TOWN CENTRE & SHOPPING

Introduction

15.1 Colchester Town Centre is defined in the Structure Plan as a Sub-Regional Centre, and its importance as the focus of the Borough has long been recognised by the Council in its planning policies. This importance is reinforced by Central Government planning policy (PPG6 June 1996), which seeks actively to promote town centres and the wide range of activities and services that they provide.

15.2 The Council’s planning policies on their own cannot achieve all the objectives for the Town Centre, but they do lay a solid foundation for securing its future vitality and viability whilst protecting its historic environment.

15.3 One of the main functions of the Town Centre is that of shopping, and the Local Plan can now seek, in conjunction with Central Government policies, to protect and enhance this role by means of its shopping policies for the Borough as a whole.

15.4 The Town Centre is, however, much more than a shopping centre. Leisure, employment and cultural activity are also crucial to its attractiveness and, hence, its future vitality. Colchester is also fortunate in having an unusually large amount of housing in and around the Town Centre, which also contributes significantly to its overall character. All these activities are important to a balanced social and economic community, and the Council’s planning policies are aimed at maintaining and enhancing this variety and viability.

15.5 These policies are, however, only a part of the Council’s overall objectives for the Town Centre which it is carrying forward in the context of a range of other initiatives. These include the Council’s own Strategic Plan, the Local Strategic Partnership’s “Community Strategy”, specific partnerships to promote Town Centre Management and a new Transportation Strategy.

15.6 The planning policies are aimed at operating within this broad context, but it is intended that they will form the basis of decisions on Town Centre development and other environmental and management initiatives.

Strategy and Objectives

15.7 The overall strategy for the future planning of the Town Centre is: To maintain the pivotal role of the Town Centre as a major economic centre and the social and cultural focus for the Borough, by safeguarding its predominantly retailing core whilst at the same time allowing for a variety of complementary facilities and services compatible with its historic character and overall environment.

15.8 Objectives in respect of the environment, employment and housing are as follows:

(a) To protect, preserve and enhance the historic environment of the Town Centre, in particular its Ancient Monuments, listed buildings and open spaces;

(b) To ensure that all new development respects and enhances the historic character and built environment of the Town Centre and the Town Centre Conservation Area;

(c) To retain the existing range of uses appropriate to the character of Mixed Use Areas and to allow opportunities for small-scale change and improvements whilst resisting large-scale development;

(d) To promote living in the Town Centre by the sensitive redevelopment of appropriate sites and changes of use to appropriate buildings;

(e) To maintain and, if possible, enhance the job opportunities in the Town Centre by promoting as wide a range of job-creating uses and developments as are compatible with its historic character and the other objectives for the central area;

15.9 Objectives in respect of transportation and access are as follows:

(a) To promote public transport, cycling and walking ahead of private transport within the Town Centre;

(b) To minimise unnecessary access by private cars into the historic core of the Town Centre;

(c) To promote traffic and access management schemes within the Town Centre that are compatible with the preservation of its historic environment.

15.10 Objectives in respect of shopping are:

• To safeguard and promote the vitality and viability of Colchester Town Centre as a sub-regional shopping centre and to provide for new shopping development within or on the edge of the Town Centre.

SHOPPING ELSEWHERE

15.11 Elsewhere in the Borough, there are no district shopping centres as defined by PPG6. However, within both the urban and rural areas there are a series of local shopping centres, as shown on the Proposals Map. Three of these centres, Tiptree, West Mersea and Wivenhoe, have been designated as “Rural District Centres” because, in light of the geography of the Borough, they serve larger catchment areas, even though their general function is of a local nature.

15.12 Objectives for shopping development elsewhere are as follows:

• To safeguard and enhance shopping facilities in the local centres at Colchester and Stanway and the rural district centres at Tiptree, West Mersea and Wivenhoe, together with those in the villages and residential areas that serve local needs.

Policies

DEVELOPMENT CONTROL CONSIDERATIONS

15.13 It is important to note that all policies contained within this chapter must be read alongside the overall Development Control Policy (DC1). This policy sets out the standard planning criteria applicable to all forms of development. The relevant criteria will be used to assess the suitability of any proposal in addition to the following detailed policy guidance.

15.14 All proposals for new retail development will also be determined in accordance with Policy TCS1, in order to focus new provision in Colchester Town Centre and the local centres, as well as other relevant policies of this chapter. Bulky goods comparison retailing, which is difficult to accommodate in the Town Centre, may be permitted elsewhere.

