| 24.1 Wednesbury is an important centre serving a substantial local population, but which has declined in recent years despite investment in retail sites, the market, pedestrianisation, and the general environment. A detailed retail analysis of Wednesbury carried out in 1994 confirmed the view of the town as a declining District Centre trading on the margins of viability, with many retailers not achieving satisfactory levels of profitability, and no multiples seeking to locate there. The fundamental problem was seen to be the limited size of the market, which did not support the large number of shops that the town has. This problem was exacerbated by the large number (170)of small shop units (even the largest is only 1,470 sq.m. (15,800 sq.ft.)), the incoherent layout of the centre (no focal point, geographical spread of shops), the poorly located market, and the lack of other town centre activities which might attract people. On the positive side, there was good access by public transport, environmental improvements had contributed a measure of confidence, the market attracted visitors, there is a residential community within walking distance, and there are still plenty of potentially attractive and characterful parts of the town.  24.2 In the 1995 Plan, the decline of the centre was attributed to a combination of pressures from major new retail developments elsewhere and the lack of growth of the local population. Significant retail growth in Wednesbury during the plan period (1991-2001)was seen as unlikely, and a strategy of consolidation was adopted. A primary shopping area was defined, together with a business area and a Conservation Area. Sites for retail, business, or office uses were identified in the central area, and sites for housing development on the fringe of the centre. Environmental improvements were proposed throughout the centre. 24.3 Since the mid-1990s, there has been little change within the town centre, but some significant developments outside it. On the retail front, there are major foodstores located within 3 kilometres of the centre: Morrisons at Walsall (3,900 sq.m.: 42,000 sq.ft.), Asda Tipton (4,436 sq.m.: 47,700 sq.ft.), and Asda Great Bridge (4,650 sq.m.: 50,000 sq.ft., with permission for a further 930 sq.m.: 10,000 sq.ft.). Asda at Darlaston has closed down. The Axletree Way development now has large stores for Ikea, B &Q, Curry's, and PC World. 24.4 On the transportation front, there are a number of positive developments: the Black Country New Road has been completed, opening up sites for business and other uses, such as fast food. The Midland Metro is now operational, with stops at Wednesbury Great Western Street (350m from the centre) and Wednesbury Parkway (on the Black Country New Road). The location of the Bus Station encourages public access. On the other hand, the road pattern is complicated and tends to discourage passing traffic from stopping, contributing to the isolation of the centre. The traffic, which does enter the town centre for shopping or servicing is in conflict with pedestrians. Furthermore, there is a need to upgrade the bus station and to improve the pedestrian links across the roads around the centre, such as the link to the Metro and the Town Hall complex. 24.5 Responses to the UDP Policy Direction paper indicate that the view of Wednesbury as a centre in decline is shared by much of the business and residential community. Representations were received about the number of empty shops, the general air of decay, the possible relocation of the Market, the need for retail redevelopment, the value of protecting the heritage of the centre, and the desirability of ‘town management’. The Council recognises the value of developing the partnership with the business and residential communities in order to achieve realistic and sustainable strategies for the town. The Council will continue its dialogue with such organisations as Wednesbury 2000 and Wednesbury Traders Association. 
24.6 Wednesbury is a shopping centre that has been trading on the margins of viability for some time. The perception of shoppers, traders, and local organisations, appears to be that the town has little attraction for shoppers other than those who live very locally, and offers a poor shopping experience, with a large number of empty shop units (32 out of 175 in January 1999, 18%), some prominent ‘eyesores’, and no major foodstore. 24.7 Clearly, Wednesbury needs to attract investment if it is to be considered as one of the Borough's Town Centres, rather than a District Centre. There are crucial questions to be answered: - Firstly, is there is a catchment area large enough to justify a major foodstore in Wednesbury?
- Secondly, will a major foodstore provide sufficient impetus to attract other investment?
- Thirdly, is there a suitable site within the Town Centre?
