Chapter 8 SHOPPING AND TOWN CENTRES

Introduction

1. This Chapter deals with retail and town centres issues. The Borough has a number of shopping centres which range in size and the facilities offered. Policies in this Chapter set out the retail hierarchy of centres in the Borough; the location for major new retail and leisure developments and core and non core areas for major and district shopping centres; and policies for local shopping centres and parades. Various proposals for site specific development are also included. Policies relating to shop front design are set out in the Urban Design and Conservation chapter. Proposals for improving the Lewisham transport interchange are set out in the Transport chapter. References to tourism and leisure facilities are also to be found in Chapter 9.

Part I Policies

STR.STC 1
To sustain and promote the vitality and viability of the existing shopping centres in the Borough and ensure that the level and range of facilities are appropriate to the role and function of the particular centre in the shopping hierarchy.

STR.STC 2
Town Centres are the preferred location for large scale retail development and proposals for other locations will be critically evaluated and subject to the sequential test and a demonstrable need for the proposal.

STR.STC 3
To seek improvements to the attractiveness, accessibility and environment of the shopping centres in the Borough on a scale appropriate to their status within the retail hierarchy.

Reasons for Part 1 Policies

2. The Government has set out guidance for local planning authorities in relation to retail and town centres, most notably in RPG 3 (1996) and PPG 6 (1996). In summary the main points are:
• that town centres should continue to be the main focus for the provision of shopping;
• the emphasis is on promoting the vitality and viability of existing town centres and not out of centre development;
• local authorities should consider the need for new development and adopt a sequential test for the location of major retail and leisure uses giving first priority to existing town centres; and
• in local centres policies need to be flexible towards change of use, especially where shopping parades are currently run down or where there is a large proportion of vacant or under used space.

3. PPG 6 states “In drawing up their development plans, local planning authorities should, after considering the need for new development, adopt a sequential approach to selecting sites for new development.” In February 1999 the Planning Minister, Richard Caborn, issued clarification to PPG 6 which established that a failure to demonstrate a need for a retail development on an edge or out of centre location would normally justify the refusal of planning permission. Part of the Minister’s statement says, “In the context of PPG 6 and this additional guidance, the requirement to demonstrate ‘need’ should not be regarded as being fulfilled simply by showing that there is capacity (in physical terms), or demand (in terms of available expenditure within the proposal’s catchment area) for the proposed development. Whilst the existence of capacity or demand may form part of the demonstration of need, the significance in any particular case of the factors which may show need will be a matter for the decision maker.”

4. The Council therefore commissioned GL Hearn Planning to undertake a retail capacity study for the Borough. The study defined a core catchment area for Lewisham and Catford Town Centres and a wider strategic catchment area for Lewisham. The GL Hearn study looks at likely available expenditure within the catchment areas up to 2011 and provides estimates of both comparison and convenience floorspace growth needed to meet this demand. The main findings from the study were that there is no need for additional food retailing in the core Lewisham catchment area up to 2006 with a small increase justified by 2011. However, there is a need for additional comparison floorspace of between 8-11,000 m2 up to 2006 increasing to 13-17,000 m2 by 2011. Taking into account the strategic catchment area this increases to 20-25,000 m2 by 2006 and 36-46,000 m2 by 2011. The GL Hearn study is however based on a quantitative assessment only and does not encompass both elements of need identified by the Minister.

5. The policies in the UDP are set out in order to meet both the Council’s and the Government’s aspirations for shopping and town centres. There are a number of shopping centres in Lewisham which range in size and the type of facilities offered. They are well distributed to give easy access to the facilities offered. See Map 8.1 for the Borough’s shopping areas.

6. The existing shopping centres, particularly the major and district centres, are well located for public transport and are accessible to most Lewisham citizens including those who do not have access to a private car. The existing centres also represent a great deal of both public and private investment over many years. In order to protect this investment and to safeguard sustainable town centres the Council considers existing centres should be the main focus for retail and leisure developments.

