that the traffic generated from
the redevelopment can be satisfactorily accommodated on the local
road network, particularly Aldermans Drive and Midland Road. |
| 6.88 |
The redevelopment of the eastern site
must be complementary to the redevelopment of the adjacent Railway
Station Opportunity Area (policy CC12) and ensure there is high quality
access between the two. |
| 6.89 |
Any scheme should also ensure the retention
of the Hospital Memorial Wing, which is identified as a building of
local importance (policy CBE11) as shown on the Proposals Map. The
design of any new development will also need to preserve the setting
of the adjacent Grade II listed Sessions House building. |
| |
Access and Transport |
| 6.90 |
Due to its central location and its role
as a transport hub for rail and bus services, the City Centre is the
most accessible part of the City by a range of means of transport.
This provides choice so people do not have to travel to the centre
by car. It allows the significant part of the population, who do not
have access to a car, to reach the centre more easily than other parts
of the City, and means that the facilities in the City Centre are
accessible to more of the population than those which are solely dependent
on car access. |
| 6.91 |
In addition, the wide range of facilities
on offer in the City Centre mean that people can take part in a variety
of activities in one trip, thereby reducing the number of journeys
which need to be undertaken in the City. |
| 6.92 |
The City Council has developed a transport
strategy as part of its Local Transport Plan which aims to: |
| |
- Have more travel choice and quality, particularly relating
to public transport;
- Offer safer travel, less transport related crime and improved
community health than at present;
- Maintain the current level of freedom of movement despite increasing
travel demand, through an increase in the proportions of trips
made by walking cycling, bus and rail travel.
|
| 6.93 |
This strategy is set out in the Council's
Local Transport Plan. Local Plan policies on access and transport
are contained in Chapter 4 - Transport. In addition, policies which
specifically relate to the City Centre are set out below. |
|
|
| |
Pedestrian and Cycle
Access |
| CC14 |
All new City Centre development
should be accessible to pedestrians of all levels of mobility and
to cyclists. Safe, high quality links should be provided to ensure
new development, particularly that in peripheral locations, is properly
integrated with the rest of the City Centre and is well connected
to adjacent areas. |
| |
Proposals for developments
which consist of a variety of elements should ensure there is a high
level of accessibility between them. |
| |
|
| 6.94 |
It is important that new development acts
as part of the City Centre and contributes to its sense of coherence.
Policy CC14 aims to ensure that new development is well linked to
the rest of the centre for pedestrians and cyclists. This can be achieved
in the form of physical improvements to pavements, signposting or
crossings, more general environmental enhancements or other suitable
measures. Policies T1, T3 and T5 in Chapter 4 - Transport explain
how the Council will seek to implement these improvements. All new
developments should be as accessible to people with impaired mobility
as to other pedestrians. |
| 6.95 |
The policy also aims to secure good connections
between City Centre developments and adjacent, predominantly residential,
areas. This is especially important for major schemes in more peripheral
areas, such as the Opportunity Areas discussed above, particularly
those which are separated from the retail core by Bourges Boulevard. |
| 6.96 |
It is important that improved access for
cyclists is supported by high standard cycle parking at their destination.
New City Centre development should provide appropriate cycle parking
in accordance with policy CC16 below. |
|
|
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Car Parking |
| CC15 |
Within the City Centre,
the provision of car parking spaces to serve a proposed or existing
development will not be permitted where alternative off-street spaces
are available. Where this is not the case, the number of new car parking
spaces should be that which serves operational requirements and the
needs motorists with mobility difficulties. Measures to improve accessibility
by means of transport other than the car should be provided in preference
to new car parking. |
| |
Opportunities for shared
use of existing car parks should be investigated before new parking
is provided. Where practicable, new parking should serve the centre
as a whole throughout the day and not be reserved for use in connection
with an individual development. |
| |
|
| |
6.97 Policy CC15 sets out the City Council's
car parking policy for the City Centre. Cycle parking policy for this
area is covered in policy CC16 below. Car parking at locations outside
the City Centre is dealt with by policy T10. |
| |
6.98 The provision of good quality car
parking can add to the vitality and viability of the City Centre.
