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12.01 Shopping is an integral part of our daily lives. It is both a necessity
and a leisure pursuit. The large number of consumers involved in the process
creates a complex set of forces that influences the distribution of shops. Poole
has a significant role in the provision of retailing in the South East Dorset
conurbation, with the town centre serving a catchment beyond the Borough’s
boundary.
12.02 Until the mid-1980s, shopping was distributed in a relatively clear
hierarchy of principal centres, district centres, neighbourhood centres and
local centres. The growth of Poole prompted new investment in shopping
facilities, including the up-grading of the town centre and the provision of new
neighbourhood centres to serve large new housing estates. Between the mid-1980’s
and early 1990’s, there was considerable growth in retail floorspace outside
traditional centres. A network of free-standing food superstores has evolved in
Poole as well as retail warehouse parks serving a catchment area beyond Poole’s
boundaries. The mid 1990’s witnessed a decline in the condition of some of the
retail parks while the market for large convenience stores had been met by
significant new store openings in the early part of the decade. More recently,
Poole has witnessed a complete refurbishment of one of its retail parks.
The Dolphin Shopping Centre
12.03 Poole Retail Study, April 2001, found that there is capacity for some
additional retail floorspace within the Borough up to 2011. Findings indicate
that the Town Centre is performing well but suffers from a lack of convenience
floorspace while being well provided with comparison floorspace. In terms of
quantitative and qualitative need there is justification for additional
convenience provision being accommodated to support the role of Poole Town
Centre. Projected capacity is also identified for bulky comparison goods,
however, the recent refurbishment of the Wessex Gate Retail Park, an extended
B&Q Depot and other completed out of centre stores in the Fleetsbridge area is
likely to accommodate this in the short to medium term. 
|
Area |
2001 |
| Poole Town Centre |
72 520 |
| Rest of Poole
(other town and local centres) |
54 916 |
| Out of Town/Local
Centres: |
|
| i) Retail
Warehouses |
68 211 |
| ii) Superstores |
16 789 |
(Source: Poole Retail Study - April 2001).
12.04 The Shopping chapter addresses the retail issues identified within
Poole. It will detail the framework for assessing planning applications and the
accommodation of identified retail need within the Borough.
12.05 Government advice is set out in Planning Policy Guidance Note 6: Town
Centres and Retail Developments. The Government’s objectives are:
i) to sustain and enhance the vitality and viability of town centres;
ii) to focus development in locations where the proximity of businesses
facilitates competition from which all consumers are able to benefit and which
maximises the opportunity to use means of transport other than the car;
iii) to maintain an efficient, competitive and innovative retail sector;
and
iv) to ensure the availability of a wide range of shops, employment,
services and facilities to which people have easy access by a choice of means
of transport.
12.06 The objectives are said to seek to promote sustainable development and
are consistent with the Government’s Sustainable Development Strategy and with
Planning Policy Guidance Note 13: Transport. It is for local planning
authorities to encourage town and district centres as the preferred location for
development which attracts many trips as well as encouraging a choice of
transport modes and for such centres to meet the needs of residents.
12.07 The PPG defines what is meant by the term ‘town centre’, expands the
definitions of vitality and viability and gives further detail on how to assess
the impact of retail proposals. Significantly, the PPG introduces the sequential
approach to selecting sites for development for retail, employment, leisure and
other key town centre uses. In practice first preference should be for town
centre sites and only then if no suitable site exists should edge of centre
sites, district and local centres be considered. Only after all these options
have been explored should out of centre sites in locations that are accessible
by a choice of means of transport be entertained. However, where there is no
need or capacity for further developments there will be no need for
identification of further sites. The issue of need has since been clarified by
the Planning Minister’s statement of February 1999 that both edge of centre and
out of centre proposals on sites not allocated in the development plan should be
required to demonstrate need.
12.08 Planning Policy Guidance Note 13: Transport, identifies the important
interaction between transport and land use and that the location and nature of
new development can affect the amount and method of travel. Local authorities
can influence the location of new development relative to transport provision
and development plans can be used to reduce the need to travel, especially by
car. PPG 13 states that local authorities should seek to encourage local
convenience shopping in local centres and allocate accessible, out of centre
locations for bulk shopping, while encouraging other forms of shopping in
existing centres.
