Chapter 7 - Town Centres
Introduction
7.1
Planning Policy Guidance Note 6 sets out the Governments policies on the issues of Town Centres and Retail Developments (PPG6). The strategy contained in this document is further reinforced by various proposals included in the Lancashire Structure Plan. Both promote the need to secure the future vitality and viability of town centres. The importance of these centres should not be underestimated. They are places which contain a concentrated mixture of land uses which are usually interdependent and generate a high level of activity. The range and quality of the activities and the accessibility of the centre to people living and working in the area are the main contributory factors to the vitality and viability of a town. National guidance advises that local planning authorities should be realistic in planning for the future of town centres, in particular by providing positive polices in plans to encourage uses that will contribute to the towns success. In general this may be done by protecting the retail role of town centres and building on their success to create towns which are also focal points for civic and community activities and for public transport services. The local plan therefore should be seen as a key catalyst which can help to guide development.
7.2
In early 1994, prior to the formulation of this Wyre Borough Local Plan, draft policies were individually published for the main urban centres of Fleetwood, Cleveleys and Poulton-le-Fylde. Each centre was also subject to an informal round of public consultation in either January or April, 1994. The draft town centre policies for Fleetwood, Cleveleys and Poulton-le-Fylde which appear in this Local Plan are, therefore, versions which have been amended in the light of comments received during the earlier consultation process.
7.3
With respect to Garstang town centre, a chapter on this subject was included in the Garstang and Over Wyre Local Plan which underwent an extensive programme of public consultation, including a Public Local Inquiry, prior to the Plan's adoption in August, 1993. Because the Garstang policies have been prepared and adopted relatively recently, many of the policies are considered appropriate to guide development up to the year 2006 and only limited changes are being put forward for consideration.
7.4
The policies contained in this chapter will address the potential of the four main town centres in the Borough - Fleetwood, Cleveleys, Poulton-le-Fylde and Garstang - for change on various subject matters. The centres have unique characters and therefore a detailed framework of policies against which planning applications will be decided has been formulated. The proposals identify and build on the essential qualities of the centres and seek to ensure that the needs of the communities are met and served. In addition to action it can take directly through the development plan system, the Council will seek to make environmental improvements to all of the main town centres. The overall aim will be to attract more people into the town centres by providing a safe and pleasant environment. Schemes which also contribute to the safety and convenience of town centre users will also be favoured.
7.5
In terms of structure, the chapter commences with policies which are common to all four of the town centres in the Borough. Policies referring to planning issues which are specific to a particular town centre are included where appropriate, and follow the town centre hierarchy. There are more general polices contained in other sections of this Local Plan which also affect the town centres and therefore should be referred to. These more general policies relate to topics such as shopping, and conservation issues, which directly affect three of the four town centres; to car parking/transportation proposals which are vital to secure the future vitality and viability of the centres; and to tourism aspects which affect all of the town centres to a greater or lesser degree.
7.6
Fleetwood town centre is one of the main retail centres of the Borough as well as a place which provides employment and social activities for the local community and tourists. It includes residential areas as well as and the important retail/tourism features of Fleetwood Market and the adjacent Harbour Village. The town has experienced a number of fundamental changes in its economic and employment base over recent years, a period which has seen only a limited amount of investment. The major task, therefore, is for the successful regeneration of the town which requires balancing the overall need for change with the aspirations of existing businesses and the availability of investment resources. This will be accomplished by implementing policies which strengthen the retail function of the town centre, promote employment creation and encourage environmental improvements which, in turn, will be an attraction for the tourist trade and for investment generally. Amenity links will be encouraged between the principal elements of Fleetwood town centre, particularly between the holiday amenities and the retail core along Mount Street, London Street and North Albert Street. Unless Government or other major sources of funding are available there will be limited opportunities to find short term solutions to the regeneration needs of the town centre. Introducing the land use measures as proposed, however, should make the targeting of any funding much more productive.
7.7
Cleveleys is a busy town centre which caters not only for the day to day needs of the local community but also provides services and facilities for a wider population, both within and outside the Borough. The central area functions as a shopping centre, business area, holiday resort, entertainment and employment centre and a residential location. Its success can be partially explained by this diversity of activities. Such activities are, however, not always compatible, and together with the traffic attracted into, or through, the central area they can give rise to various car parking and traffic management problems. A recent traffic management scheme has aimed to improve matters by increasing the amount of space on Victoria Road West dedicated to pedestrians, and aiming to improve traffic circulation around the town centre, particularly that traffic seeking parking spaces. If the town centre is to continue to thrive in economic, environmental and social terms, it is essential that vehicular/pedestrian conflict in particular is resolved and that any future development should not make the current situation worse or create new problems. The Council will monitor the situation in relation to the improvement scheme.