TOWN CENTRE VITALITY AND RETAILNG DISTRIBUTION

15.15 One of the primary objectives of the Plan is to maintain and promote the vitality and viability of Colchester Town Centre, thus securing its role as a major sub-regional shopping centre and the prime focus for shopping in the Borough. The main focus of shopping will continue to be the Town Centre. Retail warehouse parks, rural district and local shopping centres, mixed use areas and individual shops including food superstores, in appropriate locations, will complement this. Table 7 lists the main areas allocated for retailing in the Borough, and these are shown on the Proposals Map.

15.16 A comprehensive retail study (dated April 2000) sets out proposals for the provision of new floorspace in the Borough to meet future needs for non-bulky and bulky comparison retailing up to 2011. The study also identifies a range of sites where this floorspace is to be located. Specific criteria for development in Local Shopping Centres and in the rural area are set out in TCS9, 11, 12 and 13. No new major food retailing floorspace is proposed, but small-scale “local” food stores are supported (Policy TCS3). Provision is also made for local shopping provision in the new Garrison development (Policy G1). These locations are referred to in Policies TCS2 and TCS11.

15.17 Longer-term provision up to 2011 has also been assessed and guideline floorspace figures suggested. However, no firm additional allocations for the period after 2006 have been made, as these will be subject to further study and monitoring.

15.18 The Town Centre will remain the primary location for comparison shopping and the Plan allocates the major new floorspace provision within it up to 2011 (Policy TCS2). However “bulky goods” retailing sometimes benefits from specialist types of buildings and sites which cannot be easily accommodated in the historic Town Centre. Sites for bulky goods are therefore identified elsewhere (Policy TCS11), although some may be provided in the Town Centre. Food retailing in Colchester will be concentrated in existing superstores as well as being provided by smaller stores in the urban area. In the rural area (outside Colchester), food retailing will be in rural district and local centres to serve the local catchments of the various small towns and villages.

15.19 The wide range of other uses in the Town Centre complements its primary shopping role as well as supporting sustainable living. It is important to ensure that, as far as possible and practicable, these continue to be located there. The policy therefore aims to secure a Town Centre or, where appropriate, an edge-of-centre location for uses that would achieve this aim. Specific criteria for controlling leisure uses in the town centre are set out in Policies TCS10, TCS22, and TCS23.

15.20 The application of the sequential approach is set out in Government advice in PPG6 (paragraph 1.11), which states that first preference should be for town centre sites, followed by edge-of-centre sites, district and local centres and only then out-of-centre locations which are accessible by a choice of means of transport. The sequential approach will be a central determining factor in deciding on proposals for all types of development that should have a Town Centre location.

15.21 For the purposes of applying this policy, the boundary of the Town Centre is defined on the Proposals Map (Central Colchester Inset).

TOWN CENTRE – PROVISION OF NEW COMPARISON SHOPPING FLOORSPACE (EXCLUDING BULKY GOODS)

15.22 The retail study identified potential for comparison floorspace up to 2006 in the region of 13,600 sq m (146,200 sq ft) gross, which it is proposed will be located in the Town Centre. It also suggests a total capacity for the Town Centre up to 2011 in the region of 28,800 sq m (310,300 sq ft) gross. The historic character of the town will be a prime factor in deciding the location and ultimate scale of development. The Plan identifies the Queen Street Bus Station site and surrounding area (Regeneration Area 4) as the primary location for the future retailing floorspace, as set out in the policy below. Specific guidance is given in Table 6. It should be noted that, in view of its major strategic importance, the identified floorspace figure for Queen Street exceeds the projected capacity figure in view of its major strategic importance.

15.23 It is emphasised that all the figures given are guidelines only and NOT targets. The actual floorspace to be provided will depend ultimately on the acceptability of any scheme in this sensitive location in the Conservation Area. Other areas in the Town Centre will be suitable for smaller-scale retail/mixed use developments and the Plan continues to support a minimum retail content in the Town Centre shopping streets. The non- achievement of these figures will not therefore be considered as a reason for allowing additional out-of-Town Centre retail development.

FOOD SHOPPING IN THE URBAN AREA

15.24 The provision of a high quality and efficient food shopping sector is important both economically and socially. Controlling the type, amount and distribution of facilities is the primary method for the planning authority of achieving this. Most food shopping is now based on superstores, but smaller shops in the Town Centre and rural district, local and village centres also provide important elements of a sustainable network of outlets.

15.25 Care must be taken to prevent future over-provision of major new food floorspace, as this could cause problems for the viability of existing centres, thus threatening sustainability, as well as potentially causing traffic difficulties. The shopping study considered the need for further food floorspace throughout the Borough and concluded that no major expansion of provision is required until at least 2006. No new floorspace is therefore proposed and no new sites allocated (apart from the Garrison development mentioned below or in the Town Centre).