12.09 The Structure Plan sets out the strategic context for retail development.
The strategy is based on the sequential approach as set out in PPG6 with retail
development guided foremost in or adjacent to the existing shopping centres of
the Bournemouth-Poole conurbation and the other main towns of Dorset. Retail
development will need to address issues concerning the character of centres,
vitality and viability, affect on nearby centres, not prejudice availability of
employment land and be easily accessible by a choice of means of transport.
12.10 The strategy for the Local Plan is set out in
Chapter 3 and one of the key
aims of this strategy is to enhance the role of the Central Area including the
town centre. The Central Area has a number of roles including employment,
residential, cultural, tourism and recreation which complement each other and
assist in maintaining the vitality and viability of the retail environment in
Poole. The Central Area is the most accessible area of Poole by public transport
and, as traffic congestion increases and greater efforts are made to improve
public transport, it would be logical and more sustainable to locate appropriate
uses in the town centre.
12.11 The Local Plan aims to ensure the availability of a wide range of
shopping opportunities. A healthy retail sector assists the local economy, and
can provide a wide choice to the shopping public. However, this aim must be
balanced against the other land use needs of the community. The objectives of
this chapter are therefore:
- to achieve the expansion and up-grading of retailing within the town
centre;
- to enhance the vitality and viability of the network of local centres
within Poole;
- to protect open countryside and land required for other employment uses
from large out-of-centre shopping facilities; and
- to ensure an adequate supply of sites for out-of-Town Centre retailing.
12.12 Poole Town Centre is the focus for shopping in Poole with 72,520 square
metres of floorspace in 2001 (Table 12.1). This is the pinnacle of the retail
hierarchy within Poole despite the growth of out-of-centre retailing over the
last 10 years. The development of free-standing convenience food superstores and
retail parks have become a feature of the Borough’s shopping hierarchy, partly
as a result of the Borough’s rapid growth over the last 20 years. This growth
period of greenfield expansion has now come to an end and retailing will have to
adapt to change within the current urban boundary. The shortage of greenfield
sites for expansion results in competing pressure on the remaining land and the
retailing sector will have to recognise that site availability will be
constrained by competing pressures for employment land. Retailers and developers
will need to be flexible about format, design and scale of development as well
as the amount of car parking, tailoring these to local circumstances. PPG 6 now
acknowledges the importance of existing centres and the impact that
out-of-centre stores can have and therefore the policies in this Chapter will
reflect the changing nature of retailing locally and nationally, including the
requirement for retail proposals on sites outside of centres and not allocated
for retail use to demonstrate need.
12.13 The need to promote the town and local centres and ensure their vitality
and viability, as defined in PPG 6 and to produce integrated transport and land
use policies to achieve sustainable development are prime considerations.
Opportunities for investment in retailing in centres exist, particularly the
town centre, and the Council will continue to promote these development
opportunities. Proposals which will have an adverse impact on retail provision
of the town and local centres and do not meet the locational requirements of
different retail forms, as set out in the following retail policies, will not be
supported.
12.14 PPG 6 sets out three important tests for assessing retail proposals.
Firstly, the catchment of a proposed development should be defined and an
assessment of the effect of a proposal on vitality and viability undertaken.
Indicators for measuring vitality and viability are found in Figure 1 of PPG 6.
A quantitative assessment of trading impact will need to be considered alongside
a qualitative assessment of the likely effect on services provided, vacancies,
likely future investment in the town centre, the potential change to the role
and physical condition of the centre and on the strategy for the town centre.
Secondly, a proposal will be assessed on its ability to be accessed by a choice
of means of transport, and thirdly, its impact on overall travel patterns and
car use. Proposals which are likely to have a significant impact on a centre,
and in any case those proposing over 2,500 square metres gross floorspace should
be supported by evidence of impact.
