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Newark & Sherwood Plan Review - Publication Amended Core Strategy

Retail and Town Centres and Retail

5.28     The District is host to a diverse range of centres with Newark actings as the main shopping and service centre for the surrounding rural area., and is also defined as a Sub-Regional centre in the East Midlands Regional Plan. Beneath this Tthere are also a number of settlements across the District smaller centres that which contain a range of facilities and whose primary role is to serve the daily and weekly needs of the local population.

5.29     Promoting the growth of retailing and other town centre uses such as leisure, entertainment, offices, arts, culture, tourism facilities and housing, is important for maintaining the vitality and viability of existing centres and ensuring that they continue to act as a focus for the community.

5.30    National planning policy provides the framework for developing local shopping policies tailored to the specific circumstances of the District. The overarching aim is to sustain and enhance the vitality and viability of existing centres, wherever possible, and to plan positively for new development within them, having regard to the role and needs of their catchments. Local Planning Authorities are therefore encouraged to define a network and hierarchy of retail centres with particular attention being given to smaller centres which are not identified in the Regional Plan.

5.31   In order to gain a clear and up to date understanding of the Town Centre issues facing the District and the need for Main Town Centre Uses over the Plan Period assessment of retail and other town centre uses in the District, the Council commissioned a study by GVA Grimley Carter Jonas in 201609. This showed that:

  • In terms of trade-draw, Nottingham, Lincoln, Mansfield, Grantham, Sleaford and Retford are the main centres competing with Newark;
  • A growth scenario incorporating the additional expenditure that will be generated by population growth resulting from the provisions of the LDF indicate that there would be additional capacity for both convenience and comparison goods in the District;
    • After allowing for the Potterdyke scheme in Newark and other schemes within and immediately adjacent to the District, there is limited capacity for additional convenience goods floorspace up to 2014. However an estimated additional capacity of 5,661sqm net within the Newark Urban Area and 6,707 sqm net across the District would be required by 2026;
    • An estimated additional comparison goods capacity of 4,911 sqm net by 2019, 15,040 sqm net by 2024 and 18,459 sqm net by 2026 is required.
  • There is limited capacity for both additional convenience and comparison retail floorspace in the early – medium phase of the Plan Period (see table below), and the capacity which does emerge subsequently is dependent on population growth occurring. Although in terms of convenience retail greater capacity exists (post-2026) for supermarket and/or deep discount format floorspace;

Table 4

 

2021

2026

2031

2033

Convenience Retail Floorspace (sqm.)

-160

926

1,963

2,367

Comparison Retail Floorspace (sqm.)

-3,479

35

3,851

5,359

  • Whilst the main towns and smaller centres in Newark and Sherwood District appear to be vital and viable, they are nevertheless vulnerable to increased competition from out-of-centre retailing and the growth of internet shopping. Newark Town Centre is shown to have lost market share to competing out-of-centre foodstores, retail warehouses and retail parks. There has also been dynamic growth in smaller convenience stores operated by the major grocers. Where proposed on the edge or outside of smaller centres, this form of retail development can result in significant adverse impact on trading performance and overall vitality and viability – particularly where a centre is anchored by a smaller supermarket(s) or convenience stores;
  • The District Council has an important role in promoting, guiding and delivering new investment and development within Centres over the Plan Period to help underpin their continued vitality and viability. A number of development opportunities and interventions have been identified. In respect of Newark Town Centre this includes development opportunities at the Buttermarket, Corn Exchange and the Carter Gate Area. Whilst with respect to Ollerton, the improvement of linkages between Tesco and the District Centre and the redevelopment of the existing allocation OB/RE/1 and Forest Centre; and
  • The assessment of leisure expenditure indicates that there is potential to support additional leisure facilities over the plan period. There is the potential, subject to market demand, for an expansion of food and beverage provision across the various centres, and the capacity to support additional cinema screens in Newark over the plan period.

The retail and town centre study highlights that Newark acts as the main centre for retail and leisure within the District which benefits from a high quality historic environment. It concludes that the overriding objective over the LDF period should be the consolidation and enhancement of the existing composition of the town centre through investment in the existing building stock, the environment, public realm and infill development/redevelopment. A key objective is for the town to maintain market share and performance within the network of sub-regional centres and it is recommended that the Council fully explore infill development/redevelopment opportunities. This would provide new units, attracting new retailers/leisure operators, thereby encouraging footfall and shopper/expenditure activity.

5.32    Based on the requirements of national policy and utilising the findings of the Retail and Town Centres & Retail Study, a retail hierarchy and network of centres has been developed and this will form the basis for retail and service provision across the District. It sets the framework for development and change, assists the Council with development control decisions for planning applications for retail and other town centre uses and helps ensure that such uses are located in appropriately-sized centres across the District.

