10. RETAIL AND COMMERCIAL LEISURE
INTRODUCTION
10.1 The retail sector of the economy is essential to the well-being of local residents and the borough as a whole. In Gateshead, retailing provides over 12,000 jobs, 8,000 of which are based at the MetroCentre, and shopping now represents a significant leisure activity. The improvement of the borough’s centres is central to promoting an urban and rural renaissance, in terms of creating attractive places where people live and work. The submitted Draft RSS (2005) places Gateshead at the heart of the Tyne and Wear City Region, contributing towards its economic and cultural performance; central to this is continued regeneration along the river corridor, including Gateshead Town Centre, which provides increasing opportunities for tourism.
10.2 The Council has taken a positive approach in identifying a hierarchy of existing centres according to the role and function that each performs. A Retail Capacity Study was published in 2004, and this has assisted the Council in identifying the anticipated demand for growth over the next five years and beyond, and where this can be sustainably accommodated. The key objectives are for centres in Gateshead to provide an appropriate range and scale of shops and services, which support and are accessible to local communities, and are well served by public transport. Where development does occur, it should reinforce and contribute to the vitality and viability of existing centres.
10.3 Planning Policy Statement 6: Planning for Town Centres (2005) lays down the tests which should be applied to edge and out-of-centre proposals, which this plan restates, and also identifies the Regional Spatial Strategy as providing the context for considering the scale of change at regional shopping centres such as the MetroCentre. Development proposals in rural areas should be focused in or near to local service centres to maximise access by public transport.
10.4 In terms of access to facilities and travel patterns the trend towards new out-of-centre shopping facilities, which characterised the 1980s and 1990s, is now viewed as unsustainable. Some centres in Gateshead have shown signs of physical decline in recent times, and the Council has given priority to the improvement of these centres to ensure access to essential facilities for local residents.
10.5 A study of the health and function of some centres was commissioned for the Bridging NewcastleGateshead HMR Pathfinder initiative. A final report was published in December 2004 which made a number of recommendations for the consolidation, improvement or redevelopment of those centres. This will be taken forward through additional consultation with local communities, Neighbourhood Planning and implementation on the ground.
10.6 Within the Town Centre’s Primary Shopping Area, the District Centres and Local Centres, as identified on the proposals map, the principle of retail development at an appropriate scale is acceptable. The location of a range of other services and facilities in these centres is important in terms of extending their function and contributing towards sustainability objectives. Other uses which should also be located within existing centres include leisure, cultural, educational, health and commercial uses (including offices). Other uses (such as residential) may also be important components of high-density mixed-use schemes.
10.7 The role of the MetroCentre as an established regional shopping centre, serving the needs of local residents and the wider region, will be supported. Future changes at the MetroCentre should facilitate integration with the surrounding area, in terms of encouraging a diversity of uses, promoting means of transport other than the private car and contributing towards sustainability objectives.
RETAIL HIERARCHY
RCL1 The retail hierarchy in Gateshead, as identified on the proposals map, comprises the following locations:
Gateshead Town Centre (Primary Shopping Area)
Main District Centres:
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Local Centres:
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Existing Out-of-Centre:
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10.8 The role of individual centres within the hierarchy may change over time, as a result of market forces and changes to the local catchment. Where such circumstances prevail the Council will continue to encourage strategies aimed at supporting the consolidation and improvement of, and investment in, those centres affected. Growth will be focused on centres with suitable catchments and potential to accommodate an increased level of floorspace. The health of all centres will be kept under review through the Annual Monitoring Report and retail health checks.
10.9 The focus for retail development in Gateshead Town Centre is the Primary Shopping Area. Existing small-scale facilities which serve the everyday needs of residents in neighbourhoods and villages will be supported and protected where no other facilities exist within a reasonable distance.
10.10 Existing out-of–centre facilities at the MetroCentre and Retail World perform an important and mainly comparison role within the hierarchy of centres in Gateshead.