24.8 Firstly, it is considered that there is a sufficiently large catchment area around Wednesbury to justify a major foodstore. The local resident population has increased in recent years through new developments, many within walking distance of the centre. This has helped to increase the catchment, but, more significantly, a retail study of the Borough carried out in 1999 provides up to-date information on the current and potential role of Sandwell's centres, and the scale and type of development appropriate to them. The study confirms that food retailers in Wednesbury are failing to attract significant expenditure to the Town Centre. Whilst they retain 19% of available expenditure, four other foodstores elsewhere attract 54%. Market shares for other goods follow a similar pattern. The study states that if no development takes place in Wednesbury, its market share will continue to erode.A key priority should be to improve the town's retail offer for convenience goods through the development of a large foodstore. 24.9 The second question relates to whether a major foodstore will provide sufficient impetus to attract other investment. The 1999 retail study notes that food retailing is an important element in a town of Wednesbury's size, and considers that a well integrated foodstore development is likely to contribute significant levels of spin-off trade to other parts of the town centre, thereby helping to increase trade retention in other goods categories. A further retail study has been commissioned in 2000 to further refine the details of the retail need. 24.10 Given the justification for a large foodstore in Wednesbury, and its likelihood of retaining and attracting trade in the town, the final question relates to the provision of a suitable site. This is a difficult issue in Wednesbury. The town centre is not compact, and lacks a real focal point. Its numerous small shops are stretched mainly along Union Street, Upper and Lower High Street, and Market Place. The larger shops are not all in the same street, whilst the Union Centre and the Market are located at the fringes. Their locations do not maximise their contribution to the operation of the rest of the town. Existing development opportunities are limited to the vacant small shop units, and a few small sites that are vacant or underused. 24.11 The strategy for Wednesbury Town Centre includes provision of a large foodstore. This is intended to improve its convenience goods trade and to increase the levels of spin-off trade that will benefit the rest of the town centre. Any such development must be located within the retail core of the town centre, and complement the existing functions of the town centre and integrate physically with it, in order to enhance its vitality and viability. The development of a large foodstore within the town centre will provide opportunities to redesign the fragmented centre, by improving focal points, pedestrian flows, car parking and servicing arrangements, as well as the overall environment. 24.12 In order to assemble a site for a large foodstore of up to 3,252 sq.m. (35,000 sq.ft.) net in the town centre near to the retail core, it is necessary to identify sites occupied by other uses, including current retail uses. The preferred site is to the south of Union Street, comprising the Union Centre, council housing on Camp Street and Camphill Lane, the Market building and car park, and other uses including the Housing Office, a garage/filling station, and a car sales site. 24.13 The advantages of this site are that it offers the redevelopment of both the under-trading Union Centre, and the poorly located Indoor Market. The Market building is located at the rear of the shopping streets in an unattractive functional building. The Tuesday bric-a-brac market currently attracts in the region of 80 stalls, and is trading relatively well. However, the Friday and Saturday traditional fruit and veg. market attracts approximately 25 stalls, and has been under-trading for some time. Both traders and shoppers have voiced opinions on the relocation of the market in order to improve its pedestrian trade and attractiveness. Its relocation to, say, Union Street/Market Place is a feasible proposition if allied to adjustments to the road layout in that area. Other options would include a market being developed within or adjacent to any major retail development in the centre. 24.14 The disadvantage of the site might be the replacement of popular housing for elderly persons. The replacement of the elderly persons housing is a vital part of assembling a large enough site for an anchor foodstore, but there is a need to ensure the provision of good quality well-located replacement homes for the people affected. There are residential sites being developed off Lower High Street, which might offer some alternative housing close to the centre, but it is likely to be the case that further specific provision would have to be made. 24.15 It is acknowledged that the provision of a large foodstore requires an extensive land assembly programme and appropriate partners to secure development. If it is apparent during the early part of the plan period that development based on a large store will not be secured within the town centre, alternative options will be explored, including the provision of smaller retail units. 24.16 Support will not be given for alternative proposals that involve the provision of a larger store or other retail development outside the defined town centre boundary as this would have a potentially serious impact on the vitality and viability of the centre. 24.17 With regard to complementary policies for the Town Centre, the retail core is revised to exclude Upper High Street and include a site for a large foodstore. The remainder of the town centre, primarily Upper High Street, Lower High Street, and part of Market Place, is effectively a mixed-use area, and is now designated as Mixed Use in order to continue to encourage other suitable uses here whilst encouraging new retail investment in the retail core. Both the Conservation Area Policy and the Local Policy on Townscape have been important in ensuring that proposed changes to buildings have maintained or enhanced the character of this part of the town. Any proposals for redevelopment will be assessed using the criteria contained in the Development Control Policy DC8 for Development in Conservation Areas and Areas of Townscape Value, together with the Policies on Shop Front Design and Design &Installation of Roller Shutters. As this Inset falls within an Area of Potential Archaeological Importance, any proposals will be assessed against the policies for Conservation and Heritage within Part One of the UDP, in particular Policy C11 Archaeology and Development Proposals. It will also be appropriate to liaise with the Borough Archaeologist before submitting any applications for planning permission. Local Policies on environmental improvements and car parking are retained in an amended form.
