Chapter 3 Strengthening the Economy and Promoting Regeneration
Aim: To foster a dynamic economy in the District, encouraging investment in new employment and enterprise opportunities.
Community Strategy
3.1 The Council’s Community Strategy for improving the quality of life, aims to provide secure employment, by helping the District to compete in the global economy. This requires supporting proposals which stimulate social and economic regeneration in Clacton, Harwich and Walton in particular, where high levels of unemployment and social deprivation exist.
3.3 The policies and proposals in this Chapter are intended to achieve the aims of the Community Strategy as set out in Chapter 1, and include measures to provide for and promote development related to all types of economic activity covering employment generation, tourism and retailing.
Economic Development and Regeneration
3.4 Economic development has a vital role to play in the future prosperity, development and regeneration of the District. This section deals with the overall supply of land and buildings for employment generating development, and proposals for business and industry, employment uses in rural areas and small firms.
3.5 Policies within this section primarily deal with all types of employment use within Classes B1 [(b) and (c)], B2 and B8 of the Use Classes Order 1987 (as amended). Land allocated for development within these uses is referred to as employment land. Figures used to calculate the employment land supply and allocated sites are gross figures which include areas required for buildings falling within Class B uses, car parking, access roads and structural landscaping/open spaces. This is consistent with the general approach set out in the Replacement Structure Plan. In addition, reference is made to port related development which is likely to have a significant impact on related land use policies in the Plan. Planning policies concerning retailing, financial and professional services, food and drink uses (Classes A1 to A5) and tourism are set out separately in the respective sections later on in this Chapter.
National Context
3.6 Relevant Government guidance is set out in PPG4: Industrial, Commercial Development and Small Firms, PPS6: Planning for Town Centres, PPS7: Sustainable Development in Rural Areas and PPS12: Local Development Frameworks.
Regional Context
3.10 Regional guidance set out in RPG9 sets out key development principles which seek to retain urban areas as the main focus for development and encourage a less dispersed pattern of development. RPG9 will be replaced by Regional Spatial Strategy 14 (RSS14), the “East of England Plan” which is expected to be adopted in 2008.
3.11 RPG9 refers to “Priority Areas for Economic Regeneration” (PAER) and explains that these areas are pockets of deprivation within the Region defined by a number of criteria including above average unemployment rates, high levels of social deprivation, low skill levels, dependency on declining industries, derelict urban fabric, peripherality and insularity. Parts of the Tendring coast including Clacton, Walton and Harwich are within the designated PAER. The designation of PAER signals to regional partners including regional development agencies that the needs of the areas should be given high priority.
3.12 The emerging regional spatial strategy for the East of England (RSS14) currently being prepared also reflects the important objective of securing economic regeneration within the PAER. The emerging guidance also refers to “gateways” as sub-regions which are significant due to their transport links and economic growth and regeneration potential.
3.13 The Haven Gateway area includes Tendring District and the main ports of Harwich, Felixstowe and Ipswich. The guidance describes the Haven Gateway, as having significant potential for economic growth, based on opportunities for high technology and knowledge based activities associated with its ports and links with the Cambridge sub-region. These opportunities could play an important part in the continued economic regeneration of the Harwich and Clacton areas.
Replacement Structure Plan
3.14 The Replacement Structure Plan deals with the period up to 2011 in respect of the provision for employment land across the County and includes an 80 hectare allocation for Tendring District. Policy CS3 encourages economic success and states that priority will be given to economic regeneration and renewal within the designated PAER.
Economic Development Spatial Strategy
3.15 Between 2001 and 2003, the Council commissioned a number of studies carried out by consultants to review existing employment land and sites and to identify additional sites to make up the land supply. It was recommended that the majority of current land and sites should be carried forward into the Tendring District Local Plan 2007 and protected for employment development purposes. A further study has subsequently been undertaken in 2005 to test the earlier work and assess and advise on the responses received to the publication of the draft Local Plan in May 2004.
3.17 A total of approximately 59 hectares of employment land has been allocated for the district within the plan period, less than the overall requirement of the Structure Plan. The Consultants recommended in their studies that large scale employment development should be concentrated on the edge of the main towns including Clacton and within a corridor of growth following the A120 Trunk Road on the edge of Harwich in addition to further provision at other towns and larger villages across the District.
New Employment Sites
3.20 In support of the strategy of promoting employment development at larger towns and in the A120 corridor and within other built up areas, the Plan makes provision for a number of new employment sites across the District. These sites are well located in relation to existing urban areas and the transport network and are consistent with the Replacement Structure Plan’s sequential approach to site selection set out in Policy BIW3. Some of the sites may be developed in phases throughout the Plan Period and require the provision of significant infrastructure including vehicular access, public transport facilities and structural landscaping. The Council will consider the need for appropriate enabling development to help fund the necessary infrastructure where this appears to be warranted.