S1 RETAIL DEVELOPMENT - LOCATION
NEW RETAIL STORES SHOULD BE LOCATED IN THE TOWN CENTRE. IF
THERE ARE NO AVAILABLE SITES THEN EDGE-OF-CENTRE LOCATIONS SHOULD BE CONSIDERED
AND ONLY THEN IF THERE ARE NO AVAILABLE SITES SHOULD OUT OF CENTRE SITES BE
INVESTIGATED. PROPOSED EDGE OF CENTRE AND OUT OF CENTRE RETAIL STORES WILL ONLY
BE PERMITTED IN CASES WHERE:
i) A CLEARLY IDENTIFIED NEED IS ESTABLISHED;
ii) NO SUITABLE SITE IN THE TOWN CENTRE, OR IN THE CASE OF
OUT OF CENTRE PROPOSALS, NO SUITABLE EDGE OF CENTRE SITE OR SITE IN A LOCAL
CENTRE IS AVAILABLE;
iii) THE DEVELOPMENT, EITHER BY ITSELF OR TAKEN TOGETHER
WITH OTHER DEVELOPMENT PROPOSALS, WILL NOT UNDERMINE THE VITALITY OR VIABILITY
OF THE TOWN OR A LOCAL CENTRE; AND
iv) THE SITE IS WELL RELATED TO THE HIGHWAY NETWORK, AND
READILY ACCESSIBLE BY PUBLIC TRANSPORT, BICYCLE OR ON FOOT.
12.15 Out-of-centre convenience stores have been identified as having certain
benefits, including helping to reduce the length of trip and overall mileage
associated with retail journeys. However, Government policy seeks to prevent
further out of centre retail development. Poole Retail Study identified a
quantitative need for additional convenience floorspace. Since the closure of
Tesco in the Dolphin Shopping Centre there has been a lack of choice and
competition for consumers in the town centre. The local plan addresses this
issue through the mixed-use allocations of
policies CA3 (former Dalgety site)
and
CA15 (Pitwines west) to bring forward increased retail capacity and support
the vitality and viability of Poole Town Centre. This will meet the need for
major convenience retailing over the lifetime of the plan. This approach whilst
supporting Poole Town Centre will mean that land in out of centre locations in
the rest of the Borough required for other purposes is not released for
convenience retailing.
12.16 Proposals for retail stores on sites not allocated for retail development
will be subject to
Policy S1 and the tests set out in
paragraph 12.14. It is
recognised that proposals for new forms of retail development, particularly
stores selling bulky goods may need to be accommodated on sites outside town
centres. Poole’s retail strategy is to direct bulky goods that cannot be
accommodated in the town centre to retail parks reserved for this purpose
(Policy S7) thereby allowing for linked trips between retailers.
12.17 Poole town centre is a vibrant shopping venue. The Dolphin Shopping
Centre, Falkland Square and Kingland Crescent form the primary retail area
whilst High Street offers greater diversity of uses in an historic setting. Much
of the centre is given over to comparison shopping with convenience
representation in the form of a Sainsbury superstore and smaller traditional
high street stores. The vision for Poole’s Central Area includes the
regeneration of significant vacant and under used sites and the revitalisation
of existing parts of the town. Retailing has a key role providing shopping
facilities to meet the needs of residents and visitors to Poole. The
regeneration opportunities in the Central Area will allow the town to provide
new facilities as well as the upgrading of the town centre.
12.18 The town centre boundary is identified on the proposals map and forms the
basis for applying the sequential approach. Within the town centre there are no
new allocations for retail development, although opportunities exist for
refurbishment and redevelopment to upgrade existing provision. Poole Retail
Study April 2001 identified the need for additional convenience floorspace in
the town. In assessing how and where this need is met two solutions have been
arrived at. Firstly, within the town centre, an enhanced Sainsbury store and/or
the provision of a smaller convenience store as part of a mixed scheme on the
Pitwines West site will help to meet additional capacity and provide increased
consumer choice. Secondly, by bringing forward edge of centre brownfield land
through reuse of key sites where enhanced links to the town centre and key
transport facilities can be provided. Together these options would meet the
additional need upto 2011. In assessing the need for additional convenience
floorspace and undertaking a sequential site assessment the Council has
identified the former Dalgety site, West Quay Road, as a suitable location for
additional convenience floorspace as part of a mixed-use redevelopment (Policy
CA3).