7.8
The town centre of Poulton-le-Fylde is lively and pleasant and attracts a large number of visitors from the surrounding urban and rural areas. It retains a market town character enhanced by historic buildings and a busy shopping centre. All these factors, as well as the geographical location of the town lead to significant volumes of traffic not only visiting the centre but necessarily passing through it, en route to other destinations. A large area of Poulton centre now experiences problems as a result of traffic congestion, a significant one of which is the conflict between pedestrians and vehicles in certain areas of the centre. The Council recognises the need to resolve these problems in order to maintain the success of the town centre and considers that this may be done principally in three ways. Firstly by protecting the primary and secondary shopping areas from an over provision of non A1 use class retail units; secondly by supporting an appropriate traffic management scheme to remove extraneous vehicles, relieve traffic congestion and improve road safety, and thirdly by reviewing the management of car parking space. The latter will involve investigating measures which make the prime town centre parking areas more readily available for short stay visitors. Conservation is also an important issue which is dealt with in a more detailed way in chapter 3.
7.9
Settlement growth over the past two decades has been substantial in the area around Garstang. Consequently the town centre, aided by good transport links, has grown in importance as a business, retail, tourist and service centre, as well as a desirable place to live. This is reflected in Garstang's position in the settlement hierarchy as the largest town in the rural part of the Borough. The centre currently exhibits a range of goods and services to appeal both to visitors and to those who live in the town or in the extensive rural hinterland beyond. However, there are certain matters which, subject to achieving that careful balance between economic need and environmental protection, might still be improved to satisfy the area's growing population and changing role. Attention will be directed therefore to car park management, conservation and maintaining attractive shopping frontages with an acceptable proportion of A1 retail uses. Other commercial business activity will be encouraged to locate to other parts of the town centre in need of regeneration. There is a demand for suitable premises for new businesses and it is important to accommodate them if Garstang is to retain its status as the main business centre for the rural area. In accordance with the principle of environmental improvement, there are certain areas of landscape which are currently under utilised, are poor in terms of visual quality and need to be put to more productive use. The Council will promote enhancement schemes to try to resolve these problems assisted by policies which encourage sensitive development proposals.
7.10
Undoubtedly all the town centres will alter in order to meet the demands of the next decade but this does not necessarily have to detract from, or change, the essential character of the town. However, any future changes must be carefully controlled, by means of the following Local Plan policies, and should not be allowed to proceed in a haphazard way.
Aim And Objectives
Aim:
To provide a strategic framework for the control of development so as to protect and enhance the roles of Fleetwood, Cleveleys and Poulton-le-Fylde as major town centres, and Garstang as the principal rural centre, within the Borough.
Objective 1
To encourage proposals which strengthen and maintain the viability and vitality of the town centres as places in which to shop.
Objective 2
To protect and enhance the viability and vitality of the town centres commercial functions generally and to identify, in particular, opportunities for maj
Objective 3
To support and maintain opportunities, within the town centres, for employment generating uses in appropriate locations.
Objective 4
To promote and further develop tourism in Fleetwood, Cleveleys and Garstang town centres, as an important aspect of their local economy.
Objective 5
To encourage proposals which lead to the diversification of uses within the town centres.
Objective 6
To encourage and integrate residential activity within the town centres and to protect and improve the quality of the residential environment for all people living in the central areas.
Objective 7
To improve road safety and reduce pedestrian/vehicular conflict within the town centres, through traffic management.
Objective 8
To reduce the impact of motor vehicles within the town centres, whether visiting the centres, or passing through.
Objective 9
To protect and enhance the quality and character of the town centre environments.
Objective 10
To encourage in Fleetwood, links between the sea-front, the Harbour Village, and the town centre.
Objective 11
To establish in Garstang, clear town centre guidelines to protect the town centre from unco-ordinated development.
Town Centre Boundaries
Policy Tc1
The town centre boundaries of Fleetwood, Cleveleys, Poulton-le-Fylde and Garstang are defined on the separate inset plans respectively.
Justification
The boundaries shown on the proposals map, and on each town centre inset map, reflect the various land uses found in the town centres. They identify the areas within which there is greater interaction between the land uses, in terms of shopping, residential, commercial and leisure activities, and also the locations which are subject to pressures for development. In addition to identifying current land uses, the maps reveal opportunities for the expansion and development of town centre activities. Fleetwood and Cleveleys are recognised in policy 46 of the Lancashire Structure Plan as main town centres.