7. Lewisham Town Centre is the Borough’s most important shopping area. LPAC recommended a hierarchy or network of centres in London comprised of International Centres, Metropolitan Centres, Major Centres, District Centres and Neighbourhood or Local Centres. Lewisham was classified as a Major Centre with the potential to become a Metropolitan Centre. The Council’s aspirations for Lewisham Town Centre are that it should realise its potential to become a more important strategic centre in the London network of centres. In order to achieve this, both qualitative and quantitative retail improvements will be necessary over the lifetime of this Plan.

8. Shopping as an activity should be attractive, safe, accessible and convenient. The vitality of a shopping area can be influenced by the environmental conditions. The profitability of the shops and the enjoyment of shopping are both likely to increase with a more pleasant environment. For these reasons the Council will undertake environmental improvements and encourage others to improve the physical fabric in shopping centres.

The Council’s Strategy for Shopping and Town Centres

9. The Council’s land use strategy for shopping and town centres is:
• to support the existing hierarchy of provision but aim to improve the strategic role and function of Lewisham Town Centre;
• to locate major new retail and leisure facilities within the existing Major and District Town Centres;
• to promote the vitality and viability of the Major and District Town Centres by protecting a core of retail uses, encouraging diversity including the evening economy, improving the environment and implementing regeneration strategies;
• to manage change in the smaller shopping centres and parades so that they have a viable future.

10. The Council intends to regenerate the Major and District Town Centres by strengthening their retail function, encouraging a diversification of appropriate uses and facilitating visual and environmental improvements. The evening economy will be encouraged in the Major Town Centres to enhance their vitality and viability outside of office hours. In local centres and parades the Council wants to encourage and support local shopping facilities but to allow a change of use from retail where the demand and need no longer exists and discourage a change of use where there is a continuing demand and need for retail.

11. In line with the objective of creating a sustainable environment the Council wants to contribute to the reduction in the need to travel particularly by the private car. To achieve this the maximum use of the Major and District Town Centres by public transport will be encouraged. To facilitate movement around the Centres provision for people with disabilities and for pedestrians and cyclists will be required. Substantial new retail floorspace will only be acceptable within the Major and District except for sites which meet the sequential test under Policy STC 2. The reason for this allocation is to provide for the likely expansion of comparison floorspace identified in the retail capacity study produced by GL Hearn for the Council.

12. The Council recognises that the larger Town Centres have a variety of roles to play in addition to their shopping function. However, in order to retain a strong retail presence in the Major and District shopping centres core shopping frontages have been defined where retail use will dominate. Non core areas have been defined where a range of service uses, which are appropriate to a shopping centre, will be encouraged. Outside of these designated areas a larger variety of uses will be considered in relation to their contribution to increasing the variety and viability of the individual centre.

13. Town Centres are vital to the prosperity of the Borough. They are areas where employment is concentrated, civic functions are provided, entertainment, transport interchange as well as shops and other services. Regeneration in Lewisham has to involve improvements to the Major and District Town Centres in particular. They are vital to a sustainable economy because they are accessible by public transport and a number of linked activities can be conducted on one visit. A mix of uses contributes to sustainable living, economy of space, vitality and higher density living. All of these are encouraged in Town Centres. Equality of opportunity and social inclusion is achieved by promoting the Town Centres as sustainable living and working areas. Good public transport access, provision for people with disabilities, for pedestrians and cyclists, access to jobs and quality of life community facilities are all provided in our Town Centres. For all these reasons they are vital to Lewisham and must be supported. The land use strategy aims to contribute to these objectives.

Part II Policies

Reasons
The Council supports the existing hierarchy of shopping facilities. This represents a great deal of investment, both private and public, and a distribution of shopping facilities which permits access for the majority of the community. National guidance in PPG 6 (revised 1996) recognises that town centres have a wider role than simply that of retailing. Other important uses found in town centres include a range of employment uses, recreational and entertainment uses, community uses and various local and central government offices. The terminology used is adapted from the LPAC Supplementary Advice on Town Centres (see Note 1 The LPAC Hierarchy).

