Chapter 7
Retail Development

R1	Retail Development Strategy (Part 1 policy)
R2	Southport Town Centre
R3	Southport Station Complex
R4	Bootle Town Centre
R5	Edge-of-Centre Retail Development: TAVR Site, Strand Road, Bootle
R6	Development in District and Local Shopping Centres
R7	Local Shopping Parades
R8	Upper Floors in Defined Centres and Shopping Parades
R9	Edge-of-Centre and Out-of-Centre Retail Developments and Key Town Centre Uses
R10	Lanstar Site, Church Road, Litherland

 

Introduction

7.1 In 1996 there was a shift in national policy relating to the future location of retail, leisure and other town centre developments. The promotion of sustainable development and the need to regenerate town centres, means that town centres are now the first choice for these developments to sustain and enhance their vitality and viability^G. Town centres also tend to be the most accessible locations offering the greatest potential for reducing dependence on the private car.

 

7.2 The Retail Strategy Review 2001 examined the need for new retail development in Sefton. It confirmed that there is a need for two major supermarkets in the south of the Borough and further provision for non-food floorspace^G within Bootle Town Centre by 2011. Appropriate sites have been allocated to seek to meet the need identified for both the foodstores and the non-food floorspace within Bootle. As a result of planning permissions for significant new development in Southport (not all built yet), there is a limited quantitative need to provide further retail floorspace for food or non-food in the north of the Borough.

 

7.3 The Retail Strategy Review also recognises the need to encourage higher quality shopping within Southport Town Centre to improve its competitiveness. Such improvements may involve the redevelopment or reconfiguration of existing floorspace within Southport Town Centre. The Retail Strategy Review also confirms that due to significant planning permissions (yet to be implemented), there is no need to allocate additional sites for retail warehousing within Sefton during the Plan period.

 

7.4 Notwithstanding the above, it is accepted that assessments of the need for retail floorspace can change over time and accordingly the Council will monitor the situation on a regular basis.

 

7.5 Sefton’s Town, District and Local Centres have varying roles in meeting the future shopping requirements of the Borough’s residents and visitors alike. These centres are also the focus of other important services and facilities (including employment, leisure, higher education and hospitals), which complement the Centre’s shopping role. The hierarchy of shopping centres in Sefton is shown below and in figure 7.1.

 

 

 

 

Explanation

7.6 Maintaining a variety of high quality shopping facilities is the key to maintaining and enhancing the vitality and viability^G of Town, District and Local Centres. Wherever possible, future retail development should be located within the defined centres.

 

7.7 Where a need can be demonstrated for a proposed development and there are no suitable sites within the Town Centres to accommodate this need, the first preference should be for such development to locate on edge-of-centre sites including the TAVR site allocated for retail development (Policy R5). This site addresses part of the identified need within the south of the Borough and has been identified in line with the sequential test.

 

7.8 If no edge-of-town centre, district and local centre sites are suitable and available, then out-of-centre sites will be considered. The Council have identified the Lanstar site (Policy R10) for an out-of-centre supermarket to serve the Litherland area. This allocation will address part of the balance of identified need for retail development within the South of the Borough and has been made in accordance with the sequential approach to site selection.

 

7.9 Major retail development can play a positive role in urban regeneration. Where such development would not harm the overall retail strategy, this factor may be taken into account in considering proposals.

 

Implementation

7.10 This policy will be implemented through the development control process.

 

Sustainability Appraisal

No changes needed.

 

Policy Links

RSS Policy -
EC6     Town Centres, Retail Leisure and Office Development
UDP Policies -
CS1     Development and Regeneration
UP1     Development in Urban Priority Areas
R5       Edge-of-centre Retail Development: TAVR Site, Strand Road, Bootle
R10     Lanstar Site, Church Road, Litherland.

 

Background Documents

‘Retail Strategy Review 2001’, Sefton MBC / Chesterton, January 2002.

 

Southport Town Centre

7.11 Southport is the largest shopping centre in Sefton. Whilst it is relatively stable, it is experiencing pressures resulting from the continuing growth of comparison shopping^G in edge-of-centre and out-of-centre locations, as well as centres outside Sefton.

 

7.12 Within the Central Area of Southport (see Policy EDT13), retail activities are concentrated along the north western side of Lord Street and on Chapel Street. These areas are defined as Primary Retail Frontages and are shown in Figure 7.2.

 

7.13 The recent supermarket developments at the south-western end of Lord Street and the ‘Central 12’ Retail Park off Derby Road are included within a wider Town Centre shopping area¹. Secondary, less central shopping streets and streets containing a mixture of uses with a number of shops are also included within this area.