Implementation
The boundaries defining Fleetwood, Cleveleys, Poulton-le-Fylde and Garstang town centres identify where specialised policies will be applied. There will, in addition, be other general policies relating to specific major topics such as housing, shopping, and leisure which will apply across the Borough.
Primary Shopping Areas
Policy Tc2
Within the primary shopping areas, as defined on the town centre inset plans, proposals for the change of use at ground floor levels to a use class other than a1 retail, will only be permitted where:
- There would be no adverse effect upon the dominance of retailing and the character, diversity and vitality of the retail element in the designated areas, and
- There would be no adverse effect upon environmental amenity or highway safety, and
- A window display appropriate to the shopping area is maintained, and
- Car parking and servicing arrangements are provided in accordance with policy tr4.
Justification
The intention of this policy is to maintain a sustainable level of vitality and viability within the town centres of Fleetwood, Cleveleys, Poulton-le-Fylde and Garstang, by providing a focus for retailing activities within these centres and by encouraging new retail investment. The identification of clearly defined primary shopping areas is considered by the Council as imperative to facilitating this.
It is recognised that the popularity of town centres can be maintained if the majority of shops within their primary shopping areas have class A1 retail uses. Indeed, PPG6 advises that changes of use can sometimes create new concentrations of single uses, such as restaurants and take away food outlets, where the cumulative effects can cause local problems. Such proposals should be assessed not only on their positive contribution but also on the cumulative effects on such matters as loss of retail outlets, traffic, parking and local residential amenity. This principle is one which is especially important in small shopping areas, such as those in the Borough. Government guidance emphasises, however, that variety and activity are essential components of the vitality and viability of town centres. PPG6 stresses that local authorities should encourage diversification of uses in the town centre as a whole, whilst simultaneously protecting and enhancing the retail element of the primary shopping areas.
Implementation
By the application of development control powers. All use classes are as defined in the Town and Country Planning (Use Classes) Order, 1987.
All car parking provision will be in accordance with the standards adopted by the Borough Council (policy TR4 refers).
Temporary Consents
Policy Tc3
In exceptional circumstances, if a development proposal exceeds the limits set out in policy tc2, temporary consent for a change of use to a use class other than a1 retail within the town centre primary shopping areas, may still be permitted if the premises have remained vacant for a minimum period of six months, providing that:
- There is no adverse effect upon the character, amenity and vitality of retailing in the designated areas, and
- There is no adverse effect upon environmental amenity or highway safety, and
- Car parking and servicing arrangements should be provided in accordance with policy tr4.
Justification
Vacancy rates for shop units constantly vary within the town centres of Fleetwood, Cleveleys, Poulton-le-Fylde and Garstang. Even where low vacancy rates exist, as in Poulton town centre, it may be preferable for the premises to be occupied by a non A1 retail use instead of the unit remaining unoccupied. Retail economy is related to environmental quality and the Council is aware of the risk that premises which are not being utilised may become run down and have a degrading effect on the town centres. Such circumstances are liable to arise when there is a downturn in the economy. In order to prevent the gradual erosion of vitality and environmental quality in such situations, a temporary non retail use may be granted permission until the economic situation, in general, improves.
The onus will be on the property owner to demonstrate that the premises have been vacant for a minimum period of six months and will continue to be marketed for A1 retail use. The property owner should also be aware that the subject of any application is a temporary measure for the purpose of expediency.
Implementation
By the application of development control powers. It should be understood that those considerations set down in policy TR2 will prevail.
All use classes are as defined in the Town and Country Planning (Use Classes) Order, 1987.
Retail Strengthening In Fleetwood
Policy Tc4
Within the area bounded by lord street, mount street, dock street and station road, proposals will be permitted which strengthen mainly the retail, but also the leisure function of the town centre, providing that:
- The scheme is appropriate in mass, style, bulk and materials, and
- Access, parking and servicing arrangements are provided in accordance with policy tr4, and
- The retail frontage to lord street is maintained
- Opportunities to create links between the main shopping area and harbour village are formed and protected, and
- The proposals do not conflict with any other provisions of the local plan.
Justification
This area has been identified as offering the greatest opportunity to accommodate major new retail and leisure investment. The Borough Council will prepare a Regeneration Area Plan to establish a framework for the redevelopment of this part of Fleetwood. As a feature of these proposals, the Council will seek to retain the important frontage to Lord Street. The possibility of site assembly to create a significant area for other mixed uses will also be investigated. The area is strategically located to provide the important option to create linkages between the main shopping street and Fleetwood Harbour Village. The Council does not envisage the loss of commercial premises fronting Dock Street, but sees these as an important consideration in any scheme which might come forward. The Council will seek to ensure that any proposal, where opportunities exist, provides for the improvement of existing servicing and parking facilities within the defined area.