Although this hierarchy recognises Lewisham and Catford as Major Centres for the Borough, the Council considers Lewisham as the most important Centre in retail terms, with by far the largest retail floorspace provision. This Centre is expected to provide a wide range of shops and other appropriate facilities for an extensive catchment area that extends beyond the Borough boundary. The Council considers that Lewisham has the potential to rise up the London retail hierarchy and become a Metropolitan Centre and will take action to help realise this potential. Although Catford has a large amount of retail floorspace it is not expected to attract shoppers from as wide a catchment area as Lewisham. People will travel to Catford for the civic and entertainment functions from a wider area than those attracted purely for shopping.

The District Centres are the larger town centres and provide a range of convenience goods and some comparison goods but on a smaller scale to those provided in Lewisham Town Centre and for a smaller catchment area. Each of the District and Major Centres has its own individual character, and its future lies in developing these strengths. The Local Shopping Centres and Parades may also sometimes provide a range of comparison and convenience goods but their main function is to provide for the day-to-day shopping requirements of a local catchment area.

RETAIL AND BUSINESS PARKS*

Bell Green is not part of the established hierarchy of shopping town centres as it was not historically a shopping or town centre. However, with the development of part of the site with a Savacentre of 13,935 m2, it now contains a significant amount of retail floor space. There are also proposals to increase the amount of non food bulky goods retailing on this site. For these reasons this area is classified as an out of centre retail park. The development along the Bromley Road of the Ravensbourne Retail Park comprising 5 non food retail units is also classified as an out of centre retail park.

Reasons
The existing Town Centres represent an established shopping area which has received considerable investment. They are also generally well served by public transport. Location of new stores in these centres can provide benefits to other retailers, improve the prosperity of the established centre, and can be reached more easily by all members of the community. They may also help reduce transport emissions of carbon dioxide and air pollutants by reducing the number of vehicle movements.

Any applicant proposing an edge of or out of centre development will be expected to provide evidence to demonstrate that they have thoroughly assessed all potential town centre options, including town centres in adjacent boroughs. In addition a Retail Impact Study will be required. The Council is concerned to avoid the over provision of food stores in particular and would expect a quantitative and qualitative need to be established as well as any qualitative improvements. Alternative Town Centre sites should not be excluded because they are not large enough to provide the applicants with their preferred size of floorspace or car parking. An edge of centre site will be defined in the terms set out in paragraph 3.14 of PPG 6 (1996). In those circumstances where an out of centre development for non food retail is considered acceptable, conditions will be applied restricting sales to bulky goods and to limit any unacceptable change in character which might adversely affect existing Town Centres.

If planning permission is granted then an agreement under S106 of the Town and Country Planning Acts 1990 may be negotiated for relevant improvements. See also Policy IRM 3.

Any store with a dedicated car park will be expected to provide recycling facilities for glass, cans, plastic and newspapers. See also ENV.PRO 6.

The Guidance threshold is set in order to capture all those retail units which would aim to serve more than a very local catchment area. The reason for choosing 1000 m2 is that in practice stores of this size and above can be expected to divert trade from the Major and District Centres.

Reason
Catford provides the home to the only cinema in the Borough and this contains only three screens. The Council is keen to see a multi screen development in Lewisham at the site of the former Odeon and will continue to promote this scheme as its top priority. PPG 6 (revised 1996) stresses that leisure and entertainment uses including cinemas should be located in established town centres. Applications on sites outside the Major and District Centres would not be welcome and will only be considered in exceptional circumstances and where developers provide evidence of having considered alternative sites within Town Centres using the sequential test outlined in PPG 6 (Revised 1996). See also Policy LCE 1 Location of New and Improved Leisure, Community & Education Facilities in Chapter 9.

Reasons
The Major and District Shopping Centres are the largest established concentrations of retail activity in the Borough. Although a wide range of town centre uses are located in them shopping is considered to be their primary function. Hence a change of use to another function, even another service use, must be carefully monitored and controlled. The preservation of the primary retail function within Core Areas is a major planning objective as this is considered the best way to protect the character and role of the Centres.

