Shopping and the Role of Centres

Introduction and Policy Aim

6.1 For some years there has been considerable debate about town centres and out of centre shopping. In recent years the debate has swung more fully in favour of existing town centres and the need to maintain their vitality and viability. At the same time the concept of sustainable development, which emphasises the role of centres, has also become more fully incorporated into all planning policy. These shifts in emphasis mean there is now an opportunity for the UDP to further promote the focus for a range of activities, particularly retail, service and social/leisure.

6.2 There have been major changes in retailing over the last two decades. New facilities and new forms of retailing have emerged which have tended to reduce the role of existing centres. The growth of Merry Hill shopping centre is perhaps the most obvious change in the conurbation. These have, without doubt, had a dramatic effect on many of the been a growth in pressure for out-of-centre retail parks. There have also been changes in other traditional ‘town of-centre multiplex cinemas and leisure parks, which have led to the decline of town centre facilities.

6.3 West Bromwich remains the principal centre within Sandwell for all forms of shopping. However, in a regional context it has lost out as a comparison shopping destination over recent years to neighbouring centres, particularly Walsall, Birmingham and Merry Hill. Wednesbury, Cradley Heath and Cape Hill have also experienced some decline, which is perhaps attributable to their lack of a major food-store to anchor their overall retail offer. There has also been a decline in the role of some of the smaller centres in Sandwell, for example Old Hill.

6.4 The news has not all been bad, however, and the past two years have seen the opening of new developments in Blackheath and Great Bridge. Also, a multiplex cinema on the edge of Oldbury town centre has recently received planning permission. Generally, Sandwell has been quite successful in resisting out-of-centre developments, and most of its centres remain reasonably robust.

6.5 The aim of the policy is to promote a range of centres which provide for the for example the rise of shopping, leisure, cultural, service, social and community needs of all the residents of the Borough. The facilities necessary for this will be focused in existing centres, which are accessible by a range of means to the existing and future catchment they serve. Centres will be promoted as the focus of a sustainable approach to land use.

Current Policy Guidance

6.6 Government guidance on retailing and town centres (PPG6) now strongly supports existing centres. Major retail or leisure development will be expected to locate in town centres unless it can be clearly demonstrated that there are no sites reasonably capable of accommodating the development within a centre. If there are no such sites available, then edge-of-centre locations should be considered. Only if there are no suitable town centre or edge-of-centre sites available should out-of-centre locations be considered acceptable, and then these should have good public transport links. This is termed the sequential approach to site selection, and it applies not only to developers, but also to local authorities, which should adopt this approach in identifying sites for development to meet the Borough’s future retailing needs. Out-of-centre proposals that damage the vitality and viability of centres should be resisted, whilst development that gives greater choice to customers in locations well served by public transport, i.e. in town centres, will be encouraged.

6.7 National policy promotes town centres as the focus for a range of activities. Housing, small businesses, offices, leisure, cultural and social facilities could help restore vitality to the town centres, making them the hub of the community and promoting activity throughout the day and evening.

6.8 Focusing activity in town centres can also help reduce the length and number of car journeys and encourage the use of public transport, cycling and walking.

6.9 Regional Planning Guidance for the West Midlands emphasises the importance of town centres and notes that development plans should aim to maintain the vitality and viability of town centres. Local authorities are urged to encourage diversification within town centres and to consider traffic and car parking issues.

6.10 The Community Plan seeks to promote Sandwell’s town centres as foci for community activity and to foster community identity. The Community Plan, in particular, refers to developing West Bromwich as the main centre in the Borough.

6.11 The need to encourage sustainable development has highlighted the importance of local and neighbourhood level facilities to provide for all the community.

Retail Study

6.12 CB Hillier Parker was commissioned to carry out an assessment of Sandwell’s retail provision, examining, in particular, the current and potential role of each of Sandwell’s centres. The report of this study was published in January 2000. Its main recommendations are summarised below:

• revise the current hierarchy to a four tier retail hierarchy;
• include ‘need’ as a criterion of the Borough’s retail policies;
• include a policy applying the principle of the sequential approach;
• review current retail core boundaries to protect the centres;
• recognize the limited need and demand to accommodate significant new comparison goods floorspace (apart from in West Bromwich);
• seek to maintain and improve the range of convenience shopping facilities in district centres;
• promote service uses to contribute to vitality and viability of centres;
• develop policies aimed at enhancing the viability of local centres and improving their physical environment.

Policy SRC1 - HIERARCHY OF CENTRES

The Council will seek to ensure that appropriate new developments that attract many trips are located within a defined centre of appropriate scale and function. To this end a four-tier hierarchy of Sandwell’s centres has been identified. The four levels of the hierarchy are the Main Town Centre; Town Centres; District Centres; and Local Centres. This hierarchy will be used in assessing whether an applicant has adopted a sequential approach to site selection.

In addition, Sandwell has a large number of local shopping areas and parades of shops outside centres, which will be fostered and protected in order that a range of local shops and services are accessible, especially to those who do not have access to a car.