5.33     In recognition of its role as a Sub-Regional Centre, the Local Development Framework Newark Town Centre will continue to be promoted Newark as the location where new and enhanced retail and other uses, as identified within PPS4 national policy, will be focused. Further information on the role of Newark is set out in policy NAP1.

5.34     The Retail and Town Centre & Retail Study also carried out audits of smaller centres within the District. It concluded that all they are largely vital and viable and in adequate health, although some, including the District Centre at Ollerton, face challenges. Smaller centres provideing important local convenience and service provision to meet the everyday needs of local residents. The Council will seek to ensure that this continues and will promote new and enhanced facilities that are appropriate to the size of the centre and, as such, they are identified as either District Centres or Local Centres.

5.35     To accurately determine whether or not retail units and development proposal sites are located in, on the edge of, or outside of centres, appropriate boundaries for these centres will have been identified. In addition, retail frontages designations, as defined within PPS4, will have been identified in the Sub-Regional Centre of Newark and the District Centres of Southwell, Ollerton, and Edwinstowe and Rainworth. The boundaries and of main town centre designations frontages for all centres within the hierarchy are shown on the Policies Map. Policy DM11 ‘Retail and Town Centre Uses’ provides additional detail on how planning applications for main town centres uses and the management of centres will be provided for. along with detailed policies to guide development within these locations will be defined in the Allocations & Development Management DPD.

The role of these centres defined within the hierarchy will be as follows:

  • Sub-Regional Centre - Newark is the largest centre within the District and contains a large proportion of retail, service and leisure facilities which meets the needs of the Newark Urban Area and the wider population of the District. To meet the objectives of the Regional Plan and the Core Strategy, Newark will continue to be the focus of new and enhanced retail and other town centre activity (as defined in national policy PPS4).
  • District Centres - are primarily used for convenience shopping, with some comparison shopping and they also provide a range of other services for the settlement and the surrounding communities. The District Council will seek to maintain and enhance the role of these centres by supporting new retail and other town centre uses. Such development should be consistent in scale with the size and function of the centre and the area that it serves.
  • Local centres - are principally concerned with the sale of food and other convenience goods to their local communities. They also provide a limited range of other services and play an important role in providing for the day to day needs of local people, in particular, for the less mobile of these communities such as the elderly and non-car owners. Shopping areas such as these are also vital in acting as focal points for various community facilities and the District Council will seek to ensure that this continues throughout the plan period.

5.36    Given the level of growth anticipated within the Newark Urban Area District over the plan period, especially in and around Newark, where 3 strategic sites are allocated, the need for provision of new suitably sized centres to serve the needs generated by this growth is recognised or the enhancement of existing centres within the hierarchy will be needed. New centres will be required to be of a scale that meets the needs of the communities they serve and demonstrate that they do not have a detrimental impact on other centres within the hierarchy. Given the relationship between population growth and the capacity to support additional convenience retail floorspace, a sequentially appropriate location within the main built-up area to the south of Newark is the most suitable and sustainable location to meet future convenience retail needs. Any Eenhancement of existing centres will need to be consistent in scale with the size and function of the centre and the area that it serves.

5.37    Promoting a hierarchy of centres will help focus new activity on named centres, rather than compromising viability and vitality by supporting unsustainable out-of-centre proposals that do not encourage sustainable methods of travel. Reflecting the vulnerability of the District’s centres to increased competition from out-of-centre retailing and the growth of internet shopping locally appropriate thresholds requiring the undertaking of a proportionate impact test have been introduced. Proposals to vary conditions on existing facilities, to widen the range of goods sold, can also impact on the vitality and viability of centres and have an impact on their economic performance. Accordingly Pproposals for the main town centre development of out-of-centre schemes beyond defined centres will be required to demonstrate satisfaction of the Sequential Test, and in respect of retail development exceeding local thresholds, the Impact Test. The tests will be applied in line with national policy and following the approach provided by Policy DM11. that they have met the requirements of policies within PPS4 concerning the application of the sequential test and their impacts on centres.