The Core Area Policy has been designed to provide a more efficient and convenient distribution of shops by concentrating retail activity in parts of the larger shopping centres. To help maintain the overwhelming retail character of the Core Area the Council will aim to maintain a high proportion of A1 uses within the Core Area. A target of 70 % A1 use will be sought for the Core Areas.

The Council recognise that for Town Centres to be viable and vibrant a range of town centre uses is necessary. The Non-Core Areas are therefore locations where popular town centre uses should locate. This includes A2 and A3 uses and a more flexible approach to uses other than A1. Protective or other public service/civic functions are considered community uses and are suitable town centre uses. Their location within a town centre should depend on the size of the facility proposed. The Major, and some of the District Town Centres, spread out over a considerable area. As the retail industry has changed the multiple chain stores have tended to move from smaller centres to larger centres. Sometimes their space is taken by local traders and the health of the centre continues although in a different way. However, sometimes the changes in the retail industry and shoppers preference have meant that units become vacant for long periods. The Council wants to ensure that its planning policies do not encourage the failure of shopping areas and hence a much more flexible approach to change of use outside the core and non core areas will be encouraged. This includes a change of use back to residential in appropriate locations.

Reasons
The primary function of the Local Shopping Centres is to provide an adequate range of local shops to meet the day to day needs of the community. They are of particular benefit to the elderly and those people without the use of a car who cannot easily reach the larger centres. The loss of these shops could cause hardship and inconvenience to Borough residents. However, the Council recognises that non-retail uses can contribute to the variety and choice of facilities in Shopping Centres. They can also help to prevent vacancies and the detrimental effect that this can have on the appearance, function and economic health of the Shopping Centre. The criteria specified will help maintain the retail function while allowing for the natural changes that are part of the retail industry.

Primary healthcare uses are appropriate uses in Local Shopping Centres and a change of use involving healthcare facilities will generally be acceptable.

Reasons
A Local Parade is defined as a group of at least four contiguous shops. The Borough has a large number of Parades, which vary in size and the range of shops available. A corner shop is defined as all those shops which are outside of the Major, District, Local Centre or Local Parades. The main function of a Local Shopping Parade is to provide for the day-to-day needs of local residents, and to supplement the facilities available in other larger Shopping Centres and journeys would often be made without the use of a car.

It is important that Local Parades are maintained to ensure that the less mobile members of the community have access to a range of shops. However, the Council accepts that it may not be possible to retain all the shops in the Borough especially where there is not sufficient customer demand to ensure economic viability. A change of use to residential may be acceptable provided this would not harm the surviving retail uses.

Reasons
Eating out, especially from a fast food establishment, is now considered a normal part of a shopping trip for many people. Town centres are considered the best location for this type of use although the Policy for a Core Area of retail uses needs to be safeguarded. Food and drink establishments are also important for the employment they provide, and for their contribution to the vitality of a centre. Most parts of the Borough are well provided with restaurants, cafés, takeaways, wine bars and public houses. These uses can cause unwelcome noise, traffic, smells and refuse and the Policy is designed to minimise these nuisances. The Council is concerned also to reduce traffic congestion or danger to the public from vehicles. It is considered necessary to impose conditions on opening hours in some cases in order to protect the amenity of residents who live nearby.

Reasons
The Council recognises the importance of mini-cabs/taxis in terms of the creation of employment and their value as a transport service. The Council will seek to minimise any adverse impact on the amenities of the local area through conditions where appropriate. These may include hours of operation and the use of radio control.

Reasons
The Council has adopted town centre regeneration strategies for Lewisham and Forest Hill and will prepare them for other town centre locations on a priority basis. The approach to regeneration is to build partnerships with local people, voluntary groups, religious organisations and businesses and adopt a holistic approach to regeneration which includes issues relating to educational needs, crime prevention, environmental concerns and business support. Not all of these issues come within the remit of the town planning process. Part of the regeneration strategy will involve identifying the strengths and weaknesses of each centre, and developing action plans which develop a particular role and character for each centre. However, where the planning system can facilitate development or redevelopment to further the aims of the regeneration strategies it will act in a positive way. The Council will consider using its CPO powers in those circumstances where this would help the implementation of key sites identified in regeneration strategies.