12.19 The Dolphin Centre includes the existing covered shopping centre,
Kingland multi-storey car park, bus station and vacant site to the east. It is
one of the most important sites in Poole, being the focus for retailing, the
town’s busiest public transport node, the heart of a major employment area and
opposite The Lighthouse. The opportunity exists for improvement of the urban
environment and provision of facilities that support the aims of improving the
quality of attractions in the Town Centre. The Dolphin Shopping Centre is an
important destination and offers the only all weather shopping and leisure
facility in South East Dorset. The Council will continue to work with the
Dolphin Shopping Centre Management and other landowners to upgrade the physical
appearance and attractiveness of this important entrance in the town. See
Policy
CA12 for mixed use proposal for the area to the east of the Dolphin Shopping
Centre.
12.20 The High Street remains an important element of the retail function of
the town centre despite the development of modern facilities north of the
railway line. The areas adjoining the Dolphin Centre offer prime retail frontage
in a pedestrianised area. North Street, cutting across High Street, forms a
physical divide and a change in character to the provision of town centre
shopping facilities. High Street provides a vital link between the Dolphin
Centre and the Quay and the retention of its vitality and viability is essential
to the role of the town centre.
12.21 North of North Street, recent infill development and new shopfronts, as
well as environmental improvement carried out by the Council have improved the
quality of the shopping area immediately adjacent to the Dolphin Centre. This
area is prime retail frontage, particularly Falkland Square, supported by
retailing in Kingland Crescent. This area is dominated by A1 uses and a number
of A2 uses. It is important that A1 uses are retained and that this primary
frontage continues to support the indoor shopping facilities. However, it is
recognised that some scope for A2 and A3 uses, particularly an attractive cafe
with possible outdoor seating in Falkland Square can help to enhance the
vitality and viability of the town centre.
12.22 The Council’s aim is to maintain a predominantly retail frontage with
appropriate provision of non retail facilities which will enhance the retail
function by offering a reasonable choice of services to shoppers. Proposals will
be assessed against the existing provision of retail uses and the mix of
commercial and retail uses. Harm to the retail character will be determined by
whether a proposal would be damaging to the vitality and viability of the town
centre. This will be assessed based on a number of criteria including whether
the proposal would result in dead frontage i.e. not requiring passing trade and
whether the proposal would result in an over concentration of non retail uses in
any part of the primary shopping area. Non retail uses should be dispersed
around the centre contributing to movement and pedestrian flow.
S2 TOWN CENTRE - PRIMARY RETAIL FRONTAGE
WITHIN THE PRIMARY RETAIL FRONTAGE SHOWN ON THE PROPOSALS MAP,
USES OTHER THAN IN CLASSES A1, A2 OR A3 WILL NOT BE PERMITTED. A2 AND A3 USES
WILL BE PERMITTED PROVIDED THAT:
i) THEY PROVIDE A SERVICE TO SHOPPERS; AND
ii) THEY DO NOT HARM THE PREDOMINANTLY RETAIL CHARACTER OF
THE PRIMARY FRONTAGE, EITHER INDIVIDUALLY OR TAKEN TOGETHER WITH OTHER NON
RETAIL DEVELOPMENTS.
12.23 From North Street to Poole Quay, High Street is characterised by older
properties which formed the mainstay of the town centre shopping function prior
to the development of the Dolphin Shopping Centre. These older premises are
available on lower rents, allowing for specialist and a variety of uses able to
benefit from the lower overheads. It also allows for uses that may be considered
unsuitable in primary retail areas, yet provide a valuable service to a town
centre. In such secondary retail areas, uses such as banks and building
societies (A2), restaurants and cafes (A3) and other uses displaying a retail
character will be appropriate, as well as uses such as job and advice centres
which provide important supporting services to central areas. When determining
the appropriateness of non retail uses in secondary areas, consideration of
existing vacancy rates and the likely impact of a further non retail use will
need to be considered. The High Street forms one of the town centre’s
conservation areas and is, therefore, considered an inappropriate location for
amusement centres (Policy S8). At its southern end, the High Street makes an
important contribution to the tourism facilities of the Quay and surrounding
area. Proposed development will need to show how it will integrate into the
conservation area, protecting the historic fabric and also the tourism role of
the area.