6.13 A network of centres across the Borough helps to provide the appropriate level of shopping, leisure, services and other community activities in locations that meet people’s need in the most efficient and sustainable way. A range of centres should ensure that less mobile people are not disadvantaged and that multicultural needs are provided for.

6.14 A hierarchy provides clear guidance about the role of each centre in this network; focuses major development in the higher order centres; and ensures that proposals which come forward for smaller centres are appropriate for their role.

6.15 It is acknowledged that development and changes in the market mean that the role, function and relative importance of centres may change over time. It is important, therefore, that the hierarchy be kept under review.

6.16 A description of the hierarchy is set out below:

Policy SRC2 - NEED AND THE SEQUENTIAL APPROACH

6.17 In allocating sites for retail and leisure development in this plan, the Council has carried out an assessment of need for various types of provision, and has adopted a sequential approach to identifying sites to meet such need. Sites have also been selected on the basis of being suitable and viable for the proposed use, and being likely to become available within a reasonable period of time.

6.18 Applicants proposing a development that is not in line with allocations in this plan must demonstrate that there is a genuine need for that development, and that such need could not reasonably be met within existing proposal sites. If this can be demonstrated, the applicant must then adopt a sequential approach to site selection: the first choice should be within a defined centre of appropriate scale and function; if no sites are suitable, viable or likely to become available within a reasonable period of time, then edge-of-centre sites should be sought; only as a last resort should out of- centre sites be considered. Where the Plan makes it clear that a site is allocated for a particular type of retail, such as non-food or bulky goods, a retail proposal which is at variance with that allocation will be treated as not according with the Development Plan strategy and will have to be justified by the applicant on that basis.

6.19 In the case that an edge-of-centre, or out-of-centre site is proposed, following a sequential appraisal of sites, it will need to be demonstrated that the site is genuinely accessible by a choice of means of transport, or that measures can be taken to make it so.

6.20 Other key town centre uses may include commercial public offices, community facilities and entertainment and catering outlets. Large offices that attract many visitors are likely to be directed to the Main and other Town Centres. Smaller scale developments, such as health centres and local public offices, will be encouraged within District and Local Centres. For catering outlets, see Policy SRC9.

6.21 The boundary of the centre will equate to the retail core where one has not been identified.

Policy SRC3 - MIXED USE DEVELOPMENT IN CENTRES

6.22 Whilst the dominant function of a centre will always be retail, a diversity of appropriate uses helps to enhance the centre’s vitality. Concentrating a number of uses in one location can also be more sustainable since it reduces the need to travel.

6.23 The sorts of uses that can add variety and attractiveness to a centre include leisure and entertainment facilities; professional and financial services; catering outlets; residential uses; and social and community uses. In the case of catering outlets, policy SRC9 will also need to be considered.

6.24 Where vacant office and retail premises are unlikely to be reused for that purpose, encouragement will be given to conversion to suitable leisure, service or residential uses. Upper floors above shops are likely to be particularly suitable for residential use, subject to the appropriate amenity considerations being satisfied.

Policy SRC4 - MAIN TOWN CENTRE

The Council will seek to strengthen West Bromwich’s role as the principal centre in the Borough.

As such it should be the focus for major new developments that generate many trips, particularly shopping, leisure and entertainment, and commercial facilities. Proposals for development in other centres in Sandwell that would undermine the Council’s strategy for West Bromwich will not be permitted.

6.25 West Bromwich is the largest centre in the Borough, with a diversity of urban activities, and good public transport services. This is reflected in the designation of main town centre.

6.26 In the wider West Midlands context West Bromwich is the only centre in Sandwell that would be defined as a town centre, below the levels of regional and sub-regional centre. It is therefore expected to be the location of any proposed development on a scale commensurate with such a status.

6.27 The strategy for West Bromwich is as set out in the West Bromwich Inset in this Plan.

Policy SRC5 - TOWN CENTRES

Bearwood, Blackheath, Cradley Heath, Cape Hill, Great Bridge, Oldbury and Wednesbury are designated as the Borough’s town centres. Within these centres the Council will attempt to fill any identified gaps in provision by encouraging appropriate development on suitable sites. Proposed development must be consistent in scale and function with the role of town centres within the hierarchy of centres.

6.28 Town centres should provide a broad range of facilities and services, and should be a focus for community activity and for public transport.

6.29 In particular, it is expected that town centres should be well provided with food shopping and have at least one large foodstore, supported by a range of comparison shopping, with a reasonable level of choice. The centres have been assessed against these criteria, and the need for any new development has been identified accordingly.

Policy SRC6 - DISTRICT CENTRES

Smethwick High Street, Owen Street Tipton, Carter’s Green, Quinton and Scott Arms are designated as district centres. The food shopping role of these centres underpins their vitality and viability, and will therefore be protected, or enhanced where necessary. Any proposed development must be consistent in scale and function with the role of district centres within the hierarchy of centres.