NEW FLOORSPACE FOR FOOD AND NON-FOOD RETAILING
RCL2 Provision is made for new retail floorspace to support the vitality and viability of the borough’s centres. Approximately 9,000 square metres (gross floor area) of new convenience floorspace and 5,000 square metres (gross floor area) of new comparison floorspace are required in the next 5 years to 2011. This will primarily come forward as part of the redevelopment strategies for Gateshead Primary Shopping Area and Blaydon District Centre.
10.11 The Gateshead Retail Capacity Study (published 2004) provides an initial assessment of convenience and comparison floorspace requirements and capacity in the borough. The figures within this document, an early review of which is planned, are indicative. More recent studies and assessments have been carried out, whilst over the last two years the population of the borough has increased; emphasis is on retaining expenditure within the borough through growth at key sustainable locations.
10.12 Investment will thus be focused within existing centres, primarily Gateshead and Blaydon, where there is a need and potential for comprehensive redevelopment and additional floorspace. New development or an extension of existing facilities in Felling and Birtley District Centres could stem leakage of expenditure, as identified by the study. However, in the short term both centres have limited potential due to physical constraints and, in the case of Felling, the absence of commercial interest. It is considered that Gateshead Town Centre can fill the gap in the short term given the investment in public transport and that planned for the Primary Shopping Area.
10.13 Some limited retail development would also be suitable on mixed-use sites being brought forward in the plan. Future monitoring resulting in changes to the hierarchy of centres may facilitate additional development, whilst marginal increases may arise in centres located within the Pathfinder area.
GATESHEAD TOWN CENTRE
RCL3 Maintaining and enhancing the role of Gateshead Town Centre as the primary shopping, cultural, visitor and administrative centre in the borough will be achieved through a range of measures, including:
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protecting and promoting the vitality and viability of existing shopping facilities within the Primary Shopping Area to ensure the provision of a full shopping offer;
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subject to a) above, encouraging new development and changes of use for a mix of residential, commercial, leisure, educational and health uses where appropriate;
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supporting proposals for improvement and refurbishment, including the provision of open areas, which would contribute to the vitality and attractiveness of the centre;
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maintaining and enhancing public transport accessibility;
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improving the attractiveness and security of existing car parks, and reducing the provision of long-stay commuter car parking in favour of short-stay parking for shoppers;
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improving pedestrian and cyclist safety and convenience within the centre, and on links into the primary shopping area, in particular from the central riverside area and the area to the east of Gateshead Highway; and
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improving accessibility for socially-excluded groups, and people with impaired mobility.
An additional 3,000 square metres (gross) of convenience floorspace and 3,000 square metres (gross) of comparison floorspace will be encouraged as part of regeneration within the Primary Shopping Area to 2011.
10.14 Gateshead Town Centre, as identified on the proposals map and at Appendix 16, is the main administrative centre in the Borough, and one of the most accessible locations within the Tyne and Wear City Region. The redevelopment of Gateshead Interchange has led to an improvement in public transport facilities, and together with redevelopment of Gateshead Quays, has raised the profile of the centre, and will assist redevelopment within the Primary Shopping Area, and on other development sites.
10.15 The mix of uses and physical fabric of the centre are in need of revitalisation, balanced with the need to improve linkages between the Primary Shopping Area and surrounding areas, including Gateshead Quays, and to preserve buildings and features of historic and/or architectural importance. The viability and physical capacity of the Primary Shopping Area to accommodate additional retail floorspace and a mix of complementary uses has been assessed. This has informed the provisions within this section of the plan.
10.16 The Town Centre boundary has been extended to incorporate completed development and proposed mixed-use schemes which are well related and which contribute to the Town Centre offer. This includes Gateshead Quays, with potential for additional commercial and leisure development, the International Business Centre, the Windmill Hills Town Park and the proposed mixed-use sites north of Askew Road and at Tynegate.
10.17 Within the Town Centre existing employment uses will be retained and new office development will be encouraged on all mixed-use sites, and on upper floors above primary frontages, in line with national policy.
GATESHEAD TOWN CENTRE PRIMARY SHOPPING AREA
RCL4 The retail function of Gateshead Town Centre is protected by the designation of a Primary Shopping Area. This area contains both primary and secondary frontages.