S3 TOWN CENTRE - SECONDARY RETAIL FRONTAGE
WITHIN THE SECONDARY RETAIL FRONTAGE SHOWN ON THE PROPOSALS
MAP, USES A1, A2 AND A3 WILL BE PERMITTED. OTHER USES WILL BE PERMITTED PROVIDED
THAT:
i) THEY PROVIDE A SERVICE TO SHOPPERS OR TOURISTS; AND
ii) THEY DO NOT HARM THE PREDOMINANTLY RETAIL CHARACTER OF
THE HIGH STREET, EITHER INDIVIDUALLY OR TAKEN TOGETHER WITH OTHER NON RETAIL
DEVELOPMENTS.
12.24 Poole has a network of district and neighbourhood centres providing
local services. These centres help to reduce the number of vehicle trips and
mileage made for shopping purposes; ensure provision of retail facilities for
those without a car; provide a focus for the community and allow a wide range of
specialist shops. The main feature of such centres is the retailing element and
the associated uses and services drawn to these locations. Whilst it may not
always be necessary to have policies that purely retain A1 uses, it is generally
appropriate to formulate policies which allow the continued vitality and
viability of centres which form an important part of the Borough’s retail
hierarchy. Detailed policies for the Local Centres can be found in
Chapter 15.
S4 RETAIL DEVELOPMENT IN LOCAL CENTRES
RETAIL DEVELOPMENT WILL BE PERMITTED IN LOCAL CENTRES PROVIDED
THAT:
i) IT IS LESS THAN 500 SQUARE METRES NET RETAIL FLOORSPACE;
OR
ii) THERE IS NO SUITABLE SITE AVAILABLE IN THE TOWN CENTRE.
12.25 Occasionally there will be opportunities for small scale retail
development outside existing centres. These may include a new shopping parade
serving a new estate or a petrol station that incorporates a retail element.
Provided that the development is small scale, generally serving a local
catchment area, there is no objection subject to the normal assessment criteria
for any planning application. Larger convenience style outlets will seek visible
sites on major highways. However, such stores can help to serve a local area
and, therefore, for the definition of small scale, it will include retail
development up to 200 square metres net retail floorspace. Such development can
complement existing local provision and improve accessibility of shopping
opportunities.
S5 SMALL SCALE RETAIL PROPOSALS
PROPOSALS FOR SMALL SCALE RETAIL DEVELOPMENTS OF LESS THAN 200
SQUARE METRES NET RETAIL FLOORSPACE WILL BE PERMITTED. SUCH STORES WILL
GENERALLY BE ACCESSIBLE BY FOOT TO THE CATCHMENT IT IS SERVING AND NEED NOT BE
LOCATED IN A LOCAL CENTRE.
12.26 Poole has an extensive range of out-of-centre warehouses totalling
68,211 square metres of gross floorspace (Table 12.1). The majority of this floorspace is found at three locations, the Poole Commerce Centre, Mannings
Heath and Wessex Gate. These parks offer a broad range of bulky durable,
household, DIY and garden products. They are situated in convenient locations
for the car borne shopper, adjacent to major highways and providing plentiful
car parking. The need to preserve the Borough’s supply of employment land and
other land use allocations results in a lack of further potential retail sites.
Therefore, it is important to ensure that adequate sites for non food retail
warehouse development is provided within the Borough. The retail parks will,
therefore, be reserved for retail use. Substantial schemes requiring more than
one site will be directed to the retail parks and it may be that amalgamation of
sites will be necessary. Whilst it is not the intention to restrict the sale of
goods, other than food and convenience products from retail warehouses, it may
be that conditions will need to be attached to planning permissions in order to
protect the town and local centres from retail proposals which could adversely
affect the vitality and viability of centres. This would not prevent the sale of
ancillary goods or ancillary uses which in themselves would not require planning
permission.