3.21 The larger sites have an area in excess of 5 hectares, whereas the smaller sites vary between less than a hectare up to 5 hectares. To help achieve a satisfactory form of development, planning briefs will need to be prepared for each of the sites above 5 hectares in area.
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Note:
The above sites are identified on the Proposals Map and Inset Maps.
3.21a Land south of the /A120, South of the former Iconfield Site, Dovercourt has received planning permission for residential development. However, if current residential consent is not implemented this site is considered as a preferred employment site. Residential consent will not be reviewed on this site.
3.22 The above sites, when combined with the land East of Pond Hall Farm in Dovercourt (27 hectares) cumulatively contribute to a total provision of approximately 59 hectares. Further smaller employment sites not identified in Policy ER1 are also likely to come forward during the Plan Period including sites in the rural area which will increase the overall employment land supply further.
Protecting Existing Employment Areas
3.23 To maintain the widest economic base possible and a suitable range of sites to meet varying employment development needs, land allocated and reserved for employment use will normally be retained for this purpose.
3.24 The principal existing business and employment areas within Tendring are listed below.
Principal Business and Industrial Areas
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Europa Way, Parkeston
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Gorse Lane Industrial Estate, Clacton-on-Sea
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Oakwood and Crusader Business Park, Clacton-on-Sea
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Oxford Road, Clacton-on-Sea
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Ford Road, Clacton-on-Sea
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Valleybridge Road, Clacton-on-Sea
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Morses Lane Industrial Estate, Brightlingsea
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Lawford Dale Industrial Estate, Lawford
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Kirby Cross Trading Estate, Kirby Cross
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Great Bentley Industrial Estate (Plough Centre), Great Bentley
Retention of Employment Sites
3.25 The District Council considers that in an area under pressure for residential development and where appropriate new employment sites in villages and towns are hard to find, there is a pressing need to protect existing employment sites and premises.
3.26 The protection of employment land, sites and premises through the implementation of Policy ER3 forms an important part of the Plan’s economic and sustainable development strategy. In order to assist with economic regeneration objectives and to maintain a balance between the location of jobs and homes within different parts of the District the retention of employment land, sites and premises is seen as vital. The importance of safeguarding employment land is also specifically recognised in the Replacement Structure Plan (BIW4).
3.27a Many proposals for re-using or redeveloping employment sites and premises come forward for determination. In such instances, in order to demonstrate that other forms of employment use have been fully explored, documentary evidence will be required to demonstrate that a proper and sustained marketing campaign, at current market value, for either continued or alternative employment purposes has been undertaken. Important factors in evaluating the appropriateness of such a campaign will be the length of time it has been pursued and the prevailing market conditions. Examination of documentation of enquiries and responses will be expected.
3.27b The marketing campaign will have to be agreed between the determining authority and applicant(s) before it begins. This will include the following:
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length of campaign;
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asking price;
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sales particulars; and
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number, frequency and source of advertisements.
3.27c In agreeing the asking price, an independent valuation may be required, that the applicant will normally be expected to fund. The District Council will apply Policy ER3 to all proposals affecting land, sites or premises in, formerly in, or allocated for employment use. Guidance to help people with their planning applications is included in Appendix 3a. Proposals will be expected to keep to this guidance. If the District Council grants planning permission that results in a loss of employment land or premises, it will seek a payment or alternative suitable employment land elsewhere in the district from the applicant to compensate for the loss of employment opportunities. This money will be spent on improving employment prospects and/or key regeneration initiatives in the District. The basis for calculating the payments is set out in Appendix 3a. Such a payment might not be sought if the applicant intends to relocate an existing employment use within the District to provide for its expansion.
3.28 The Council will monitor the overall level of employment land to ensure a suitable land supply is maintained, consistent with either Structure Plan Policy BIW2, or the prevailing Regional Spatial Strategy requirements.
Other Uses in Employment Areas
3.29 Retailing is not encouraged on employment land. However, it is recognised that the operational needs of some firms has changed and some small scale ancillary retailing at the front of workshops selling specialist bulky non-food goods manufactured on the premises (for example domestic fireplaces and kitchen units) may be acceptable within employment areas.
3.30 The provision of car showrooms and certain types of indoor leisure uses may also be appropriate within the larger employment areas within built up areas subject to the application of a sequential site assessment exercise referred to in Policies ER31 and ER32 in the Town and Other Retail Centres section of this Chapter. For the purposes of Policy ER4 the larger employment areas include all the existing Principal Business and Employment Areas referred to in paragraph 3.24 and allocated employment sites with a site area in excess of 5 hectares. The size threshold has been set to allow for an appropriate mix of uses on the larger sites which are able to sustain such a variety and to exclude smaller areas which may otherwise run the risk of being totally lost to non employment uses.