 

7.14 The Town Centre will continue to provide the focus for the town’s continued convenience^G and comparison shopping needs. Throughout the Plan period the Council will seek to maintain the varied character of different parts of the main shopping streets, including the historic character and quality shopping on Lord Street. This forms an essential part of the centre’s attractiveness, and also plays a vital part in Southport’s importance for tourism.

 

 

Explanation

7.15 Southport will continue to be the main shopping centre for the north of the Borough. The Council will seek to ensure that the Town Centre remains the focus for new retail investment. In particular, proposals will be permitted which seek to improve the quality of Southport’s shopping role to enable the centre to compete more effectively with major centres elsewhere.

 

7.16 Policies for retailing in the centre must not only keep a balance between meeting Southport’s convenience^G and comparison^G shopping needs, but should also help to maintain and enhance the unique historic shopping quality and elegance of Lord Street. The Council will seek to retain retail uses in key locations as they contribute significantly to the shopping function of the area.

 

7.17 Changes of use from retail to non-retail in a defined Primary Retail Frontage can harm the overall vitality and viability of a particular street and the Centre as a whole. The policy sets out the circumstances where such proposals will be resisted.

 

7.18 Amusement centres will not be allowed within the Primary Retail Frontages because they would be likely to create less vibrant retail frontages and so harm the shopping character of these areas. Policy EDT14 sets out the areas in which they will be permitted.

 

Implementation

7.19 This policy will be implemented through the development control process.

 

Sustainability Appraisal

Policy has been changed to resolve the overlap and potential conflict with EDT13 ‘Southport Central Area - Development Principles’.

 

Policy Links

R1 Retail Development Strategy
EDT13 Southport Central Area Development Principles
EDT14 Southport Resort Area
MD6 Food & Drink Uses
T3 Pedestrian Priority on Chapel Street, Southport
T5 New Car Parks in Designated Areas

 

Background documents

‘Retail Strategy Review 2001’, Sefton MBC / Chesterton, January 2002

 

Explanation

7.20 Southport station is a major gateway into the town in a central location and would benefit from significant improvement of its existing facilities and surrounding retail units. A high quality mixed use development on the site shown on the Proposals Map comprising retail, leisure and other appropriate uses as listed within the policy would improve the quality and range of Southport’s shopping facilities. This would help retain Southport’s position as a major sub-regional shopping centre by enhancing its competitiveness with other popular shopping destinations in the north-west such as Preston, Liverpool and Manchester.

 

7.21 A Development Brief will be prepared for the site and will contain specific details of how the site may be brought forward for development, including constraints and opportunities within the site.

 

7.22 It is important to emphasise that any development must retain the railway station and platforms in approximately their current position. A bus interchange will also be provided on this site (see Policy T4).

 

Implementation

7.23 This policy will be implemented through a Development Brief and the development control process.

 

Sustainability Appraisal

Policy changed to allow residential uses in upper floors.

 

Policy Links

R1 Retail Development Strategy
EDT13 Southport Central Area Development Principles
EDT14 Southport Resort Area
MD6 Food & Drink Uses
T3 Pedestrianisation Priority on Chapel Street, Southport
T4 Safeguarding the Public Transport Network
T5 New Car Parks in Designated Areas

 

Background documents

‘Retail Strategy Review 2001’, Sefton MBC / Chesterton, January 2002.

 

Bootle Town Centre

7.24 Bootle contains the second largest shopping centre in Sefton, and is the main centre serving the south of the Borough. There has been significant investment in the centre within the last five years, mainly in comparison^G shopping. This has reinforced the centre’s mixed shopping role. Notwithstanding this investment, the Retail Strategy Review has identified a need for two additional major supermarkets to serve the south of the Borough, as well as a need for a further 6,000 m2 of non-food floorspace^G in the town centre.

 

7.25 As this need cannot be accommodated within the Strand Shopping Centre, and there are no sites available within the wider centre, the Council has identified an edge-of-centre^G site which could accommodate part of this need. Policy R5 sets out the planning framework for the development of this site. The remainder of this need for a major supermarket is likely to be met on an out-of-centre^G site (see Policy R10).

 

7.26 As Policies EDT10, EDT11 & EDT12 explain, there is likely to be major re-structuring within the Central Area of Bootle. This includes the redevelopment of the Office Quarter and the development of the Central Area Opportunity Sites and the edge-of-centre retail site referred to above. Major development will be expected to contribute towards meeting the overall strategy for the Central Area and the improvement to public space.