Implementation
By the application of development control powers. Proposals would be expected to be brought forward by the private sector.
Canopies In Cleveleys
Policy Tc5
ALong the part of victoria road west within the primary shopping area and within the prime holiday area, proposals for the development of appropriately designed open canopies in advance of the established building line will be permitted, providing that:
- The proposal retains the open aspect of the street scene, and does not obstruct pedestrian flow, and
- The proposal is acceptable to the street scene in terms of its scale, mass, style, siting and use of materials, and
- The proposal does not injure the visual or environmental amenity of the users of the adjacent premises and other pedestrians.
Justification
Forecourt trading is an important feature along Victoria Road West, particularly west of Victoria Square. It adds to the liveliness of the town centre and is an important feature of the area. In order to enhance the environment by providing an element of shelter for both pedestrians and forecourt traders, the provision of open canopies will be permitted subject to appropriate design considerations.
Fully or partially enclosed front extensions remove the opportunity for forecourt trading and constitute a disruptive and alien element in the street scene. Additionally, they impede pedestrian flow and injure the amenity of adjacent premises. Any future proposals of this nature will therefore be resisted.
Implementation
By the application of development control powers.
The Use Of Upper Floors In The Primary Shopping Area Of Garstang
Policy Tc6
The use of upper floors of existing properties in the primary shopping area (the high street) for business purposes will only be permitted where:
- They are unsuitable for conversion to residential accommodation and they do not adjoin existing residential property, and
- There are no suitable alternative premises readily available, and
- The proposal will prevent the property from falling into disuse or disrepair.
Justification
A key objective of the Local Plan is to encourage the relocation of businesses to more suitable or new purpose built premises elsewhere in the town centre. It is not intended, however, that existing businesses with expansion requirements, or new businesses seeking to locate in Garstang, should be unduly constrained in the choice of accommodation, given their valuable contribution to the local economy. The Local Plan also wishes to encourage an increase in residential activity in the town centre, unless upper floors of existing properties on the High Street are not suitable for conversion to residential accommodation, or suitable alternative premises for business use are not readily available
Implementation
By the application of development control powers.
Secondary Shopping Areas
Policy Tc7
Within the secondary shopping areas, in the town centres as defined on the town centre inset plans, proposals for the change of use at ground floor levels to class a1 (shops), class a2 (financial and professional services) and class a3 (food and drink) will be permitted, provided that:
- There is no adverse effect upon the character, amenity, vitality and viability of retailing in the designated area, and
- There is no adverse effect upon environmental amenity or highway safety, and
- Car parking and servicing requirements can be satisfactorily accommodated in accordance with the standards adopted by the borough council (policy tr4 refers).
Justification
Secondary shopping areas make invaluable contributions to the vitality and viability of town centre shopping areas. Indeed, as advised by PPG6, there is considerable scope for greater flexibility and diversification of uses within these areas, than in the designated primary shopping areas (policy TC2). Whilst the maintenance of a significant retail element within the secondary shopping areas is necessary, PPG6 highlights the importance within these areas of complementary uses, such as restaurants and cafes, banks and other financial institutions, to making town centres more attractive to local residents, shoppers and visitors.
Within the Borough there are numerous shopping centres varying in size from the large towns with their national multiple stores to small neighbourhood shops. The attractiveness of any of these centres is related to some extent, to visual appeal and the type and condition of shopfronts. A number of years ago non statutory advice entitled Guidelines for Signs and Shopfronts in Conservation Areas was prepared by the Borough Council to encourage better design. Throughout the plan period the Borough Council will continue to promote the provisions of this advice and will review and enhance the information. Retail units outside conservation areas also have an important role to play. In the smaller shopping centres, as in the large ones, good design should still prevail. Indeed, there are many fine examples of traditional shopfronts in various locations, which the Borough Council is keen to retain rather than replace. New shopfronts can also be attractive if they are designed with skill and respect the local environment. Whilst it is recognised that in both large and small shopping centres, many retailers wish to project a corporate image, the Borough Council feels that it is important to balance this consideration against the particular characteristics of the individual centre. Additional supplementary planning guidance on the subject of detailed design for all locations has been prepared.