Transport Uses
3.31 The District has experienced a particular problem arising from a large number of haulage firms established in rural areas. A number of these firms occupy sites with established use rights in villages or occupy agricultural buildings in open countryside close to main roads. Experience has shown that road transport firms based in the District present particular environmental problems because of the intensity of activity, the number of traffic movements, anti-social hours of operation including weekend working and the size of vehicles involved. Some sites are particularly prominent in the landscape and have little screening to hide vehicles and plant.
3.32 Whilst recognising the economic importance of the transport sector to the local economy, the Council considers that large scale uses of this kind are inappropriate in many rural locations and will consequently encourage the relocation of these businesses to more environmentally acceptable sites. Since pressure for this type of use is likely to increase as expansion plans at Harwich Port are implemented, the Plan makes provision for this type of use within the large employment land allocations close to the main road network and seeks to discourage the development of unsuitable sites in rural areas.
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Transport depots and lorry parks will be allowed within the Principal Business and Industrial areas and larger employment land allocations as part of the Council’s economic development strategy. Proposals will need to demonstrate that they will not be detrimental to residential amenity by virtue of noise and disturbance and are not visually intrusive. Proposals outside these areas may also be allowed where it is demonstrated that there is no suitable land available within these areas and where they would have no adverse impact on rural and residential amenity and/or highway safety. |
Business, Industrial and Warehousing Proposals
3.35 In considering planning applications for the use of land or buildings for business, industrial or warehouse uses, a number of design, layout and other technical requirements will need to be met as set out in Policy ER7 below.
Extensions to Industrial Buildings
3.35a The Council wishes to support the growth of existing firms and will grant permission for extensions to established business and industrial premises in built up areas or villages and in rural locations providing they have an acceptable impact on visual and residential amenity, rural amenity and transportation considerations.
3.35b It is recognised that withholding planning permission can seriously affect the growth and development of firms, which is not in the wider economic regeneration interests of the District. However, sometimes businesses outgrow their sites and need to be encouraged to relocate to more appropriate and spacious premises. Therefore, in examining proposals to extend employment premises the longer term suitability and viability of the site in question will be considered.
3.35c In rural locations, the visual impact on the landscape character of the countryside will be an important additional consideration. However, planning permission for extensions to existing firms in rural areas may be permitted if proposals would result in the creation of a number of new jobs and if satisfactory screening and landscaping can be achieved to minimise the impact of the development on the countryside.
Rural Areas and Villages
Small Scale Employment Sites in Villages
3.40 To help stimulate and diversify the changing rural economy, the retention of employment opportunities in villages is supported by PPS7. Many small scale employment activities can be accommodated in small communities, which can provide much needed local employment opportunity and help to retain the working population. Sites must be properly located to avoid causing traffic problems, noise and disturbance to local residents and harm to village character. In determining small scale employment sites in villages the criteria specified in policy ER7 will apply.
Re-Use or Conversion of Rural Buildings
3.41 In the interest of encouraging a lively and viable rural economy PPS7 encourages the diversification of declining farms and agricultural land holdings. One initiative is the appropriate re-use or conversion of rural buildings for employment purposes. In addition to conversions for industrial uses, some rural buildings may be suitable for recreational/tourism purposes. The Council supports this approach to employment generation, providing proposals meet the requirements of the Plan’s other policies.
3.42 Enterprises that would generate large volumes of traffic, or would detrimentally affect the external appearance of buildings and surroundings will be encouraged to locate in more appropriate locations consistent with the scale and nature of the intended use. In addition, activities which require external plant or which make excessive demands for open storage will not be permitted in rural areas outside of the allocated employment areas. In all cases the potential impact on the amenity of local residents will be an important consideration.
Employment Use in Residential Areas
3.46 The Council supports the encouragement of small businesses including initiatives to work from home providing potential problems in residential areas from commercial activities are avoided.
3.47 Proposals for employment development in homes will each be considered on their merits and particular regard will be given to the effect of proposals on residential amenity. The dwelling should be able to continue to provide suitable housing accommodation and the character and amenity of the surrounding area should not be impaired by the business activities. Permission will not be granted for proposals which would for example result in excessive outside storage, physical alterations to the house or a noticeable level of commercial traffic.
3.48 Where there are special circumstances relating to the applicant, a limited permission may exceptionally be given for the benefit of the applicant only.