 

Explanation

7.27 95% of the retail floorspace in the Town Centre is contained within The Strand, an indoor shopping centre. In addition to The Strand, the area on the eastern side of Stanley Road is included in order to encourage the development of this area as a main shopping street.

 

7.28 Two areas have been identified as suitable for expansion of the shopping area: a site allocated for a supermarket and other retail development on the edge of the centre (Policy R5) and land on the eastern side of Stanley Road (Policy EDT12).

 

7.29 Proposals for other uses in the Town Centre will be assessed against the development principles for Bootle Central Area (Policy EDT10) and the policy for food and drink uses (Policy MD6).

 

Implementation

7.30 This policy will be implemented through the development control process.

 

Sustainability Appraisal

Policy has been amended to resolve the overlap and potential conflict with EDT10 ‘Bootle Central Areas - Development Principles’.

 

Policy Links

R1 Retail Development Strategy
R5 Edge-of-centre Retail Development Site: TAVR Site, Strand Road, Bootle
EDT10 Bootle Central Area - Development Principles
EDT12 Bootle Central Area Opportunity Sites
MD6 Food and Drink Uses

 

Background documents

‘Atlantic Gateway SSDA, Bootle Town Centre Strategy and Action Area’, Sefton MBC / GVA Grimley, March 2001; ‘Retail Strategy Review 2001’, Sefton MBC / Chesterton, January 2002.

 

Explanation

7.31 The Retail Strategy Review identified a need for additional convenience^G retail floorspace in south Sefton equivalent to 2 new superstores. The Council’s preferred location for part of this additional floorspace is this edge-of-centre^G site as there are no suitable sites available or likely to become available within Bootle Town Centre. This development will strengthen the vitality and viability of Bootle as a shopping centre.

 

7.32 The Council will purchase property compulsorily if necessary to ensure that this site is available for development. Alternative premises for the TAVR will be required as part of any redevelopment of the site, possibly on another site in the area.

 

7.33 The site includes an area of urban greenspace. The Council accepts that the precise boundary and extent of the greenspace may change as a result of the development of this site. However, the developer will be required to improve the remaining/replacement area of urban greenspace in line with the requirements of Policies G1 and G2.

 

Implementation

7.34 This policy will be implemented through the development control process.

 

Sustainability Appraisal

No changes made. There are no available town centre sites and so this site supports vitality and viability.

 

Policy Links

R1 Retail Development Strategy
EDT10 Bootle Central Area Development Principles
G1 Protection of Urban Greenspace
G2 Improving Public Access to Urban Greenspace
EMW9 Recycling Facilities

 

Background documents

Planning Policy Guidance Note 6: ‘Town Centres and Retailing’, 1996; ‘Retail Strategy Review 2001’, Sefton MBC / Chesterton, January 2002.

 

Other locations in the Borough

Explanation

7.35 A primary objective of the shopping policies is to maintain and enhance the vitality and viability of the defined centres. While these centres are the focal point for many aspects of community life, including offices, services and leisure activities, a healthy shopping role is the foundation for this and should be protected.

 

7.36 In District Centres, proposals for new retail development should be located within the Primary Retail Frontages shown on the Proposals Map and in figure 7.2 or, if no sites are available, elsewhere within the District Centre. In Local Centres retail development should be located within the Local Centre boundary.

 

7.37 The Council will seek to control the spread of non-retail uses within the Primary Retail Frontages of Waterloo, Crosby, Maghull and Formby District Centres. The Primary Retail Frontages are generally restricted to the main shopping streets within each Centre and are often characterised by the presence of multiple retailers^G.

 

7.38 Local centres are small groupings of shop units which meet local needs usually comprising a newsagent, a general grocery store, and a sub-post office. The Local Centres in Sefton (Ainsdale, Birkdale, Churchtown, Shakespeare Street (Southport), Netherton, Old Roan (Aintree) and Seaforth) often have only a single shopping street with no multiple retailers. However, these Centres are still important because of their valuable role in providing convenienceG shopping for local residents.

 

7.39 Development should be of an appropriate scale to the Centre, and should not harm the vitality and viabilityG of the Centre or any other Town or District Centre.

 

7.40 The inclusion of any property within a Primary Retail Frontage does not automatically mean proposals for non-retail uses will be refused. Such proposals will, however, be carefully considered in terms of the objective of maintaining and enhancing the shopping and wider role of the Centre, and in relation to any impact on residential amenity.

 

Implementation

7.41 This policy will be implemented through the development control process.

 

Sustainability Appraisal

No changes needed as the amended Policy R1 ’Retail Development Strategy’ and explanation clarifies the shopping hierarchy.