It is the Borough Council's intention to regularly monitor the proportion of retail and non-retail units as part of the process of determining planning applications for changes of use. Whilst the priority will be to maintain and, in the future, promote retail activity within the designated secondary shopping areas, a diversity of uses will continue to be encouraged to complement such activities and ultimately to ensure the vitality and viability of the shopping areas in general.
Implementation
By the application of development control powers.
All use classes are as defined in the Town and Country Planning (Use Classes) Order, 1987.
All car parking provision will be in accordance with the standards adopted by the Borough Council (policy TR4 refers).
Areas Of Mixed Town Centre Uses
Policy Tc8
Within the areas of mixed use, in the town centres as defined on the town centre inset plans, proposals for development will be permitted, provided that:
- Satisfactory access, parking and servicing can be provided, and the proposal does not prejudice vehicular or pedestrian amenity, and
- The amenity of neighbouring land uses is not adversely affected, and
- The proposals satisfy the requirements of policy sp14 and, in particular, provide an acceptable and appropriate standard of accommodation in terms of type, size, scale, design and materials, and
- In fleetwood, there is no creation or extension of residential frontage, and
- In cleveleys, there is no overall loss of public off-street parking spaces;
Justification
The mixed use areas designation reflects the diversity of land uses which exist in all of the Borough's town centres. The designation comprises a similar combination of community and leisure facilities, commercial, retail and office uses, and some housing. There are, however, certain variations; for example, Poulton's mixed use area also comprises light industrial uses, whilst Cleveleys mixed use designation comprises land currently used as a bus station. The mixed use area of Garstang is particularly distinctive as it comprises under-utilised land and industrial uses, and a relatively high proportion of civic and community uses. Generally, the designated areas of mixed use forms a transitional zone between the more commercial elements of the town centres and other land uses, such as residential and open space.
In an effort to stimulate vitality within the town centres, the Borough Council is concerned to promote the opportunity for people to live within the town centre areas. The designated mixed use areas are considered appropriate for accommodating residential development. In Fleetwood town centre, however, proposals for residential development within the mixed use designation will not be permitted if it is anticipated that conflicts might arise with commercial activities in the area.
The Borough Council recognises that mixed use areas provide the flexibility to accommodate change over the plan period, in response to the differing and competing demands which are commonly made by a variety of town centre users. In the comparatively small town centre of Poulton-le-Fylde, it is important that such opportunities exist. Because of the relatively small nature of Poulton's commercial centre, it is necessary to emphasise the applicability of criterion C) of this policy; essentially that development must be of an appropriate type and scale.
The overall aim of this policy is fundamentally to maintain and encourage diversification of functions within Fleetwood, Cleveleys, Poulton-le-Fylde and Garstang town centres. This is perceived as being fundamental in contributing to the overall vitality and viability of the town centres.
Implementation
By the application of development control powers
All use classes are as defined in the Town and Country Planning (Use Classes) Order, 1987.
All car parking and servicing arrangements should be provided in accordance with Policy TR4.
Adelaide Street Development Site, Fleetwood
Policy Tc9
Proposals for a mixed development incorporating a retail frontage to adelaide street, will be permitted, provided that:
- Satisfactory access, parking and servicing can be provided, and the proposal does not prejudice vehicular or pedestrian amenity, and
- The amenity of neighbouring land uses is not adversely affected, and
- The proposals satisfy the requirements of policy sp14 and, in particular, provide an acceptable and appropriate standard of accommodation in terms of type, size, scale, design and materials.
Justification
The site, currently used as a car park, occupies a significant position within the area of mixed town centre uses designation and could be an important site to attract investment into the town. Given the nature of the site's location, a retail frontage to Adelaide Street is envisaged, whilst the remainder of the site could include an appropriate mix of office and residential uses. The Council is keen to ensure, however, that any proposal for this site, particularly to the Albert Street frontage, does not prejudice the amenity enjoyed by neighbouring residential properties. The Council would envisage the site to be developed in a comprehensive scheme.
Implementation
By the application of development control powers and discussions with appropriate landowners.
Canal Basin Development Area, Garstang
Policy Tc10
Up to 2.1 hectares of land for a mixed development of housing, tourist accommodation and related leisure facilities between church street and the northern side of the safeway retail development, incorporating the canal basin and former royal oak field will be permitted, provided that:
- Residential development conforms to the allocations set down in policy h3/23, and
- An acceptable form, mix and scale of tourism and leisure facilities can be accommodated within the sites, following guidance provided by policy trec3, and
- The phasing, scale, massing, design and siting of each component being in conformity with the local plan design guidelines and subject, as necessary, to a section 106 agreement dealing with the above matters.