It is recognised, however, that some improvements to existing major stores may be desirable to improve the qualitative rather than quantitative floorspace provision. Such stores are identified on the Proposals Map.

15.26 In recent years the range of goods and services provided by large food stores has grown. These goods and services can include the sale of clothes, books and other comparison goods, together with the provision of such services as post offices, pharmacies and dry-cleaning establishments. Whilst such facilities are useful to the individual shopper, they can have a significant adverse impact on established local centres and even on the Town Centre. This problem is recognised in Government guidance. The Plan therefore seeks to restrict the provision of these types of additional services in major food stores.

15.27 Small stores, serving local catchments only, may also provide useful additions to sustainable food shopping provision across the Borough, especially to those without access to cars. Access to public transport will therefore be a factor in deciding on such proposals. In urban areas the catchment of such establishments will be about 800m walking distance; in rural areas a larger catchment may be appropriate and this size will be use to guide to determine whether proposals have “local” catchments.

15.28 Discount food stores which sell a relatively small number of lines compared to traditional food stores, and have a large car-dominated catchment, will not be treated as “local” food provision. The Garrison development will, however, offer a major opportunity to promote the provision of new local food shopping, and such provision will therefore be provided as part of that development.

15.29 Provision of food floorspace throughout the Borough from 2006 will be subject to monitoring and review, and will need to have specific regard to provision in the Garrison.

TOWN CENTRE – DISTRIBUTION AND MIX OF USES IN EXISTING STREETS

15.30 Within the Town Centre, areas can be identified which reflect the general mix of uses and the relative importance of shopping within them. The Inner and Outer Cores have the highest number of retail premises and contain all the major individual shops and the two modern precinct developments. They offer the primary retail attraction in the town to both visitors and the retailing market.

15.31 Outside these areas, the streets are generally more mixed in character with a much broader range of uses. They do, however, offer a significant shopping attraction with many smaller specialist shops and complement the main shopping areas of the Inner and Outer Cores. Many other services can, however, be located in these mixed areas, provided that a balance with shopping is retained.

Changes of Use in Core and Mixed Use Streets

15.32 In the Town Centre Core (as defined on the Proposals Map), shopping (as defined in Class A1 of the Use Classes Order) will remain the dominant land use. However, the Council will support proposals for a range of appropriate and complementary activities (subject to the criteria set out in the policy) in order to promote and improve the general diversity and attractiveness of the Town Centre.

15.33 Such uses will generally be restricted to those financial/professional services, food and drink and assembly/leisure uses as defined in Classes A2, A3 and D of the 1987 Use Classes Order (or its subsequent re-enactments). Specific criteria for the control of these uses is set out in Policies TCS4 and TCS10. Proposals for other uses which may be considered as being of a similar nature but not within these specified use classes will also be determined in accordance with the criteria set out in these policies.

15.34 The main factors that will be taken into account when deciding on the suitability of any use will be:

(a) the contribution which the use can make to the Town Centre including its ability to attract/cater for large numbers of visitors. Uses that cater for the general public such as shops, leisure/cultural uses and cafes/restaurants will be considered suitable in principle;

(b) the likely cumulative impact of non-retail uses on the overall retail attraction of the Town Centre or particular streets. These uses are desirable and indeed necessary in the Town Centre. However, too many overall or an over-concentration in one area could reduce the central attraction and role of the Town Centre as the Borough’s main shopping centre. The policies seek therefore to allow for these uses but in a controlled manner;

(c) any impact the proposal will have on the character of the Conservation Area, Town Wall or listed buildings. Preserving the historic character of the Town Centre is of major importance and is recognised as being a significant factor in attracting visitors and, hence, business to the town.

Any proposals must not harm this character and should seek to enhance it where at all possible. This could be done by, for instance, improvements to buildings or to shopfronts. New shopfronts of an appropriate character can help to reinforce the retail appearance of streets and hence the shopping role of the Town Centre as a whole.

15.35 In order to secure the overall level of shopping provision in the individual Town Centre streets, minimum limits of A1 retail content are specified for most frontages. The limits have been set to provide adequate provision for shopping whilst allowing for other acceptable uses throughout the Town Centre area. These limits are set out in Policies TCS4, TCS5 and TCS9. Policies TCS6-TCS8 deal with the other mixed use streets and TCS9 with local shopping centres in the Town Centre.