The Council recognises the importance of achieving a balance between
parking supply and the commercial success and environmental quality
of the central area. It does not want its car parking strategy to
put the City Centre at a disadvantage compared to out of centre locations
or increase congestion resulting in poorer air quality. |
| 6.99 |
With better use of existing parking spaces
and continuing improvements to accessibility by public transport,
walking and cycling, new car parking provision in the City Centre
can be lower than that expected elsewhere without putting the centre
at a relative disadvantage. In addition, if developers of City Centre
schemes are freed from providing unnecessary car parking, the centre
is likely to benefit economically, as more efficient use can be made
of scarce City Centre land. |
| 6.100 |
Within the City Centre, the Council will
support better use of existing car parking spaces and improvements
in access to public transport, walking and cycling in preference to
new parking provision. No new car parking will be permitted where
there is alternative off-street space within reasonable walking distance
for the use concerned, and available to meet its needs at the times
required. Opportunities to share the use of car parks should also
be investigated, particularly in car parks which frequently have unoccupied
spaces or where uses may create demand for spaces at different times
of day (for example, offices and leisure). |
| 6.101 |
A Transport Assessment must be carried
out to fully justify any parking spaces proposed within the City Centre
in instances where alternatives are not appropriate and new spaces
are required. Provision should not exceed the operational requirement
of the use and that which meets the need of motorists with mobility
difficulties. Policy T11 sets out the City Council's standards for
the latter, unless it can be demonstrated that there are adequate
communal spaces nearby for people with mobility difficulties. Operational
requirements are not to be taken as including any provision for visitor
parking. |
| 6.102 |
Operational parking does not solely include
spaces for the servicing of the use but can also include staff parking
essential to the operation of the business. "Essential" does not relate
to the position or role of members of staff but is intended to cover
those who must have easy and convenient vehicular access to the premises
throughout the working day in order to carry out their jobs effectively.
The extent of any parking provision that may be acceptable will be
determined on a case-by-case basis, according to the size and nature
of the business. The City Council will produce a guidance document
explaining how the number of on-site and off-site spaces that may
be acceptable will be calculated. For office developments, this document
will include a maximum figure expressed as the number of spaces per
gross floorspace, which will be used as a starting point for discussions
with applicants. Supply in excess of this will be permitted in exceptional
circumstances, only where there is a demonstrable need for it, or
where it would serve the town centre as a whole. |
| 6.103 |
Where appropriate, the City Council will
seek a commuted sum from developers which will be used to make improvements
to walking, cycling and public transport. In certain circumstances,
contributions towards off-site car parking provision may also be appropriate.
Payments will be calculated with reference to the floorspace of the
development. The results of a Transport Assessment and the contents
of a relevant Travel Plan will be used to inform any calculations. |
| 6.104 |
Unless there is an overriding highway
safety justification, the provision of car parking will not be required
for housing development within the City Centre. Innovative car-free
schemes, where no parking is provided as residents agree not to own
a car, are likely to be looked upon favourably. However, it is recognised
that some car parking for those living in the centre may be desirable.
In such circumstances, as with other uses, agreements involving the
shared use of nearby car parks should be sought in preference to new
provision. Where this is not possible, no more than one space per
dwelling will be permitted. |
| 6.105 |
Applications for new car parks not directly
associated with a development will be assessed against policy T20
in Chapter 4 - Transport. |
|
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Cycle Parking |
| CC16 |
New City Centre development
should provide secure, safe, convenient and high quality parking for
cycles in accordance with the minimum standards set out in Appendix
IV. Spaces for employees should be provided on-site. Payment towards
the provision of communal cycle parking available to all City Centre
users will normally be accepted through planning obligations in lieu
of dedicated on-site provision for customers or visitors. |
| |
|
| 6.106 |
The availability of high quality parking
for cycles is crucial in encouraging more people to cycle to the City
Centre. All non-residential City Centre development schemes should
contribute to cycle parking in accordance with CC16. (Cycle parking
outside the City Centre is covered by policy T9.) |
| 6.107 |
In many cases, it will be appropriate
for new cycle parking for customers/visitors to be made available
to all users of the City Centre rather than being restricted to the
users of a single development. If appropriate, the Council will accept
payment towards high quality communal cycle parking in lieu of dedicated
customer/visitor provision. |
| 6.108 |
Where provision is made on-site, cycle
parking should comprise either cycle lockers or Sheffield stands or
equivalent. They should be located reasonably close to the building
entrance, and be secure, lit, covered and accessible direct from a
cycle route where possible. For development with significant transport
implications, Travel Plans should seek to provide lockers, showers
and changing facilities for staff. |
| |
Design and Townscape |
| 6.109 |
If the City Centre is to remain an attractive
place and continue to give a positive image to those living in, working
in and visiting the City, it must offer a safe, attractive and welcoming
environment. Therefore, development in the City Centre should be of
a high quality design appropriate to its surroundings. |
| 6.110 |
The Plan's policies in relation to design
and the built environment for the whole of the District are contained
in Chapter 9 - Design and Amenity and Chapter 10 - Conservation of
the Built Environment. The design and townscape policies set out below
relate specifically to the City Centre, unless otherwise indicated. |
| |
Design |
| 6.111 |
New development must respect its context.