Core Policy 8

Retail Hierarchy & Town Centres

The District Council will seek to maintain and enhance the vitality and viability of centres by working with partners and applicants to:

  • Support a network of healthy, vibrant and resilient centres, composed of a balanced range of retail and other main Town Centre uses; 
  • Ensure that the needs for retail and other main Town Centre use development are met in full. Ensuring that, taking account of commitments as at 1st April 2016, sufficient provision has been made to meet forecast convenience and comparison retail capacity within the District up to 2033;
  •  Focus future retail and main Town Centre use development and investment using the hierarchy of centres set out below, ensuring that proposals for new development are consistent in terms of scale and function with the size and role of centre in question. The extents of centre boundaries have been defined on the Policies Map;

The following retail hierarchy will be applied in the development of policies for retail and town centres uses (as defined in PPS4) and the determination of planning applications within the District:

Hierarchy of Centres

Designation

Role and Function

Location

Sub- Regional Centre/Town Centre

Principal focus of new and enhanced retail and other main tTown cCentre activity uses (as defined in PPS4 the National Planning Policy Framework) in Newark & Sherwood

  • Newark Town Centre

District Centres

Primarily used for convenience shopping, with some comparison shopping. They also provide a range of other services for the settlement and surrounding communities

  • Edwinstowe
  • Ollerton
  • Rainworth
  • Southwell

Local Centres

Principally concerned with the sale of food and other convenience goods, and the provision of services to the local community in which they are located.

  • Balderton (north & south)
  • Bilsthorpe
  • Blidworth
  • Boughton
  • Clipstone
  • Collingham
  • Farnsfield
  • Fernwood Village Centre
  • Land around Fernwood (NAP2C)
  • Land East of Newark           (NAP2B)
  • Land South of Newark           ( NAP2A)
  • Lowdham
  • Rainworth
  • Sutton on Trent

Proposals for the provision of retail and other town centre uses in the centres defined above should be consistent in scale with the size and function of the centre.

  • Follow a sequential approach to the location of new main Town Centre uses and retail development. In line with national policy, and following the approach set out in Policy DM11 ‘Retail and Town Centre Uses’, this will require proposals to be firstly located within a centre, then edge-of-centre and only if no suitable sites are available will consideration be given to out-of-centre locations;
  • Ensure that the impact from proposed retail development which is located outside of a defined centre and has a gross floorspace equalling or exceeding the levels set out below is robustly assessed, through the undertaking of an impact assessment proportionate to the scale and type of retail floorspace proposed. This assessment should satisfactorily address the requirements detailed within national policy and those identified in Policy DM11 ‘Retail and Town Centre Uses’;

Newark Urban Area

400 sqm. (gross)

Rest of the District

350 sqm. (gross)

 

The scope of an impact assessment should be discussed and agreed between the District Council and applicants at an early stage in the pre-application/application process, and will be agreed on a case-by-case basis.

Policy DM11 ‘Retail and Town Centre Uses’ defines the locations and circumstances where some small-scale retail and rural forms of development will be exempt from application of the sequential and impact tests;

The boundaries and frontages for these centres, along with detailed policies concerning development in these areas, will be set out in the Allocations & Development Management DPD. It should be noted that boundaries identified for the retail hierarchy will be different to those discussed in Spatial Policy 1 which concerns the District’s settlement hierarchy

  • Appropriately manage Primary and Secondary Shopping Frontages, safeguarding the retail function and character of the centre, in line with the approach set out in Policy DM11 ‘Retail and Town Centre Uses’. The extents of Primary and Secondary Shopping Frontages have been defined on the Policies Map;

New retail development of an appropriate scale to meet local need will be required in the following locations to serve the 3 strategic sites at:

  • Land South of Newark;
  • Land East of Newark; and
  • Land around Fernwood

 

  • Deliver new convenience retail development to the south of the Newark Urban Area which is of a scale sufficient to meet the needs generated by population growth. Support will therefore be provided for provision within the main-built up area, in a sequentially appropriate location and subject to application of the Impact Test at either:
    • Land South of Newark (NAP2A)
    • Land around Fernwood (NAP2C); or

Beyond this, additional comparison retail development and other main town centre uses of an appropriate scale to meet local need will also be supported in the above locations;

  • Provide new retail development and other main town centre uses of an appropriate scale to meet local need in the following locations:
    • Land East of Newark (NAP2B); and
    • Sutton-on-Trent (ST/MU/1).
  • Ensure that the development of new centres will be expected to consolidates and enhances the hierarchy of centres and does not harm the vitality and viability of existing centres; and 
  • Deliver the centre specific actions detailed in NAP1 ‘Newark Urban Area, SoAP1 ‘Role and Setting of Southwell’, ShAP 2 ‘Role of Ollerton & Boughton’ and ShAP 3 ‘Role of Edwinstowe’.

 Proposals for the provision of retail and other town centre uses in the centres defined above (apart from those to meet local needs) will be located in or on the edge of centres. Such development should be consistent in scale with the size and function of the centre and the area that it serves.

Retail development in out-of-centre locations will be strictly controlled by utilising the policies within PPS4. Proposals will need to demonstrate their suitability through a sequential site approach and provide a robust assessment of impact on nearby centres