Justification
The policy identifies an area of land which could provide an opportunity for development to take place. The purpose of this policy is for clarification: that is, to bring together the two main elements of the proposal, housing, and tourism/leisure, which are individually dealt with by policies H3/23 and TREC3, respectively. As the land is closely related to the core area of the town centre, it is appropriate that the potential for development is recognised and that clear guidance is given through the Local Plan for the preferred use of the site, should a proposal come forward.
General and local needs housing, tourism, and leisure, are seen as the most acceptable form of land use in this area. The site's location makes for easy access to town centre facilities for tourists and residents, and a sensitive development of this attractive canalside area could complement the range and quality of local facilities and services. Whilst one objective is to provide a focus in Garstang around the existing canal basin for canal side activities, this site is one where a successful overall development is clearly dependant on maintaining a careful balance between the encouragement of tourism and the protection of the character of the local environment. The policy therefore places great emphasis on infrastructure and design considerations including the scale and mix of activities. A hotel, for example, should be fairly modest in scale, as would any other tourism/leisure element in a favourable package of development proposals.
Implementation
By the application of development control powers.
Mixed Development Area At Park Hill Road, Garstang
Policy Tc11
Development proposals for the vacant and under-utilised land sandwiched between park hill road and the rear of the properties fronting onto bridge street (west) for commercial or business uses or small scale housing, will be permitted, provided that:
- Satisfactory access, parking and servicing can be provided, and the proposal does not prejudice vehicular or pedestrian amenity, and
- The amenity of neighbouring land uses is not adversely affected, and
- The proposals satisfy the requirements of policy sp14 and, in particular, provide an acceptable and appropriate standard of accommodation in terms of type, size, scale, design and materials, and
- There is a co-ordinated approach to the development of this area in order to ensure proper arrangements in terms of car parking (policies tr4 and tr5 refer), particularly for the adjacent bridge street properties, and
- Substantial landscaping and screen planting will be carried out on undeveloped parts of the site.
Justification
The eastern side of the southern section of Park Hill Road presents a poor entrance to the town in terms of visual quality, environmental character and the productive use of land and buildings. The intention of this policy is, therefore, to encourage the relocation of non-conforming uses to improve the townscape and encourage a more productive use of the area, by encouraging appropriate development and landscape works. Any comprehensive scheme will need to provide some additional public car parking.
Implementation
By the application of development control powers
Non-conforming uses in Garstang
Policy Tc12
Proposals for the redevelopment of sites in the town centre currently occupied by non-conforming uses will be permitted, provided that:
- Adequate provision is made for servicing and parking, in accordance with policy tr4 and
- There is no adverse impact upon neighbouring amenity, and
- The scale and design of, and the materials used by the proposal, are appropriate for the surroundings
Justification
There are a number of sites within Garstang town centre which are currently used for purposes which would be unlikely to receive planning permission. The redevelopment of these sites for uses more compatible with the location and immediate environs will be encouraged, providing that such proposals do not conflict with other policies of the Local Plan, and that they satisfactorily deal with issues such as amenity, content, design guidelines, access and timing.
Implementation
By the application of development control powers
Professional And Financial Service Uses In Fleetwood
Policy Tc13
Within the area of professional and financial service uses, as defined on the fleetwood town centre inset map, proposals for the change of use to offices will be permitted, provided that:
- Satisfactory parking (policy tr5 refers), servicing and access can be provided, and the proposal does not prejudice pedestrian or vehicular amenity, and
- There is no adverse impact upon neighbouring amenity.
Justification
St. Peter's Place and part of Adelaide Street has become an established location for professional offices. This form of use is not out of place within this part of the Albert Square Conservation Area, and could provide the opportunity to attract investment that would help maintain the appearance and enhance the character of the Conservation Area itself.
Implementation
By the application of development control powers.
Accommodation For Commercial Business Activity In Garstang
Policy Tc14
The development of new purpose built accommodation in Garstang town centre for commercial activity will be permitted, provided that:
- The scale, design and materials proposed are compatible with the built form of the town centre and, where applicable, the special characteristics of the conservation area, and
- The proposal does not lead to the loss of shopping frontages, and is in accordance with policies tc2 and tc7, and
- Parking and servicing is provided in accordance with the council's adopted standards (policy tr5 refers).
Justification
New office accommodation is needed within the town centre to meet the expansion requirements of existing professional, financial and business services. Many of these firms already occupy upper floor accommodation or ground floor accommodation on the High Street, and there is also a demand for accommodation from firms seeking to locate in Garstang.