15.36 This policy is based on a calculation of the length of shop frontage expressed as a percentage of the entire length of the street frontage. The calculation takes into account both the existing non-retail occupiers and any unimplemented consents for changes of use from A1 to non-retail. Excluded from this measurement will be roadways, private pedestrian walkways (with or without first a floor overhead), public-footway access, private access to rear of buildings and doorways which lead exclusively to upper floors.

15.37 In respect of corner properties that have shopfronts on two streets, each frontage will be measured and included in the calculation for the frontage in which it occurs. This should ensure a consistency of approach in measurement and calculations. In the event that a corner property satisfies the criteria for change of use within its principal street frontage (that is, the street known to be the shop’s postal address) but not in the other street then such cases will be judged on their merits, taking into consideration the effect on the character, viability and vitality of both streets.

15.38 It is recognised that, in practice, it would be unlikely that any street frontage would achieve an exact A1 content of 90% or 70%. Some degree of flexibility in implementation is therefore necessary. In the case of a change of use which will result in the A1 percentage falling below the 90% or 70% threshold (as relevant) by a maximum of 3% (that is, to 87% or 67%), the Council will grant permission where the loss of retail content is outweighed by other material policy considerations, such as significant improvements to the shopfront, enhancement of a listed building and bringing previously or partly used upper floors into residential use.

15.39 Should at any time the A1 content of an Inner Core street reach 90% or an Outer Core street reach 70% or less, any further changes of use from Use Class A1 will be refused by the Council.

15.40 A schedule of all the street frontages and their A1 content current at the time of the adoption of the Local Plan is contained in Supplementary Planning Guidance. This schedule will be updated as required during the Plan period. Any proposals will be assessed using the schedule current at that time.

MIXED USE AREAS

15.41 Around the commercial core and along the main streets leading out of the Town Centre are to be found a mix of residential, shopping, office and service industry uses which function as mixed use areas and as neighbourhood centres for adjacent residential areas. This range of land uses gives variety to the Town Centre and contributes to its success. It is considered essential that planning policies reflect the complexity and role of these areas by providing a flexible framework allowing for the continuation of mixed uses whilst rejecting those uses not acceptable in a particular location or within the Central Area.

15.42 Servicing and parking requirements will comply with the Borough Council’s current standards. However, consideration will be given to the acceptance of a reduced level of standards where it can be shown that these requirements cannot be achieved and a planning refusal would lead to long-term vacancy or deterioration of property. The Plan identifies 14 such areas, which are shown on the Proposals Map. Here it is intended that:

(a) the existing mix of uses and character of these areas will be retained;

(b) small-scale change will be allowed;

(c) large-scale redevelopment will be resisted.

The following mixed use area policies set down specific criteria to be applied in their respective areas.

MIXED USE AREAS A

15.43

(i) Head Street (west side) and Church Walk

(ii) Head Street (east side – part)

(iii) High Street (north side)

(iv) St John’s Street (both sides)

(v) Osborne Street (south side)

(vi) St Botolph’s Circus (north side)

(vii) Crouch Street (south side – east of Balkerne Hill)

(viii) Crouch Street (south side – west of Balkerne Hill)

(ix) Vineyard Street (north side)

(x) Queen Street (west side)

(xi) St Botolph’s Street (west side – part)

(xii) Museum Street

(xiii) St John’s Walk

(xiv) North Hill (west side of – part)

(xv) Church Street

These are important fringe streets in the Town Centre lying around the core area. They do not offer prime shopping, but they do provide for many of the smaller specialist shops and services that make the Town Centre attractive and important for residents and visitors. The streets themselves form a substantial part of the Town Centre and contribute much to its character and economic success. High Street and Head Street are particularly important in this respect.

15.44 However, the balance of uses has changed over the years and service or leisure uses now predominate in many streets. This makes it important to keep a substantial number of shop units in these streets to provide for the specialist and/or smaller retailers which find it difficult to locate in the Core areas.

15.45 The Policy therefore seeks to keep a balance between shopping and other uses in these important areas. Although included within the group of streets, the maintenance of this balance is not considered critical on the south side of Crouch Street, west of Balkerne Hill, or on the north side of St Botolph’s Circus, and therefore criterion (a) below will not apply.

MIXED USE AREAS B

15.46

(i) North Hill;

(ii) East Hill/East Bay/East Street;

(iii) Trinity Street.