The area bounded by High Street, Charles Street, High West Street, West Street and Nelson Street, and also incorporating The Interchange Centre, contains primary ground floor frontages with a higher proportion of A1 retail uses. Within this area change of use from retailing will not be allowed where it would result in the percentage of non-A1 retail frontages exceeding 30% at ground floor.
A mix of town centre uses is acceptable up to 30% and above ground floor in this area, and in all other parts of the Primary Shopping Area, where no adverse impact on its vitality and viability would result.
10.18 The focus for retail facilities in Gateshead Town Centre is the Primary Shopping Area (PSA), as defined on the proposals map and also at Appendix 16. In line with PPS6, this contains both primary and secondary frontages. The primary ground floor frontages are located in the northern part of the shopping area. The loss of ground floor retail frontage in this area, in excess of the 30% threshold, would undermine the quality and vitality and viability of the centre, and will therefore be resisted.
10.19 The purpose of the policy is to promote a healthy mix of ground floor retail uses whilst also encouraging other complementary uses. The latter will also be encouraged in upper floors, and within secondary areas of the shopping centre. The diversity of other uses includes banks, building societies, restaurants, cafes, bars and leisure uses, whilst there is also potential for higher density development incorporating office and residential uses. A good mix of self-supporting uses could significantly improve the security and the vitality and viability of the shopping centre, and extend its overall usage in terms of the night-time economy.
10.20 The potential for redevelopment and improvement of this area is a key component of the Gateshead Town Centre Planning Strategy (July 2005). Consistent with UDP policies, the strategy identifies considerable scope for remodelling the northern part of the shopping area to create a modern shopping environment, which complements Newcastle City Centre. Key proposals include redevelopment of Trinity Square and the Tesco site, provision of a new supermarket, additional comparison floorspace, other commercial, leisure and residential uses, an adequate level of secure car parking and provision within the area of a civic space.
DISTRICT AND LOCAL CENTRES
RCL5 Within District Centres and Local Centres, planning permission will be granted for retail and other shopping centre uses where it:
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maintains and enhances the vitality and viability of the centre;
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does not result in an unacceptable impact on residential amenity, the local highway network or road safety;
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is compatible with the scale and nature of the centre;
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results in enhancements to public transport accessibility;
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improves the attractiveness and security of existing car parks;
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improves accessibility for socially-excluded groups and people with impaired mobility; and
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helps to improve the appearance of the centre.
In considering proposals for changes of use from retail to other uses, including other shopping centre uses, particular regard will be had to the effect the loss of retail units would have on the vitality and viability of the centre as a whole.
In particular, within the following District Centres, change of use from retailing will not be allowed where it would result in the percentage of non-A1 retail frontages exceeding 30% at ground floor:
Low Fell |
439-543 Durham Road (odd numbers, including New Cannon Inn) and 536-562 (even numbers) |
Whickham |
St Mary’s Green units, 1-10 The Square, Ilfracombe House & Salesrooms, Back Row |
Blaydon |
1-40 The Precinct (frontages within), including the public house |
Birtley |
2-13 Arndale House, 1-11 Co-op Buildings, 34-56 Durham Road, Netto Durham Road |
Wrekenton |
157-179 High Street (odd numbers), 3-12 Wrekenton Row, 1-5 Ravensworth Villas, Co-op supermarket |
Felling |
1-3 Victoria Square, Victoria Jubilee Hotel block and 1-23 Crowhall Lane |
An additional 6,000 square metres (gross floor area) of convenience floorspace and 2,000 square metres (gross floor area) of comparison floorspace will be encouraged as part of the regeneration of Blaydon District Shopping Centre.
10.21 The primary role of District and Local centres, as identified on the proposals map and also at Appendix 16, is the provision of locally-accessible convenience goods shopping. This is particularly important for elderly and less mobile residents. An appropriate balance between retailing and other shopping centre uses should be maintained within these centres.
10.22 The District Centres provide the focus for a wide range of goods and services in close proximity to a wide catchment area. They benefit from good public transport links and usually contain a small or medium-sized supermarket, a range of convenience goods outlets, a limited range of durable goods outlets, and services such as banks, building societies and solicitors’ offices. The areas identified as including primary retail frontages need to be protected in order to retain the retail character of those centres, and to ensure access to essential facilities for local residents. Although smaller than other District Centres, Ryton benefits from a good range of facilities and performs a rural service centre role for other smaller centres and villages in the rural west of the Borough.