 

Policy Links

R1 Retail Development Strategy
CS3 Development Principles
MD6 Food and Drink Uses

 

Background documents

‘Retail Strategy Review 2001’, Sefton MBC / Chesterton, January 2002

 

Explanation

7.42 Sefton has many Local Shopping Parades. These are small groups of shops and other services which serve the local area, but contain fewer facilities than a Local Centre. Many have declined in recent years, especially as a result of the growth of large supermarkets and DIY stores which has reduced the demand for local shops. Many parades now consist of a small number of shops which could include a convenience^G store, chemist, post office and off licence but also have many vacant units.

 

7.43 As part of the emerging strategy for the South Sefton Housing Market Renewal Pathfinder Area, proposals for rationalising and replacing many redundant shopping parades are likely to come forward.

 

7.44 The Council will promote new development or the re-use of vacant properties, both at ground and upper floor levels, for a variety of uses such as retail, community, offices and residential to improve local facilities and the appearance of an area.

 

Implementation

7.45 This policy will be implemented through the development control process.

 

Sustainability Appraisal

No changes needed as the amended Policy R1 ’Retail Development Strategy’ and explanation clarifies the shopping hierarchy.

 

Policy Links

R8 Upper Floors in Defined Centres and Shopping Parades
CS3 Development Principles
EDT8 Business and Industrial Development outside Primarily Industrial Areas
DQ1 Design
EP1 Managing Environmental Risk

 

Background documents

‘Retail Strategy Review 2001’, Sefton MBC / Chesterton, January 2002.

 

Explanation

7.46 Upper floors in Town, District and Local Centres and parades are often left vacant or used for storage and are therefore not used to their full potential. The re-use of upper floors can make an important contribution to the regeneration of the local area and can provide valuable additional residential floorspace.

 

7.47 These locations are usually well served by public transport and close to local services. The conversion of this floorspace can also increase activity and in turn personal safety.

 

7.48 The Council will encourage proposals which create new or convert upper floors into any active use, including residential use, provided they meet the criteria set out in the residential amenity policies. In particular, proposals should have a satisfactory means of access.

 

Implementation

7.49 This policy will be implemented through the development control process.

 

Sustainability Appraisal

Policy and explanation changed to encourage residential uses.

 

Policy Links

EDT8 Business and Industrial Development Outside Primarily Industrial Areas
DQ1 Design

 

Background Documents

Planning Policy Guidance Note 3: ‘Housing’, 2000; Planning Policy Guidance Note 6: ‘Town Centres and Retailing’, 1996.

 

Explanation

7.50 One of the ways in which the objective of sustaining and enhancing the vitality and viability of Town, District and Local Centres is met is by directing new retail development and key town, district and local centre uses and leisure development to them. This approach applies to both retail development and all key town centre uses which attract a lot of people, including commercial and public offices, entertainment, leisure, and other similar uses. Smaller scale facilities, such as health centres, branch libraries, pubs and restaurants should be encouraged in local centres. However, it is not always possible to locate such development within these centres due to various constraints, including a lack of suitable and available sites.

 

7.51 First preference should therefore be Town Centre sites, followed by edge-of-town centre^G sites, then edge-of-district centre sites and finally out-of-centre^G sites in locations accessible by a choice of means of transport. Developers are required to demonstrate that they have followed this sequential test^G. In accordance with latest Government guidance, developers will be expected to be flexible about the scale and format of a proposed development, and the extent to which constituent parts of the development could be accommodated on more central sites. In relation to large bulky goods stores, developers and retailers will need to demonstrate that the majority of goods cannot be sold from town centre stores.

 

7.52 In the case of retail proposals on allocated, edge-of-centre and out-of-centre sites, developers will be required to demonstrate that:

 

• there is a quantitative or other need for the proposal;

   

• they will not harm the vitality and viability of a defined centre;

   

• there are no suitable or viable sites within a sequentially superior location which are likely to become available within a reasonable period of time; and

   

• the highway infrastructure can accommodate the levels of traffic likely to be generated by development.

   

7.53 In cases where the developer wishes to argue that there is a qualitative need for the development, this will be given less weight than the quantitative need. Where other benefits are identified, such as the regeneration of a site, or the employment created, these cannot be regarded as an aspect of retail need but may be regarded as other material considerations, in accordance with latest Government advice.

 

7.54 For out-of-centre locations, consideration will be given to their accessibility by a choice of means of transport and their likely effect on overall travel patterns. Opportunities to combine proposals with existing out-of-centre developments (such as existing retail warehouse parks) to reduce unnecessary car journeys will be considered preferable to isolated developments elsewhere.