Wednesbury is designated a Town Centre within which major retail development will be concentrated. 24.18 Wednesbury is an important centre providing a substantial local population with shopping and services, and acting as a focus for the community and public transport. In view of Wednesbury's decline relative to other centres, it is necessary to encourage investment appropriate to a Town Centre. Wednesbury was previously considered to be a District Centre, along with 13 others in the Borough; within the revised retail hierarchy, Wednesbury is considered to be a Town Centre, and already has most functions and activities in place. However, further investment is needed to fully attain Town Centre status, principally a large foodstore/supermarket. 24.19 In broad terms, policies for Wednesbury Town Centre are intended to encourage suitable investment by defining the Town Centre and Retail Core, identifying a site for redevelopment, retaining policies on townscape and environmental improvement, and maintaining and enhancing public transport links. The Town Centre boundary is defined on the Inset Plan.
Retail uses will be encouraged to locate within the defined Retail Core. Changes of use at ground floor level from retail (Class A1) to non-retail uses (e.g. Class A2) will be resisted unless it can be demonstrated that such proposals would not unacceptably weaken or undermine the dominant retail function or activity of the centre. Any proposal for change of use to a use falling within Class A3 will be assessed with regard to impact upon the dominant retail function and activity and its effect on the vitality and viability of the centre. The use of storeys above the ground floor for offices or residential purposes will be encouraged where appropriate. 24.20 It has been noted already that the town centre is not compact, and lacks a real focal point. Its numerous small shops are stretched mainly along Union Street, Upper and Lower High Street, and Market Place. The larger shops are not all in the same street, whilst the Union Centre and the Market are located at the fringes. The purpose of redefining the retail core is to encourage retail provision to concentrate in a specific area. The boundary is now drawn around the site identified for major retail development south of Union Street, and excludes Upper High Street.
A range of retail, commercial, residential, service uses and other non-shopping uses appropriate to a town centre will be encouraged to locate in appropriate parts of the Mixed-Use Area. Major new shopping developments will be resisted in this area unless it is evident they cannot be located within the Retail Core. No action will be taken to remove existing retail uses in this part of the centre, and proposed improvements and minor extensions will be considered on their merits. 24.21 To complement the concentration of retail uses within a more tightly defined retail core, a range of other uses will be encouraged in the adjacent areas. Both Upper High Street and Lower High Street have a high vacancy rate, a marginal trading position, and a number of non-shopping uses, mainly offices. Alternative uses will therefore be sought which are compatible with a town centre, and, in much of the area, with the Conservation Area. Many of the properties may be suitable for conversion to town centre residential accommodation, whilst office and service uses may be more appropriate in other parts. 24.22 The suitability of proposed uses will be assessed with reference to design, security, management, and effect on other occupiers and users. Proposals will need to fit in with, or be complementary to, their surroundings, and not detract from local character or amenity. The area is well-served by public transport (bus and Metro) and would benefit from a flexible approach to standards such as parking and building density, in order to achieve a mix of, say, commercial and residential uses. Residential uses at ground floor level in Market Place and 28-46 Lower High Street will be resisted in order to retain active frontages in this area of character. Frontages that are not close to the Market Place may be suitable for residential or other uses, subject to considerations of local amenity and character. 24.23 Given its marginal trading position and physical separation from the central area, 31-43 Upper High Street is considered a suitable opportunity for conversion of existing properties to residential use or for new residential development in keeping with a town centre environment.
The existing Market Place Conservation Area is retained in recognition of the special quality and interest of the area. The following guidelines are laid down in order to ensure that new development and refurbishment schemes enhance the character and attractiveness of the Town Centre. - The sense of enclosure in the Town Centre is a quality which new development should respect and enhance. Existing building lines fronting onto pavements in Market Place, Upper and Lower High Street and Walsall Street should generally be adhered to.
- The intricacy of the centre's rooflines is a quality which needs to be complemented by new development. Variations in the height of adjoining buildings and within individual schemes will be encouraged. New infill development should be at least 2 storeys high and variations in height between adjoining buildings being achieved in a progression of no more than one storey at a time. Development being more than 4 storeys in height will not be permitted. Larger infill developments should strive to break up their mass with variations in height in a way that complements the rhythm set up in the sequence of adjoining buildings.
- Roofing should be pitched using plain clay tiles or slate.