Lying within and adjacent to the Town Centre, these streets are the province of specialist shops, small-scale leisure uses, professional offices and pockets of residential units, both houses and flats over commercial premises. The Plan will take account of preserving the amenity of existing residential properties when considering proposals for commercial development. The attractive, small-scale nature of these streets containing many listed buildings and lying within the Town Centre Conservation Area complement the range of uses they contain. The Plan advocates a strategy of pursuing residential use, small- scale specialist shops, offices and leisure uses such as small restaurants and museums appropriate to the special character and fabric of these areas. Other leisure uses will not be acceptable.

15.47 The area around East Street presents particular difficulties. Many of the listed buildings in the area have deteriorated over the years. Refurbishment will be complex and expensive, but the area is unlikely to attract significant private-sector investment unless its environment can be substantially improved by the reduction in the amount of through traffic. Any alternative uses will need to be both acceptable in planning terms, especially in relation to the preservation of the listed buildings, and economically viable.

15.48 In order to promote the upgrading and regeneration of this specific area, the Council will be as flexible as possible in its consideration of development proposals, within the overall context of the Policy. The Council will also be looking to address the traffic issues affecting the area through its Transportation Strategy Review.

MIXED USE AREAS C

15.49

(i) North Station Road (part);

(ii) Manor Road (south-east side).

North Station Road is one of the main routes leading into the town, running between older, predominantly Victorian residential areas. The Manor Road area acts as a buffer between the shopping/office area of Crouch Street to the south and St Mary’s residential area to the north.

15.50 Both these areas include a large range of uses, including housing, offices, shops, light industry and some leisure uses. They form an important part of the commercial area of the central area and provide premises for local businesses. The policies are aimed at preserving this mix but protecting the amenity of residents where necessary. Some of the premises in North Station Road act as local shopping facilities for adjoining residential areas.

MIXED USE AREAS D

High Street (East)

15.51 Imposing and elegant 18th- and 19th-century houses and their grounds form the basis of this area. The bulk of these are listed and together create an important part of the historic character and attractiveness of the Town Centre. Today it is occupied predominantly by museums, Local Government offices and an adult education centre.

15.52 This balance of uses and historic character is important and the Policy seeks to preserve it whilst recognising that some limited development potential exists. The scale and historic character of the area will, however, prevent large-scale redevelopment schemes. In particular, the promotion of suitable tourism-related development would be appropriate, given the close proximity of the Castle, Priory, museums and bus station. Such development must reflect this historic area and seek to enhance it. Housing use may be acceptable where this would be compatible with the other main uses.

15.53 Policies to preserve the grounds and gardens, which are an intrinsic part of the character of the area, are put forward and, as part of the overall traffic management strategy of the Town Centre, it is intended that eventually unnecessary traffic will be removed.

15.54 Any future redevelopment of the adjacent Queen Street Regeneration Area must also complement and enhance this area. (Table 6 sets out more detailed guidance for the area.)

COLCHESTER TOWN CENTRE – LOCAL CENTRES

15.55

(i) Crouch Street (north side);

(ii) St Botolph’s Street.

Both of these streets have important functions as local shopping centres for the large number of people who live nearby. They offer a range of small, specialist shops and local services which it is considered important to retain. These also contribute to the vitality of the Town Centre as a whole. The streets also act as an important reservoir of small, relatively cheap shop units, where small retail businesses can establish and grow. This important function could be lost if changes to other uses were allowed or premises were amalgamated into fewer, larger units.

15.56 At the western end of Crouch Street especially, further loss of retail units would seriously affect the local shopping function.

15.57 In order to preserve the local shopping centre role, changes to other uses need to be strictly controlled. A limit is therefore placed on the level of shopping to be kept in these frontages.

LEISURE, ENTERTAINMENT, FOOD AND DRINK

15.58 All these types of use contribute to the overall vitality and viability of the Town Centre and are acceptable in principle. However, Colchester Town Centre is unusual in having a relatively large resident population. Some types of use, such as clubs, pubs and cinemas, can cause problems for residents, especially if open late at night, operating sessional times or causing much on-street activity.

15.59 A balance needs to be struck, therefore, between these legitimate Town Centre uses and the amenity of its many residents. Of particular concern are the main residential areas of the Dutch Quarter, Priory Street, Abbeygate Street, Balkerne Gardens, Roman Road, and Castle Road and St Mary’s (Rawstorn Road area). Uses which are proposed within or close to these areas and which would adversely affect them will be refused or controlled by the imposition of conditions on – for example – hours of opening, sound attenuation and odour control. In considering proposals, regard will be had to the cumulative impact on the Town Centre and residential amenity. Where it is considered the cumulative impact is sufficiently severe, applications will be refused.

General criteria relating to the change of use from retail to this use are set out in Policy TCS4.

(cont'd)