 

7.55 Sefton's Retail Parks largely comprise single-level stores specialising in the sale of bulky household goods (such as carpets, furniture, and electrical goods) and bulky DIY items, catering mainly for car-borne customers in out-of-centre locations. It is important that the Borough's Retail Parks are retained for this important role so that they continue to provide a destination for bulky goods sales and do not undermine the role of existing retail centres within or outside the Borough.

 

7.56 Developers will also be required to provide a full Retail Impact Assessment^G for proposals of over 2,500m2 net. For smaller proposals of between 1,000m2 and 2,500m2. net a Retail Statement^G will be required. All edge-of-centre and out-of-centre retail proposals will need to fully satisfy the various criteria for assessing new retail development set out in Planning Policy Guidance Note 6.

 

7.57 Sefton has seen significant growth in the retail sector in out-of-centre locations in recent years which has resulted in the designation of a number of Retail Parks. Proposals for additional retail floorspace of over 500m2 net but less than 2,500m2 net on the Retail Parks will be required to satisfy the same criteria as proposals for any out-of-centre retail development in terms of need and sequential test. A supporting Retail Statement will also be required in these instances.

 

7.58 The Grand National Retail Park has planning permission for an additional 2,300m2 .This is a commitment which the Council will support. The implementation of this permission will not be subject to the criteria of this policy.

 

7.59 Planning permission has recently been granted for mixed retail and leisure development at Southport Seafront (the Ocean Plaza development). This proposal includes a bowling alley, cinema, private health club and approximately 9,300m2 of retail floorspace including 2 fast food outlets. This development is in an out-of-centre location and the Council will not support additional retail floorspace here.

 

Implementation

7.60 This policy will be implemented through the development control process.

 

Sustainability Appraisal

Minor change in policy wording for clarity.

 

Policy Links

R1 Retail Development Strategy
R5 Edge-of-centre Retail Development Site - TAVR Site, Strand Road, Bootle
R10 Lanstar Site, Church Road, Litherland
EMW9 Recycling Facilities
AD1 Location of Development
AD2 Ensuring Choice of Travel
AD3 Transport Assessments

 

Background documents

‘Retail Scoping Study’, Sefton MBC / Chesterton, March 2001; ‘Retail Strategy Review 2001’, Sefton MBC / Chesterton, January 2002; Planning Policy Guidance Note 6: ’Town Centres and Retailing’ 1996; The Caborn statement, February 1999; the McNulty statement, April, 2003.

 

Explanation

7.61 This is a strategically important site situated within the Dunnings Bridge corridor. It remains the Council’s preferred site to accommodate an out-of-centre supermarket to serve the Litherland area, notwithstanding the Secretary of State’s decision to refuse the called in^G planning application for a supermarket on this site, because the development of this site is seen as having the greatest regeneration benefits to the adjacent Housing Market Renewal Pathfinder^G Area.

 

7.62 The development of a supermarket on this site is subject to an equivalent amount of industrial floorspace being provided as part of the development. This is to ensure that an adequate supply of employment land and an appropriate balance of employment uses are retained within the vicinity to provide employment for local people.

 

7.63 Any retail development for the Lanstar site should include measures for improving pedestrian access to both Sefton Street and Bridge Road. This is to ensure that those without cars may still access the supermarket and also to increase the likelihood that linked shopping trips to these areas may occur. A new footpath network to and from the Lanstar site and Bridge Road will be required, including improvements to existing footways, dropped kerbs, signage and landscaping. This should include a new at grade bridge across the Leeds and Liverpool canal to replace the existing bridge which is unattractive and does not provide ramped access. The new bridge should be compliant with the Disability Discrimination Act. Other environmental improvements around the canal should also be carried out. The proposal should also include improved pedestrian routes across the Hawthorne Road/ Church Road junction, with dropped kerbs and tactile paving; and improvements to the existing subway including lighting, cleaning, refurbishment and landscaping. Cycle facilities should also be improved.

 

Implementation

7.64 This policy will be implemented through the development control process.

 

Sustainability Appraisal

No changes needed.

 

Policy Links

UP1 Development in Urban Priority Areas
R1 Retail Development Strategy
AD2 Ensuring Choice of Travel
AD3 Transport Assessments
R9 Edge-of-Centre & Out-of-Centre Retail Development and Key Town Centre Uses

 

Background documents

‘Retail Strategy Review 2001’, Sefton MBC / Chesterton, Jan 2002

 

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¹This area is the Town Centre for PPG6 purposes in defining town centre, edge-of-centre and out-of-centre locations

 

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