Tourism
3.51 The Tendring Community Strategy recognises that leisure and tourism activities make a significant contribution to the prosperity of the local economy. Continued growth in tourism and leisure sectors can stimulate economic activity, investment and create new job opportunities including planned diversification in rural areas. Planning for leisure and tourism has strong economic, environmental and cultural implications and is related to other aspects of the Plan.
3.52 Planning policy can help facilitate the development of tourism by providing for and protecting specific facilities. Policies in this section provide a basis for considering specific proposals directly related to tourism and related leisure development and seek to balance the development needs of the tourist industry with the protection of the environment. Policies in other parts of the Plan also play an important role in supporting the development of tourism by, for example, enhancing the natural and built environment and improving the vitality and viability of town centres.
Tendring Tourism Strategy
3.56 The Tendring Tourism Strategy identifies a number of challenges facing tourism in the District and actions to address them. In summary the Strategy seeks to work towards better quality improved accommodation and service provision. It also aims to attract disabled visitors and encourage local spending including retailing. The promotion of walking and cycling and tourism in rural areas is a further key aim. The Strategy also seeks to expand the core areas in resorts with appropriate marketing. Finally, the Strategy recommends the development of resort regeneration plans and the promotion of development sites.
Tendring Tourism Study
3.57 In late 2001 the Council commissioned an independent tourism study prepared by consultants to identify opportunities for tourism within the District and provide guidance on how to approach these issues in the Tendring District Local Plan 2007. The Study was published in October 2002 and highlighted that Tendring’s tourism product and future potential falls into the following categories:
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the traditional seaside resort;
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cultural heritage; and
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the countryside including wildlife and conservation.
3.58 The Study identified a number of potential opportunities including extending the visitor season, additional touring caravan and camping parks, sailing holidays; attracting European visitors, especially to Harwich; improving the quality and range of accommodation and facilities including resorts and shopping centres, bird watching, walking and cycling activities and improving heritage attractions. The Study also identified the potential to re-focus tourism to reflect emerging trends.
3.59 The Tourism Study also referred to national trends and drew attention to the continuing trend of the long term decline of traditional seaside resorts. The study recommended that programmes for the continued development and regeneration of the District’s resorts should be pursued including the protection of existing tourism facilities. The study’s main recommendations relevant to planning policy have been incorporated into the section set out below.
Tourist Development and General Considerations
3.60 As well as traditional seaside holiday resorts, Tendring contains several other tourist attractions. These include high quality scenic rural areas including part of the Dedham Vale Area of Outstanding Natural Beauty (AONB) and Suffolk Coast and Heaths coastline, a rich historic cultural heritage including the Harwich Conservation Area and a large number of attractive villages, several shopping centres including Clacton and Frinton town and a factory outlet centre on the edge of the former.
3.61 In recognition of tourism’s importance locally the Council encourages development which will provide new attractions and facilities. Such development proposals will however, need to be judged against the impact they have on the local environment including their traffic implications.
3.62 When promoting the development of new tourist attractions the Council will direct investment to acceptable locations for example, within the resort towns and main settlements as specified in the area policy statements. Considerable weight will be given to the protection of environmentally important areas of countryside and coast when determining applications for such developments. In essence, development proposals should avoid an unacceptable or detrimental impact on these areas which include a Site of Special Scientific Interest (SSSI), SPA, Dedham Vale AONB and the proposed extension to the Suffolk Coast and Heaths AONB.
3.63 The Council will encourage proposals for new or improved tourist attractions which enhance the District’s ability to attract and cater for visitors, increase local employment opportunities and do not conflict with other important economic or environmental objectives set out in the Plan.
3.64 Sensitive and low-key developments which seek to exploit the area’s scenic and wildlife assets will be supported where they fully respect and also lead to the enhancement of those important environmental assets. This approach reflects the recommendations of the Tendring Tourism Study to encourage the “eco-tourism” and wildlife tourism markets in the District.
Existing Caravan and Chalet Parks
3.67 Over the last 20 years various caravan and leisure parks including two holiday camps have closed, reflecting the changing market for holidays in this type of accommodation. Some sites have been developed for housing.
3.68 Despite the loss of certain sites there are still approximately 9,000 caravans and chalets in the District with sizeable sites remaining in Clacton/Jaywick, St. Osyth/Point Clear, Little Clacton, Weeley, Walton and Dovercourt which account for 84% of the holiday accommodation used by tourists in the District. The Council recognises that these existing sites are an important element of the local holiday industry and their retention and improvement are generally supported. The redevelopment of these sites for tourism purposes should not be seen as being excluded if redevelopment proposals will have the effect of significantly enhancing and further strengthening tourism in the area. Various site operators have embarked upon new investment programmes recently and these are welcomed as part of an overall upgrading and modernisation of the stock. Further proposals to modernise and introduce new, imaginative layouts, improved landscaping, better quality accommodation and an improved range of on site facilities will be supported in parallel with the policies on the provision of new leisure parks.