S6 RETAIL PARKS
RETAIL PARKS, AS SHOWN ON THE PROPOSALS MAP, ARE RESERVED FOR
NON FOOD RETAIL WAREHOUSING FOR THE SALE OF BULKY DURABLE, GARDEN OR DIY GOODS.
12.27 Proposals for retail warehousing are subject to the sequential approach
as set out in PPG6. Where no suitable site is available in the town centre then
sites in edge of centre locations and local centres will need to be assessed,
and only then if no suitable site is available should out-of-centre locations be
considered. Proposals outside of town centres will have to demonstrate need
where they are proposed on sites not allocated for retail use.
S7 RETAIL WAREHOUSING
RETAIL WAREHOUSING FOR THE SALE OF BULKY DURABLE, GARDEN OR
DIY GOODS WILL BE PERMITTED:
i) IN THE TOWN OR LOCAL CENTRES; OR
ii) IN RETAIL PARKS PROVIDED THAT NO SUITABLE SITE IS
AVAILABLE IN THE TOWN OR LOCAL CENTRES; OR
iii) BY REDEVELOPMENT OF EXISTING RETAIL OUTLETS.
PROPOSALS WILL HAVE REGARD TO MAINTAINING THE VITALITY AND
VIABILITY OF THE TOWN AND LOCAL CENTRES, AND TO THE PRINCIPLES OF SUSTAINABLE
DEVELOPMENT.
12.28 Amusement centres cover such activities as prize bingo centres,
amusement with prizes machines, for example fruit machines and amusement only
machines, for example pin tables and video games. They do not include uses
within class D2 of the Town and Country Planning (Use Classes) Order 1987. The
main planning considerations are the type of centre proposed, the impact on the
area in respect of noise and disturbance, vehicular and pedestrian movements and
the location and visual appearance of the proposed centre.
12.29 PPG 6 states that amusement centres are best located in secondary shopping
areas, excluding conservation areas and special areas of historic or
architectural character. Therefore, the preferred location will be in the
Borough’s local centres, outside conservation areas, as identified in
Chapter
15. Proposed amusement centres will be expected to have regard to the Council’s
Supplementary Planning Guidance on Shopfront design.
12.30 Poole’s tourist and beach areas have not been developed in a garish,
commercial way. Whilst it is always necessary to improve the facilities for
visitors to the beaches in Poole, their unspoilt nature is one of Poole’s
greatest assets (see also
Chapter 6: The Coast). It is, therefore, considered
inappropriate to allow amusement centres close to the beaches in Poole.
Similarly, the main tourist area of the Quay is not characterised by amusement
centres and seaside shops. Whilst it is intended to encourage retail units,
particularly in the alleyways leading off the Quay, the introduction of
amusement centres into an historic part of the Borough is considered
inappropriate.
S8 AMUSEMENT CENTRES
AMUSEMENT CENTRES WILL BE PERMITTED PROVIDED THAT:
i) THEY ARE WITHIN A LOCAL CENTRE OR AREA OF MIXED
DEVELOPMENT;
ii) THEY ARE NOT WITHIN A CONSERVATION AREA;
iii) THEY ARE NOT IN AREAS ADJACENT TO POOLE’S BEACHES;
iv) THEY DO NOT HAVE AN ADVERSE EFFECT UPON RESIDENTIAL
AMENITY; AND v) THEY ARE OF A DESIGN APPROPRIATE TO THE RETAIL CHARACTER OF
THE LOCAL CENTRE.
12.31 Occasionally there are proposals for temporary retail uses such as
markets and car boot sales. Such uses generally make use of vacant land and do
not prejudice the long-term development of sites. In many cases planning
permission is not required. Where permission is needed, providing that they do
not cause a loss of amenity to the surrounding area they will be considered
acceptable. For proposals on employment land, reference should be made to
Policy
E7.
S9 TEMPORARY RETAIL USES
THE USE OF VACANT LAND FOR TEMPORARY RETAIL USES WILL BE
PERMITTED PROVIDED THAT THERE IS NO LOSS OF AMENITY TO THE SURROUNDING AREA. |