However, this should suggest sensitive design rather than the copying
or pastiche of existing buildings. It is recognised that high quality
modern buildings and innovative or unusual designs may also add much
to the townscape and character of the City Centre. The City Council
will expect the highest quality design for schemes in the City Centre,
in line with policy DA1. |
| 6.112 |
Much of the City Centre falls within the
City Centre Conservation Area. Development in and around this area
must preserve or enhance its character or appearance in accordance
with policy CBE3. |
|
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Cathedral Views |
| CC17 |
Planning permission will
not be granted for any development, whether located within the City
Centre or elsewhere, whose height, location, design or bulk would
unacceptably detract from views of the Cathedral or its setting. |
| |
|
| 6.113 |
Peterborough has developed around one
of England's great cathedrals. The Cathedral remains the most architecturally
and historically important building in the City as well as being one
of the most prominent visually. It contributes enormously to the image
and character of Peterborough and its centre. |
| 6.114 |
We have a duty to protect the historical
legacy we have inherited for future generations. To this end, the
City Council will not allow development, wherever located, which would
detract from views of the Cathedral or its setting. Views from the
north and south/south-east across open space are of particular importance
in townscape terms. |
|
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Public Spaces |
| CC18 |
The City Council will require
large-scale development schemes in the City Centre to include attractive
outdoor spaces available for use by the general public. |
| |
|
| 6.115 |
Public spaces provide people with an opportunity
to sit and spend time in an area, whether to meet, rest, talk or eat
lunch, and act as a location for public events and activities. They
can contribute greatly to a place's vitality and attractiveness. |
| 6.116 |
Cathedral Square and Bridge Street serve
this role, but overall there are a limited number of such public spaces
in the City Centre. This may lead to people spending less time in
the centre than would otherwise have been the case, which can impact
on the liveliness of the centre and its economic performance. |
| 6.117 |
The Council wishes to see more spaces
for the public in the City Centre and will expect their provision,
where possible, as part of large development schemes, such as the
redevelopment of the designated Opportunity Areas. Such spaces should
be easily accessible, safe and well designed to provide attractive
locations for public interaction. They should use high quality materials
and street furniture and reflect their location. The City Council
will also seek to negotiate satisfactory arrangements for the management
and maintenance of these outdoor places. |
|
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Outdoor Seating Areas
|
| CC19 |
Proposals for outdoor seating
areas associated with A3 uses in the City Centre will be permitted
provided that they: |
| |
(a) |
would not have an unacceptably
detrimental impact on the safe and efficient flow of pedestrians;
and |
| |
(b) |
would not have an unacceptably
detrimental visual impact on the centre or in any other way adversely
affect amenity; and |
| |
(c) |
are adequately related
to the premises from which the service would be provided. |
| |
In considering whether a
scheme meets criteria (a), particular regard will be paid to the effect
on the ease and safety of movement for people with visual impairments
and mobility difficulties. |
| |
|
| 6.118 |
The use of pavement seating can add to
the attractiveness of the City Centre, enhance the range of facilities
on offer and increase vitality. The City Council wishes to encourage
the provision of outdoor seating areas associated with food and drink
outlets in line with policy CC19. |
| 6.119 |
However, it is important that the provision
of seating on pavements does not disturb neighbouring businesses,
either through noise, litter, or by causing an obstruction which prevents
pedestrians reaching their premises. Proposals must also ensure that
pedestrian movement is not significantly disturbed or safety hazards
created and should consider the needs of people with disabilities.
The City Council will seek to negotiate satisfactory arrangements
for the management and maintenance of these outdoor seating areas. |
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