3.69 Prime sites are considered to be the larger sites which provide the bulk of the accommodation, contribute to the holiday character of the area and promote Tendring as a tourist destination. These sites also tend to contain higher quality accommodation and are therefore likely to best meet the needs of present and future visitors.
3.70 The main tourist areas comprise Clacton/Jaywick, Walton, St. Osyth/Point Clear and Dovercourt and it is within these locations that it is most important to sustain tourism. In addition, there are also larger sites in the rural areas which will be safeguarded. Sites in attractive locations are likely to be more adaptable to meet the needs of more discerning tourists.
3.71 Sites with a good range of recreational facilities, especially indoor facilities are more likely to prove popular than sites without such facilities. In some cases the recreational facilities are also available to non residents and provide for day visitors and residents. The loss of sites with facilities can therefore have a serious impact on tourism amenity. Sites which are large enough to provide the space and the income to invest in recreation facilities should also be safeguarded.
3.72 Safeguarding upgraded sites is a necessary objective, as they represent significant capital investment, which may not be repeated, and offer the best opportunity to cater for current and future tourism potential. Similarly sites which by virtue of their location, character, layout and size offer scope for upgrading or further upgrading will also be safeguarded.
3.73 The protection of a range of holiday accommodation including letting caravans, chalets and owner occupied units is also an important objective for maintaining and enhancing the development of tourism.
3.74 The Council will allow extensions to existing sites where significant improvements can be made to the appearance, layout and amenity of such sites. Within the St. Osyth Beach, Jaywick and Point Clear areas the topography dictates a particular need for all proposals relating to the upgrading of existing caravan and chalet parks, to be accompanied by very extensive and appropriate landscaping schemes which respect local conditions. This will help to improve the appearance of individual sites, and reduce their impact on the flat and exposed nature of the coastal landscape in this area.
Touring Caravans and Tents
3.74a In recent years some sites have reduced or discontinued their facilities for touring caravans and therefore, there may be a need for additional provision of higher quality facilities. The Council will therefore encourage schemes which introduce facilities for touring caravans and tents on new sites and within existing static sites, new holiday village developments, recognising the economic benefits of the provision of a wider range of tourism accommodation.
3.74b Following the recommendations of the Tendring Tourism Study, the holiday occupation period has been extended for most accommodation to over 10 months of the year. This brings the period in line with other coastal resort areas. However, the Council is keen to avoid possible increases in full-time occupation of holiday units. This is because holiday accommodation is unsuited for such a purpose by virtue of its construction standards and setting in areas not suitable for permanent residential occupation particularly in the winter months. Also permanent occupation displaces accommodation intended for tourism use. Many such sites are also located in areas that are potentially vulnerable to flooding. It is proposed that wherever possible occupation of these holiday homes should be restricted to certain times of the year, principally the summer holiday season, the Christmas and New Year period and at weekends, although additional provision is made for winter breaks. Properties can of course be used for the storage of household effects at all times.
3.77 Policy HG20 in the Sustainable and Affordable Housing Chapter specifically deals with the related issue of plotland development and extensions to holiday dwellings.
Small Holiday Villages
3.78 The Tourism Study recognised that a number of small scale self-catering holiday villages have been developed throughout the country often in wooded locations. The study also highlighted that there may be demand for this type of facility in the District.
3.79 The term small “holiday village” in this context is defined as comprising well designed timber chalets set on plinths and with pitched roofs, located preferably in a predominantly wooded and undulating landscape setting with water features. The emphasis is on lower densities and more informal layouts than traditional caravan sites, and high quality facilities possibly grouped in a club house excluding commercialised amusements entertainment. In essence the development’s concept aims to provide for the more passive leisure activities appropriate to the countryside which visitors able to pay the higher cost of accommodation are looking for.
3.80 It is also essential that proposals are in sympathy with the surroundings and contain a detailed site survey and assessment of the landscape impact of the proposal. The design of holiday villages must be carefully considered to ensure that they blend in with their surroundings. These facilities could also allow for the provision of a limited number of touring caravans.
Serviced Tourist Accommodation
3.83 Within the District as a whole there has been a steady decline in the number of hotels and guest houses over the last 25 years. Some premises have been lost to redevelopment mainly for housing schemes whilst others have been converted to institutional uses including care and nursing homes and hostels of one kind or another. The Council recognises that in addition to self-service and caravan accommodation there is a need to retain and upgrade the existing stock of hotels and guest houses. This is particularly important within the core resort areas of the main resorts. This will ensure that there is a wide choice of accommodation for tourists. However, the Council also recognises that economic circumstances can change and wherever it can be proven that there is no longer a need for the current land use, change of use will be permitted. The applicant will need to prove that the land use is no longer viable by using the same criteria as set out for Policy ER3, which is explained in detail in Appendix 3a.