- The dominant facing material should be brown/red brick but this should be relieved by the use of contrasting patterning in the brickwork, the introduction of string and dentil courses, and by use of appropriate windowsills and lintels. The use of sandstone detailing on new developments will be encouraged where appropriate.
- New development should be designed so that all elevations which are visible from public places should enhance the interest, appearance and character of the area through the use of materials and features, and through their mass and scale. Prominent corner or gateway sites in the centre should be developed in a way that reflects their visual importance. This applies particularly along main pedestrian routes in the centre and those routes linking Wednesbury Town Hall to the bus station and Market Place.
- Within the Retail Core and Mixed-Use Area the window to wall ratio and dimensions should be similar to that of existing buildings in the locality. Ground floor elevations fronting onto pavements should be dominated by windows. Where the nature of the use makes this inappropriate, blank walls should be interrupted by using architectural detailing/decoration or artwork in a way which protects the continuity of shop frontages.
- Large scale new developments should be broken up visually to reflect the existing multitude of smaller scale properties which exhibit a wide range of styles.
- Advertisement hoardings within and around the town centre will not be permitted. The removal of existing hoardings will be encouraged as redevelopment, refurbishment and other initiatives proceed. The provision of other advertisements will be considered on their merits.
24.24 Wednesbury portrays the characteristics of a ‘typical’ Black Country town and contains some listed buildings and a Conservation Area based around Market Place. The majority of buildings are simple red brown brick buildings with slate or tile roofs. The real merit is their group value, the characteristic collection of 19th Century buildings, and the policy seeks to retain these characteristics when new development takes place. (See also Policy C3 Conservation Areas, Policy UD2 Design Statements and Development Control Policy DC8 Development in Conservation Areas and Areas of Townscape Value.) 24.25 Advertisement hoardings provide a negative image especially on the periphery of the centre. The intention is to discourage the provision of hoardings that detract from the centre's appearance and reduce the excessive number that already exist.
Encouragement will be given to the refurbishment of premises and measures that aid pedestrian movement, improve servicing and provide other environmental improvements, including hard and soft landscaping. 24.26 The strategy for the Town Centre is based on improving the quality of retail provision by attracting a large foodstore. This would involve the redevelopment of some existing retail provision and other land uses, which will provide the opportunity to improve some of the vacant and underused sites around the town centre to complement the new development. A major redevelopment of this nature could entail the relocation of the indoor market to either Union Street or Market Place, or other location, and this would have to be accompanied by measures to enhance pedestrian movement and the general environment. 24.27 Proposals by Centro to improve the bus station will allow the opportunity to improve a prominent entrance to the Town Centre, through environmental upgrading, safer vehicle movements, and improved facilities for users of the bus station. 24.28 One of the main environmental problems is caused by the excessive number of vehicles within the centre. In certain locations, especially in Union Street, this causes conflicts between pedestrians and vehicles. However, at present there is inadequate rear servicing which results in deliveries being made to the front of shops. In addition the high level of on-street parking is caused, in part, by the lack of car parks in suitable locations. Major retail development allows the opportunity to revise servicing and parking arrangements, which would help to relieve environmental problems in the shopping area.
Improvements to public transport, walking, and cycling provision will be encouraged, particularly where major developments are open to the public or generate commuter trips. Existing levels of permanent off-street parking for shoppers will be maintained. Where such car parks are developed for other purposes, alternative sites will be sought from the developer. 24.29 National planning policy seeks to increase the usage of public transport to access town centres, in order that the number of journeys made by the private car can be reduced. The Metro stop is perhaps too far (350m) from the town centre to make a major impact in this respect, although an improved bus station will support public transport usage. The policy on car parking seeks to maintain the existing supply of car parking in the town centre, for shoppers rather than for commuters, but not necessarily to increase it. 24.30 In the case of a major new retail development, which is likely to attract extra visitors and traffic, it will be necessary for the proposal to demonstrate the provision of sufficient car, cycle and motorcycle parking for shoppers, and to facilitate links with public transport and pedestrian facilities, including access for people with disabilities. Car parking provided as part of this development would need to be made available to shoppers visiting the Town Centre, and will need to be managed accordingly. 24.31 If the Market is relocated to Union Street/Market Place, a pedestrian priority area would almost certainly be needed, and will require further detailed examination. 24.32 Road improvement lines around the town centre have now been revoked, and traffic restraint measures have been implemented on the A41 since the opening of the Black Country New Road. Major improvements to road access around the town centre will now only occur where development takes place, such as a major retail development, which would entail appropriate improvements to the road access around the site. 24.33 It is proposed that the link between the Metro stop at Wednesbury Great Western Street and the town centre, along Victoria Street, is improved to make a safe and attractive pedestrian route. This could comprise a mixture of lighting, environmental improvements, highway and pavement improvements, and public art measures. It may be necessary to consider further measures to improve pedestrian crossing facilities at Holyhead Road, perhaps in conjunction with the proposed retail scheme, or the development of the Town Hall complex.