10.23 The 17 smaller Local Centres vary in the level of service provided from a supermarket and a limited range of durable and convenience outlets to a Post Office and a few convenience outlets. Some of the local centres are located within the urban area whilst others are more remote, and thus provide essential facilities for local residents in these areas.
10.24 Most centres provide an adequate level of service to the surrounding area although some are in need of property, environmental and operational improvements to create a safer and more pleasant shopping environment. The Bridging NewcastleGateshead HMR Pathfinder has already started the process of identifying priorities for improvement in some of these centres, to enable them to adapt to changing circumstances and provide a suitable level of service. This is being progressed in consultation with local residents and businesses.
FOOD AND DRINK USES
RCL6 Planning permission will be granted for restaurants, cafes (A3) and drinking establishments (A4) within existing centres and hot food take-aways (A5) within an existing centre or locality provided:
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they do not have an unacceptable impact on road safety, the environment, amenity, the character of the surrounding area or the vitality and viability of an existing centre; and
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they would not lead to an over-concentration of such uses in any one location.
10.25 Food and drink uses, as outlined above, can contribute to the diversity of uses contained within a defined centre and also to meeting the day-to-day needs of residents within a particular neighbourhood or locality. They can also complement other uses and extend the function and health of a centre by contributing to the evening and night-time economy. They will be encouraged within existing centres, subject to the criteria referred to in policies RCL3, 4 and 5. Some uses are also acceptable within some mixed-use sites, and within Primary Employment Areas where they serve the needs of that particular area, and are appropriate in scale.
10.26 Proposals for hot food take-away shops raise particular issues regarding noise, smell, litter and parking. The Council's overall policy is detailed in “Development Control Policy on Hot Food Take-away Shops” (Interim Policy Advice note 9).
RETAIL AND OTHER PROPOSALS AT METROCENTRE, RETAIL WORLD AND ON THE EDGE OF OR OUTSIDE EXISTING CENTRES
RCL7 Planning permission for town centre uses on sites not within an identified centre or Gateshead Primary Shopping Area, or on sites allocated for such within the plan, will only be granted where the need for the development has been demonstrated and where no suitable sites are available within City, Town, District or Local Centres.
Where the need for the development has been proved and no suitable sites are available within centres, preference will be given to edge-of-centre sites, with specific preference to those that are or will be well connected to the centre. Consideration will then be given to out-of-centre sites, with preference to sites well served by a choice of means of transport, and which benefit from good links to the centre. The following criteria will also be considered:
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the extent to which the proposal would impact on the strategy and objectives of the development plan;
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the extent to which the proposal would impact on the vitality and viability of existing centres, including Gateshead Primary Shopping Area, either by itself, or cumulatively with other proposals;
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the accessibility of the site by a choice of means of transport, and the efforts made to maximise use of these – proposals should not add overall to either the number or length of existing car trips;
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whether the development would assist in enabling the wider redevelopment of brownfield sites for a variety of uses;
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whether the development would contribute to the grouped provision of retail outlets of a similar type;
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the extent to which the proposal meets local convenience shopping needs;
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the use of a condition on any planning permission restricting the range of goods to be sold in retail warehouses to goods such as DIY, furniture and carpets;
The payment of a commuted sum towards transport improvements may be required for new development on edge or out-of-centre sites, including MetroCentre and Retail World, in line with policy PO1.
10.27 The development of retail warehouse parks, large free-standing food stores, warehouse clubs and factory outlet centres will be considered against the requirements of policy RCL7, as will proposals at MetroCentre and Retail World. It is anticipated that outside the hierarchy and network of existing centres, there is unlikely to be a need for major out-of-centre durable goods floorspace. The area of search applied under the sequential test will depend on the nature, scale and catchment of the proposed development. Where there are no suitable in-centre sites, preference will be given to edge-of-centre sites which are already well connected to, and have the potential to be integrated with, an existing centre.