3.84 More detailed policies relating to hotels, guest houses and tourism can be found in area policy statements and featuring where appropriate on Proposals Map Insets.
Other Tourist Related Developments
3.85 The traditional influx of large numbers of visitors to the area in the summer months has given rise to the establishment of numerous commercial enterprises specifically catering for the needs of tourists e.g. guest houses, holiday flats, restaurants, craft shops etc. Often such uses can be introduced through the conversion of existing buildings. The Council supports the conversion of suitable buildings for these uses particularly when proposals create an opportunity to secure the preservation and effective use of a building of architectural or historic interest.
3.86 As part of the Government’s rural economic diversification policy initiatives, the kind of uses described above may be appropriate for the conversion of rural buildings, particularly if they are situated on the fringes of the main settlements or are in village locations. Further guidance on conversions of buildings to employment generating uses is set out in Policy ER11.
Facilities along the A120 Corridor
3.87 As a result of its involvement in the promotion of tourism within the District, and in particular the recognition that large numbers of European tourists pass through Harwich and subsequently along the A120, the Council has identified a need for the provision of tourist facilities along this route. Provision could include a catering establishment, motorist service facilities, local tourism information, picnic areas and possibly high quality hotel accommodation with appropriate ancillary leisure facilities.
3.88 To be consistent with other policies in the Plan particularly those associated with countryside conservation and transport, new tourist related facilities will need to relate to other planned development on the edge of existing settlements within the corridor, rather than occupying free standing “greenfield” locations. Consequently Policy ER27 makes provision for facilities at appropriate locations. Sites for large new employment areas on the edge of Harwich in the A120 corridor, referred to in Chapters 2 and 3 may also be suitable locations for accommodating associated hotel and tourist facilities. These facilities will need to be provided within an attractive quality environment and will therefore also be suitable for the needs of tourists visiting and passing through the area.
Tourist Information Points and Picnic Sites
3.89 The Countryside Agency has recommended the establishment of picnic areas along major roads to cater for the needs of holiday visitors. These facilities can often be incorporated within service stations, country parks or tourist information points. Well designed and sign posted facilities help to reduce the problems of unauthorised catering and litter associated with lay-bys.
Amusement Centres
3.90 Amusement arcades and family entertainment centres are an essential part of the facilities and vitality of seaside resorts, especially at night or when the weather is poor. However, it is important that they are located where they would not be detrimental to the character of an area, highway safety or the amenities of residential properties and other uses particularly sensitive to noise and related disturbance. Amusement centre areas are defined on certain Proposals Map Insets, and referred to in appropriate area policy statements. These areas identify locations where amusement centres will be concentrated.
Casinos
3.91 The Gambling Act 2005 modernises the law on gambling and introduces a unified regulator for gambling, the Gambling Commission. Whilst this new Gambling Commission will regulate the gambling industry the Act passes the responsibility for the licensing of gambling premises to Local Authorities. It is likely that the provisions of this Act will be fully implemented by late 2007. Under the recommendations made by the Budd Report (2001) casinos in the future may include bingo and betting in addition to table games and live entertainment. Resort casinos may also be able to offer gaming, accommodation, restaurants and possibly conference facilities. The Council considers that casinos are best provided as part of larger development complexes where the opportunity to achieve a comprehensive mix of hotel, leisure and shopping facilities can be realised. Because of the numbers of people attracted, and their hours of operation, it would be inappropriate to allow such complexes within predominantly residential areas.
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A casino and/or related uses will only be permitted within the predominantly non-residential parts of Clacton or Walton town centre or seafront, which are also within a defined urban regeneration area. Any such proposals should:
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Town and Other Retail Centres
3.92 Retailing is a highly important component of the District’s economy. The strength of spending is regarded as an indicator of the performance of the national economy. The health and vitality of the District’s town and other retail centres may therefore, be taken as indicators of local economic performance. The maintenance of existing town and other retail centres and new investment in retail facilities are also important complementary parts of the Plan’s regeneration objectives.
3.93 This section deals with planning policies relating to retail and other town centre uses within the District as a whole and provides guidance on all forms of retailing and other town centre uses within town centres, district centres, local centres and rural areas.