Union Centre/Wednesbury Market and adjacent land Site Area: - 2.9 hectares (7.2 acres) approximately
Allocation: 24.34 A key priority for Wednesbury is to improve the town's convenience goods retail offer through the development of a large foodstore, on the basis that a well integrated foodstore development is likely to contribute significant levels of spin off trade to other parts of the town centre, thereby helping to increase trade retention in other goods categories. 24.35 Development of the site will depend upon the successful relocation of the Market, and may also require demolition of existing housing. This housing for elderly people is popular and well located for the town centre and bus station. A decision on the need for demolition will only be taken once the appropriate scale and form of retail development has been determined. Options for relocation of the Market include outdoor locations at Market Place or Union Street which would entail traffic management and stall management and maintenance costs. Other options with a major retail development and bus station improvement would include a permanent market in a location that took advantage of pedestrian flows through the retail core. These options will need careful consideration with market stall-holders. 24.36 It will be necessary for any proposal to demonstrate the provision of sufficient car, cycle and motorcycle parking for shoppers, and to facilitate links with public transport and pedestrian facilities, including access for people with disabilities. Car parking provided as part of this development will need to be made available to shoppers visiting the Town Centre, and will need to be managed accordingly. 24.37 It is important that development on this site complements and integrates with the town centre. This will help to avoid further spread of the town centre and to create an attractive entrance to the centre. A more detailed planning brief will be prepared to guide an appropriate form of development on the site.
Lower High Street/Holyhead Road
Site Area:
- 0.54 hectares (1.33 acres) approximately
Allocation:
24.38 This site comprises the site of St. John's Church and the Police Station, both now demolished. The graveyard has also been cleared. A planning brief has been prepared for the site, indicating the acceptability of a mix of elderly persons’ accommodation and low rise flats, and detailing arrangements for highway access, open space and amenity features, and design issues.
Station and land adjacent, Dudley St./Loxdale Street Site Area: - 0.43 hectares (1.06 acres) approximately
Allocation: 24.39 The existing bus station is considered to be inadequate, with no facilities for passengers or crew, and no layover space. Centro have indicated their intention to improve the bus station on its existing site, and to extend it on land adjacent, currently occupied by caravan sales and a car park. Proposals for the improved bus station need to integrate with the proposed redevelopment of the Union Centre, and to improve pedestrian linkages with the town centre, and across Holyhead Road. The proposals need to take account of the prominent position of the bus station at the entrance to Wednesbury Town Centre, and ensure that improvements are made in design and environment.
Town Hall Complex, Holyhead Road Site Area: - 0.37 hectares (0.91 acres) approximately
Allocation: 24.40 The Town Hall Complex comprises the Town Hall, Art Gallery & Museum, Council administrative offices, and clinic, the disused Adult Education Centre, Post Office, and Dance Academy. This complex of buildings offers the opportunity to consolidate civic and community provision in one location in the town, and there are currently a number of proposals being investigated that, if successful, would result in the relocation of some existing services and the provision of new services and activities. Proposals for refurbishment need to take account of the overall appearance of the Holyhead Road frontages, and of the Listed Building status of the Art Gallery & Museum. Greater public access to the Town Hall complex will need consideration of improved pedestrian access across Holyhead Road (already subject to traffic restraint measures following the opening of the Black Country New Road). The issue of car parking provision needs to be addressed. There is currently limited public car parking in the vicinity. New users in the complex will be encouraged/required to develop ‘green ’ commuting plans, such as Business Travelwise, given the good public transport access by bus and Metro.
31-43 Upper High Street Site Area: - 0.23 hectares (0.58 acres) approximately
Allocation: 24.41 31-43 Upper High Street is considered a suitable opportunity for conversion of existing properties to residential use or for new residential development in keeping with a town centre environment. Upper High Street is not within the retail core, and has a marginal trading position; it is part of the Mixed-Use Area. A number of properties have been vacant for long periods. The possibility exists for conversion of existing properties to residential use, or for new development to take place.
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