6.30 District centres offer a limited choice of comparison shops and non-retail services such as banks, building societies and restaurants, but should have at least one food supermarket. They provide a focus for retail, service and community activity for a smaller catchment than town centres, but should be accessible by a choice of means of transport.

6.31 Where a centre lies close to the Borough boundary, co-operation will be sought with the neighbouring authority to ensure the centre’s vitality and viability are protected and enhanced.

Policy SRC7 - LOCAL CENTRES

Local centres provide for day-today convenience shopping, with a small range of other shops and services of a local nature, such as a sub post office, a newsagent, a hairdresser, a pharmacy, a local health centre and a hot food takeaway. The convenience shopping function of these centres is very important to their continued health, and will be protected. Any proposed retail development must be consistent in scale and function with the role of local centres within the hierarchy of centres.

Old Hill, Princes End, Stone Cross, Langley, Hamstead, Rood End, Queens Head and Smethwick High Street (Lower) are designated local centres.

6.32 Local centres have a very important role in the hierarchy, providing a modest range of retailing and service uses, but in a highly convenient and accessible location, particularly for households with no access to a car.

6.33 Where a centre lies close to the Borough boundary, co-operation will be sought with the neighbouring authority to ensure the centre’s vitality and viability are protected and enhanced.

Policy SRC8 - LOCAL SHOPS/PARADES

Individual local shops and small groups of shops perform an important top-up role in the Borough’s shopping provision. Proposals that are likely to enhance the viability of such provision will be encouraged.

However, the trend to concentrate retail activity into larger centres has resulted in a pattern of decline in many such shopping areas. Where it appears that retail and service uses are no longer viable, compatible uses will be considered. New local shopping provision will be sought in association with proposals for residential development. The amount of provision should be in proportion to the scale of the development, but should not exceed a total floorspace of 250 sq.m.

6.34 Sandwell has a large number of individual shops and small groups of shops outside defined centres. Their importance derives from their proximity to where people live, providing shops within walking distance of a large proportion of the resident population. In this respect they complement the Borough’s shopping centres, in providing for the needs of the whole community.

6.35 Nevertheless, small shops find it difficult to compete with larger shops and multiples; so the observed decline in this sector is likely to continue. The policy therefore takes a pragmatic approach to the future use of sites.

Policy SRC9 - CATERING OUTLETS

New catering outlets should be located within centres defined by the hierarchy in SRC1. Proposals outside centres will generally be discouraged, except where performing an ancillary role to existing or proposed employment uses or within a local parade of shops.

When assessing proposals for new catering outlets, the potential cumulative impacts of similar recent developments and existing permissions and proposals on the vitality and viability of a centre will be a material consideration.

6.36 New food and drink outlets can play an important part in adding to the diversity of uses in a centre, and contributing to the evening economy. However, the cumulative effect of such developments, particularly when resulting from changes of use from retail, can lead to concentrations of single uses, which threaten the retail function of the centre, work against a balanced mix of uses and can cause local amenity problems.

6.37 Proposals for hot food take-away outlets will also be assessed with reference to the Development Control Policy DC7. Hot Food Take-aways within the Borough’s Centres.

6.38 This policy is not intended to apply to public houses or hotels.

Policy SRC10 - RETAIL WAREHOUSING, WAREHOUSE CLUBS AND FACTORY OUTLET CENTRES

Applications for retail warehouses, warehouse clubs and factory outlet centres in Sandwell will be treated in the same way as other retail proposals, and will have to undergo a sequential appraisal of sites, address issues of impact and viability and demonstrate need for the development in line with Policy SRC2. Any planning permission granted for retail warehousing in an out-of-centre or edge-of-centre location may carry restrictions on the range of goods on offer and the prevention of sub-division into smaller units.

6.39 Discount warehouse clubs and factory outlet centres are two of the more recent developments in retailing. Despite the distinctiveness of their retail offer, they are likely to provide direct competition with more traditional formats.

6.40 Warehouse clubs are defined in PPG6 as ‘Out-of-centre businesses specialising in bulk sales of reduced price goods in unsophisticated buildings with large car parks’. Although such a format clearly has an element of trade cash and carry type retail, the liberal membership criteria that clubs usually apply means that a large proportion of the custom is from the domestic sector. Furthermore, an important part of the warehouse club concept is the sale of food, albeit in bulk quantities, which means that such a format could compete with both convenience and comparison operators in town centres.

6.41 Factory outlet centres are defined in PPG6 as ‘groups of shops, usually away from the town centre, specialising in selling seconds and end-of-line goods at discounted prices’. Although the product offer may be different from that in high street stores, such shops will inevitably reduce the amount of comparison goods spending available to town centres.

6.42 PPG6 defines retail warehouses as ‘large single-level stores specialising in the sale of household goods... and bulky DIY items, catering for car-borne customers and often in out-of-centre locations’.

6.43 In carrying out a sequential appraisal of sites, developers and retailers must be flexible about the format, design and scale of development, and the amount of car parking.

6.44 A thorough retail impact assessment must be carried out to show that the viability and vitality of Sandwell’s centres would not be compromised by such development.