National Context
3.94 National policy guidance on retailing is set out in PPS6: Planning for Town Centres which was published in March 2005. The emphasis of PPS6 is to encourage new retail development to locate within existing town centres, based on a “sequential approach” to site selection. Additionally, the guidance seeks to promote town centres in terms of quality and vitality through town centre management initiatives, environmental improvements and good urban design. The guidance also states that in addition to shops, town centres are appropriate locations for a range of leisure, entertainment, sports facilities, offices and cultural and tourist facilities, all of which attract large numbers of people and trips. In addition PPS6 refers to the Government’s wider policy objectives that are relevant, relating to social inclusion, regeneration, promotion of economic growth and the delivery of more sustainable patterns of development.
Regional Context
3.95 Currently, Regional Planning Guidance for the South East (RPG9) published in March 2001 recognises that existing town centres will continue to be the main focus of the economic and social life of the communities in the region. It states that town centres have suffered from the last recession and the diversion of investment to out-of-centre retail developments. To reverse this trend the guidance states that there is a need to focus retailing development in town centres partly through urban renaissance mechanisms and to avoid further development in out-of-centre locations.
Replacement Structure Plan
3.96 The Replacement Structure Plan sets out a strategic planning policy context for the consideration of new retail development. The Plan sets out a strategic hierarchy for shopping centres and describes Clacton, Frinton and Harwich as principal town centres, which are smaller than the main sub-regional centres within the county such as neighbouring Colchester. The Structure Plan also reflects the sequential approach set out in PPS6 and seeks to protect the vitality and viability of existing town, district and local centres.
3.96a More recent work undertaken by the County Council suggested the formation of a “major centre” category below the sub-regional level, which includes Colchester. The suggested “major centre” includes Clacton whilst the other centres of Frinton and Dovercourt fall within a “Town centre” category.
District Wide Retail Study
3.97 Between 1998 and 2003 the Council commissioned a series of comprehensive retail studies carried out by consultants. The studies included full health checks for the main town centres within the District including Clacton, Frinton, Walton, Dovercourt, Brightlingsea and Manningtree, in addition to summary health check studies for Old Road in Clacton, Great Clacton and The Triangle in Frinton.
3.98 Further related studies also established the overall need for retail floorspace provision for the Plan Period in phases up to 2006 and 2011, in addition to making recommendations on the policy content for the Tendring District Local Plan 2007. The studies concluded that the District’s town centres were in varying states of health but were all fulfilling a useful local shopping role. Future planning policies should continue to maintain and enhance their respective retailing roles.
3.99 In addition, the studies concluded that there was a need for further non-food bulky goods retail floorspace in the Clacton area all of which was unlikely to be accommodated within Clacton Town Centre and therefore, the identification of a suitable out-of-centre shopping location for shops selling bulky goods was considered to be necessary. Since the Study was completed a large out-of-town non-food bulky goods retail development at the Brook Park site on the edge of the built up area of Clacton has opened. This development provides for the majority of bulky goods floorspace identified by the retail study. Taking into account the potential sites within the built-up area, there is no need to identify a further out-of-town site in the Plan Period.
3.100 The retail study which concluded there was a need to accommodate a small amount of food shopping floorspace across the District, together with the recent development of a new foodstore on the Brook Park site means there is no need to identify a further site for a large foodstore. A sub-regional study, the Retail Study for North Essex was issued in 2006.
Hierarchies of Centres
3.104a The district contains a number of centres, each performing an important function within a well established hierarchy of centres. Town centres are areas of predominantly leisure, business and other main town centre uses and provide a full range of facilities and services. District centres usually comprise groups of shops often containing a supermarket, a range of non-retail services and public facilities. Local centres include a range of small shops of a local nature and serve a small catchment area.
3.104b Town centre boundaries have been defined for Clacton, Dovercourt, Frinton, Walton, Brightlingsea, Manningtree and Harwich and are defined on the Proposals Maps. The town centre boundary is the relevant boundary for the purposes of assessing need and applying the sequential approach to the development of new town centre uses. Town centre uses include:
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Retail;
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Leisure, entertainment facilities and intensive sport and recreation uses;
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Offices; and
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Arts, culture and tourism.
3.104c The town centres are conveniently located for the majority of the District’s population and are also the focal point for public transport. It is the Council’s intention that they be protected and remain the economic and social focus for the whole community. The District centres also contain a wide range of shops and services and will be suitable locations for accommodating new retail and related developments such as cafes and professional offices in scale with the functions and size of the particular centre.
Proposed Town Centre uses outside existing Town Centres
3.111c Any proposals for new town centre uses outside of existing centres will be considered against Policy ER32 and the sequential approach as set out in paragraphs 2.44, 3.13, 3.19, 3.29 and Annex A Table 2 of PPS6.