10.28 The scope for providing small-scale complementary supporting facilities, up to a maximum of 200 square metres and including convenience retail, to serve the needs of workers within Primary Employment Areas, is defined in Policy JE1. The need to provide such facilities, appropriate in scale, has to be justified, and must not undermine the vitality and viability of existing centres. Where they are justified such facilities can reduce the need to travel and increase the sustainability of employment locations.
THE METROCENTRE
RCL8 The MetroCentre is an established regional shopping centre. Proposals here will also be assessed in terms of the extent to which the proposed development:
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improves the appearance of the MetroCentre; and
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promotes better integration with the surrounding area.
Whilst provision should continue to be made for safe access to and within the MetroCentre by all forms of transport, priority should be given to improvements to access by means other than the private car, and in particular on-site pedestrian movement. Access arrangements for new development to the west of the main MetroCentre complex should ensure that it is fully integrated with existing facilities.
10.29 Located on previously developed land several miles west of central Gateshead, but within the urban area, the MetroCentre is a major employment, shopping and leisure destination within the Tyne and Wear City Region. It provides a complementary shopping service to that of Newcastle City Centre, principally in durable goods for a large catchment area. Since its development in the 1980s, the MetroCentre has raised the profile of the borough, and has stimulated further investment and regeneration.
10.30 The recent redevelopment of Red Mall at MetroCentre has not only resulted in qualitative improvements in terms of its offer, but also in significant investment and commitment to public transport facilities, including CentreLink. Future changes at the MetroCentre should achieve greater sustainability, including improved integration with the surrounding area and the continued encouragement of more sustainable forms of transport, in line with the emerging RSS.
10.31 The application of policies RCL7 and RCL8 will ensure that future proposals for new development or major refurbishment at the MetroCentre are fully tested and justified in line with national and regional policy. The proposals map identifies the consolidated boundary of the MetroCentre. The site incorporating Hannington Works and adjacent land, identified in the previous Unitary Development Plan as being within the boundary of MetroCentre, is now identified for mixed-use development (MU2), including residential, employment and hotel uses. This approach will broaden the range of uses neighbouring the MetroCentre, and improve the latter's integration into the surrounding area.
10.32 Further explanation of the Council’s approach to the MetroCentre is contained in adopted Supplementary Planning Guidance (SPG) 10: MetroCentre Development Guidelines (January 1999). The Council is currently reviewing this document and intends to replace it at an early stage with a Supplementary Planning Document.
RETAIL WORLD
RCL9 Retail World is an existing retail warehouse park. Proposals here will also be assessed in terms of the extent to which the proposal helps to improve the appearance of the park.
10.33 Retail World, as identified on the proposals map, is a retail warehouse park which caters mostly for car-borne trade and predominantly serves north Durham and south Tyne and Wear. It provides an important centre for durable comparison goods trading, with a wide range of units selling furnishings, toys, clothing and motor accessories. The application of Policies RCL7 and RCL9 will ensure that future proposals at Retail World are fully tested and justified in line with national and regional policy.
10.34 The introduction of convenience shopping at Retail World would only benefit car-borne shoppers, and would therefore be contrary to other policies which aim to keep traditional centres as a focus for shopping and community activity.
RETAILING IN NEIGHBOURHOODS AND RURAL AREAS
RCL10 Development, redevelopment or change of use involving the loss of the last remaining shop in an existing neighbourhood or village will only be permitted where it can be demonstrated that the use has proved unviable.
10.35 Within some of the borough’s neighbourhoods, smaller local centres and villages, small shops are important in serving the everyday needs of the local population, providing a focal point for the local community and contributing to the rural economy. Where there is one remaining shop, change of use, particularly to residential, will be resisted. Where such proposals are made, applicants will need to provide evidence to show that the use is no longer viable, and that it has been inactive for at least eighteen months. Evidence to show that the property has been actively marketed on the open market for a period of not less than twelve months, to achieve a retail use, will also be required.
10.36 Proposals for the expansion or diversification of such facilities will be considered favourably, in line with other policies in the plan, where this increases their viability.