Although there are opportunities for commercial business space development elsewhere in the Local Plan area, it is important that these types of activity are largely retained within the town centre. This is considered to be necessary if the town centre is to retain its vitality and status as the principal business centre for the rural area. Concentrations of business activity will increase the opportunity for developing inter-business links.
The requirement to provide satisfactory car parking is necessary in order to reduce the adverse effects of long stay business parking on the availability of spaces in public car parks for shoppers and visitors to the town, (Policy TR5 refers).
Implementation
By the application of development control powers.
Change In Use Of Upper Floors
Policy Tc15
Proposals within the town centre areas, as defined on the town centre inset plans, for the conversion of the upper floors of shops or commercial premises to residential or office accommodation will be permitted, provided that:
- Any physical alteration does not adversely affect the character or appearance of the property, particularly a listed building, and
- Residential or office use is compatible with adjacent/adjoining uses, and
- Adequate access and car parking can be provided (policies tr4 and tr5 refer).
Note:
In Garstang's primary shopping area, this policy is consistent with the provisions of policy TC6 and so should be read in conjunction with policy TC6.
Justification
The Borough Council acknowledges, in accordance with PPG6, that whilst good retailing is essential to the vitality and viability of town centres, a diversity of uses, and access to them, is required to sustain such activity and economic buoyancy.
The Borough Council seeks, therefore, to encourage a high level of activity above the ground floor levels in both the primary shopping areas (policies TC2) and the secondary shopping areas (policy TC7) or alternative locations within the town centres, if more appropriate. In accordance with this principle, the Council will encourage owners to bring unused or under-utilised upper floors of existing buildings in the town centres, into productive residential or office use.
Such occupation should deter vandalism, ensure that properties are maintained, enhanced or preserved (this being especially valuable for buildings in the Conservation Areas), and should make a positive contribution to the quality, economy and vitality of the built form, both during the day and in the evening or outside business hours.
In the town centres of Cleveleys, Poulton-le-Fylde, Fleetwood and Garstang, the use of the upper floors for office purposes will generally be permitted in the primary shopping areas and the secondary shopping areas, in order to maximise the commercial potential of such buildings. The encouragement of this trend will be particularly beneficial in Poulton, whose commercial centre is relatively small. Restrictions in all of the town centres on the use of ground floors for non-retail activities result in alternative premises being required for such uses which do not need, nor will be permitted, prime ground floor locations but which, nevertheless, prefer to locate within the main retail area. Upper floors will provide significant opportunities for the establishment of such businesses.
The use of upper floors for residential accommodation will essentially be encouraged anywhere within the town centres. The proposed pedestrianisation of part of Victoria Road West in Cleveleys, however, will reduce the opportunities for on-street parking and the servicing of properties in the primary shopping area. In order to minimise potential problems for future residents, the Council feels that further residential development in this area would be appropriate only in exceptional circumstances; for example, where there is no reasonable alternative use for the premises. In general terms, the Council recognises the many benefits associated with encouraging residential uses at ground floor level within the town centres. In view of such benefits, and to facilitate conversion, the Borough Council will, if necessary, take a more flexible approach to car parking, access and servicing arrangements and standards.
Implementation
By the application of development control powers.
Employment In Fleetwood
Policy Tc16
Proposals which serve to protect or promote employment creation in the area defined on the town centre inset plan will be permitted, subject to:
- There being no adverse impact on the amenity of existing neighbouring properties, and
- Car parking and servicing arrangements being provided in accordance with policy tr4, and
- The siting, materials, scale, mass and bulk of new development being compatible with the built form of the surrounding area, and
- Appropriate landscaping and planting being provided.
Justification
The town centre has a long established function as a provider of employment opportunities. The Council considers this to be an important function which should continue and will encourage proposals which further this aim. However, an important balance has to be maintained in order to protect the wider functions of the town centre, not only as a place within which to shop or visit, but also to live.
Schemes may include the conversion of larger premises into smaller units, the construction of new premises, including office developments, but should not prejudice proposals to regenerate the retail function of the centre in the longer term in line with other local plan policies. All proposals, particularly for manufacturing or industrial operations, will be carefully considered with regard to surrounding land uses, especially adjacent residential premises. Appropriate landscaping and planting will be required in order to improve the town centre environment.
Implementation
By the application of development control powers.
Change Of Use To Class B1, Class B2 Or Class B8 In Cleveleys
Policy Tc17
Along st. george's lane and elsewhere in cleveleys town centre, the change of use of existing premises to class b1 (business), class b2 (general industrial) or class b8 (storage and distribution) will only be permitted if the following criteria are met:
- Car parking and servicing arrangements are provided in accordance with policy tr5, and
- The proposal does not conflict with adjacent land uses and in particular does not prejudice the amenity of adjacent residential areas, and
- The proposal is of a scale appropriate to the character of the area and is otherwise acceptable in environmental terms.