3.112 The Council will require developments proposed on edge and out-of-centre sites to be accompanied by a statement, which is evidence based and justifies the need for the development. This will need to be independently verified, which the applicant will be expected to fund. The level of need should be considered in relation to the following broad floorspace estimates derived from the District-wide Retail Study as updated in 2003, for the periods up to 2006 and 2011.
Comparison Goods Floorspace Needs
Area |
Type of Goods |
2006 (sqm) |
2011 (sqm) |
Clacton Area |
Non-bulky goods |
7,100 |
14,100 |
Bulky goods |
2,600 – 4,200 |
5,100 – 8,400 |
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Harwich Area |
All comparison goods |
1,500 - 3,000 |
3,000 - 5,250 |
Brightlingsea/ Manningtree Area |
All comparison goods |
1,300 - 2,400 |
2,300 - 4,300 |
Convenience Goods Floorspace Needs
Area |
Type of Goods |
2006 (sqm) |
2011 (sqm) |
Clacton Area |
Convenience goods |
0 |
0 |
Harwich Area |
Convenience goods |
225 |
425 |
Brightlingsea/ Manningtree Area |
Convenience goods |
50 |
75 |
3.114 In accordance with PPS6 the following policy will apply in determining planning applications for proposed town centre uses outside the defined town centres.
Primary Shopping Area
3.116a In addition to a town centre boundary, a ‘primary shopping area’ has been defined for Clacton. In accordance with guidance in PPS6 the primary shopping area is the preferred location for new shopping development. It is not necessary to demonstrate ‘need’ for new shopping developments within this area. The extent of the primary shopping area is defined on the Clacton Proposals Map.
Primary Shopping Frontages
3.116b The town centres all contain a primary shopping frontage in which development is restricted to a high proportion of A1 uses. This approach was recommended by the Council’s retail consultants and is consistent with Government guidance.
3.117 If the proportion of Class A1 shop uses in the Primary Shopping Frontages continue to decline through the changes of use away from shops the Council is concerned that this could undermine the retail function of the District’s town centres. In addition, allowing a number of non-retail uses in close proximity to one another within the Primary Shopping Frontages will have the effect of breaking up the coherence of the centres. This could damage the attractiveness of the shopping frontages and lead to an undermining of the overall vitality and viability of a centre. Therefore, within the identified Primary Shopping Frontages as shown on the Proposals Map Insets, Policy ER33 seeks to protect the retailing vitality and character of each town centre by controlling the proportion of non shop units so as not to exceed 10% of the length of individual street frontages.
Small Convenience Stores Outside of Centres
3.123 Parts of the built up areas of the District contain large suburbs with few local accessible convenience stores. Examples are parts of West Clacton and Dovercourt where housing is the predominant use. Policy ER37 provides a policy basis to allow for the development of small convenience stores of up to 150sqm floorspace. The size limitation is necessary to ensure that any such stores principally perform a local shopping role; surrounding areas do not suffer unduly from noise and traffic and to avoid sporadically sited larger supermarkets and superstores, which would, need to be considered against Policies ER31 and ER32. Policy ER37 also applies to related proposals in villages.
3.123a Larger convenience facilities, above 150sqm floorspace within or on the edge of villages are more likely to have a material adverse impact on the vitality and viability of existing nearby small scale shopping provision and will therefore, need to be considered against policies ER31 and ER32. Larger stores would also be more likely to draw in car based trade from wider areas and will therefore not normally be permitted.
Retail Uses in the Countryside
3.129 Farm shops are a further form of retail provision found in rural areas and usually do not require planning permission providing the goods sold from the site are produced on the farm or holding. The sale of a small amount of imported produce to supplement the home produced goods could also contribute to local shopping provision and economy and would be particularly beneficial if located close to an existing village.
3.130 Farm shops should be established using existing buildings wherever possible and permission will not normally be granted for the construction of new buildings for use for retail purposes. Where planning permission is required, the following Policy will be applied.
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Farm shops will be permitted where they:
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Market Trading and Car Boot Sales
3.131 Proposals for market trading or car boot sales can have serious environmental or economic consequences within an area and therefore need to be considered very carefully. In the light of the number of markets and car boot sales currently operating in the District, the Council will give serious consideration to serving an immediate Article 4 Direction under the General Permitted Development Order, requiring a planning application to be made for any regular market or car boot sale proposals which come to its notice.
Forecourt Trading
3.132 In considering planning applications for forecourt trading the Council is especially concerned with preventing piecemeal, noisy or unsightly forms of display and safeguarding public safety. In certain cases when permitting proposals, which could lead to forecourt trading activities, such as shops, caf_s or amusement arcades, the Council may by condition require separate planning consent for any forecourt trading on environmental or public safety grounds.