Only those uses which are low traffic generators and complement other central area uses will be acceptable.
Justification
There are a number of commercial/industrial activities to the rear of the main shopping frontages in the town centre which generate significant volumes of traffic, with consequent environmental problems. Many have inadequate parking and access provision, and additional industrial related development in these areas will be resisted. The success of any town centre, however, depends not only on retailing but on the full range of services and functions which it provides and the Council feels that opportunities for future light industrial or warehousing development should not be totally precluded.
Existing premises along St. George's Lane are considered most appropriate for any future proposals for light industrial or warehousing development. Since some of the units back on to a predominantly residential area, any development which would generate noise, vibration, smell, fumes, smoke or any other anti-social effluent, would be unacceptable.
Implementation
By the application of development control powers.
All use classes are as defined in the Town and Country Planning (Use Classes) Order, 1987.
Protecting Residential Amenity
Policy Tc18
In Those Areas Of Fleetwood, Cleveleys And Poulton-le-fylde Town Centres, Identified As Being Primarily In Residential Use On The Town Centre Inset Plan, Planning Applications For Non-residential Uses, Including Hotels, Guest Houses And Holiday Flats Will Be Permitted Provided That:
- They maintain or enhance the overall quality of the residential environment, and
- There is no detrimental effect upon the amenity of the area in terms of noise, nuisance, disturbance and the environment, and
- The development provides an acceptable standard of accommodation, both in terms of size and design, and
- Appropriate standards of parking and access are maintained or provided.
Justification
Although the circumstances occurring in each of the town centres may vary, the Borough Council aims generally to protect and maintain the residential character of the areas identified on the town centre inset plans as being primarily in residential use.
In Poulton-le-Fylde, there are several established pockets of residential dwellings located within the town centre, the majority of which are good quality and are well maintained. The Borough Council recognises, however, that these areas are subject to increased pressure because of their location and that residential amenity can all too easily be eroded by unsympathetic development proposals.
The situation evident in Poulton town centre is similar to that experienced in Cleveleys and in Fleetwood: essentially the close proximity of residential dwellings to the town centre, and the potential for the development of non-conforming uses in such areas. Indeed, in Cleveleys town centre, the transition between the main commercial retail centre and the area which is primarily residential, is, in many cases, imperceptible. The consequences for local residents, in terms of environmental disturbance and visual intrusion, is potentially problematic. Similarly, Fleetwood town centre has a large established residential component. The Borough Council recognises that these dwellings experience increased environmental pressures because of their proximity to other town centre uses.
In order to protect residential amenity, the Borough Council will resist any planning applications which seek to introduce or extend a use which is clearly non-conforming and threatens the residential character of an area. Certain proposals for non-residential uses within established housing developments may, however, be acceptable provided the applicant can demonstrate that the benefits of the scheme will be in the community's interest.
Further, schemes which include, for example, the redevelopment, refurbishment and relocation of non-conforming uses, will be encouraged, if appropriate, where definite improvements to residential amenity will be achieved and where such proposals accord with other policies of the Local Plan. Proposals which are believed to detract from this underlying aim will be resisted. The Borough Council feels that the situation at Fleetwood and Cleveleys differs. Indeed, in order to consolidate and develop the holiday base at Fleetwood and Cleveleys, the Borough Council will seek to ensure that future tourist related accommodation is located within the existing prime holiday area, where a mix of holiday and residential uses has been generally accepted by both residents and property owners (policy TREC7).
Implementation
By the application of development control powers.
Car parking and servicing arrangements should be provided in accordance with Policy TR4.
Defined Open Area In Garstang
Policy Tc19
Proposals for the development of undeveloped land between the high street and the river wyre will only be permitted if they:
- Improve the amenity value and public usage of the riverside area, and
- Result in a material improvement in the environment of the riverside area, and
- Are not detrimental to the amenities of existing occupants in this area.
Justification
Within Garstang, the undeveloped land between properties on the High Street and the River Wyre is allocated as a defined open area (policy SP12 refers). It is important visually and for amenity purposes, and would seriously detract from the environmental quality and character of the settlement if it was to be developed.
Implementation
By the application of development control powers and discussions with landowners and local community groups to promote improved public access and usage.
Any form of development, including planting and fencing, will require the prior consent of the Environment Agency if within 8 metres of the top of the riverbank.