The Council has been successful in obtaining funding for a number of major regeneration projects. These include SRB money for the Silwood Estate and Lewisham Town Centre and New Deal for Communities in New Cross. There is likely to be some land use changes as a consequence of the implementation of these projects. While the details are not always known in advance they will emerge over the lifetime of this Plan. The Council clearly supports these projects and would not wish its town planning policies to obstruct their successful implementation. See also Policy URB 2.

Reasons
Mixed use development is particularly recommended in town centres as a way of creating vitality and diversity. It is also seen as a sustainable form of development particularly where the uses are likely to generate a large number of trips as the town centres are generally well served by public transport. Many retail, business and leisure uses could coexist without detriment to one another. With regard to residential however, there may be a greater need to protect the potential environment of those people who would live in part of any mixed use development, although flats above shops are encouraged. See Proposals Schedule for list of Mixed Use sites.

Reasons
One of the strengths of the Borough’s Town Centres particularly Catford and Lewisham and one of the factors which help to give them their unique character is the range of leisure and recreational facilities. It is part of the Council’s planning strategy to build on these strengths and as a consequence maintaining and improving these facilities is very important. To this end planning permission for a change of use from a leisure or recreational use will generally be refused. See also Policy LCE 2.

Reasons
The Council commissioned a retail capacity study for the Borough which indicated a possible need for further retail floorspace in this area. In order to implement the Council’s retail strategy of development taking place within existing Town Centres the Downham Depot site has been allocated for food retail development. Given the size of the site and the District Centre, any proposal should be limited to no more than 2,800 m2.

Reasons
The Council is committed to maintaining and improving Lewisham’s position as a major centre for comparison shopping by increasing the range and quality of shopping facilities and helping to attract additional retail floor space and expenditure to the Town Centre. This is important if Lewisham is to maintain or improve its position in the London network of town centres. The vitality of the Centre will be enhanced by the introduction of a wider range of facilities particularly those associated with the “evening economy”. In particular a multi screen cinema is seen as an important additional recreational use for the Town Centre, which will help attract additional visitors to the Centre. See Proposal No 39 for former Odeon site.
Development of the Lewisham Interchange site is intended to substantially increase job opportunities and enhance Lewisham as an important employment and shopping centre. A hotel development will reinforce and strengthen the strategic role of the centre which is also well served by public transport and will contribute to the need to find more tourist beds in London. See also Policy LCE 8.

Reasons
The vitality and viability of the town centres are strongly influenced by the state of the physical environment. The Council will therefore undertake coordinated environmental works that specifically aim to improve the physical environment. This work will be undertaken with its own budgets and in partnership with others who have a contribution to make. In addition to street furniture and streetscape improvements, pedestrian access, security, lighting, signing and maintenance will be considered. These factors will be considered in detail as part of any regeneration strategy and will be subject to public consultation.

The Rivers Quaggy and Ravensbourne form an important part of the street scene in Lewisham Town Centre. The full urban design potential of these assets has not been realised. As part of any major development near to these rivers the Council would expect consideration to be given to environmental improvements which are agreed by the Environment Agency.

Reasons
The South Circular Road (A205) has caused problems for the whole range of road users for many years. Proposals to improve the situation, particularly along the Catford Town Centre to Catford Hill section have been around for some considerable time but have not been implemented. The scheme was the responsibility of the Secretary of State for Transport and has become the responsibility of the Mayor for London. Lewisham supports the early implementation of the Catford scheme and will do all in its powers to encourage the responsible authority to implement these improvements.

The original proposal for the A205 Improvement was to create a two way road, by-passing Rushey Green by realigning Catford Road across the Canadian Avenue car park and widening Plassey Road as well as the section of Sangley Road between Plassey Road and Brownhill Road. However due to the long delays in implementing the approved scheme Lewisham has proposed to the Mayor for London that only part of the scheme (the realignment of Catford Road across the Canadian Avenue car park) be funded immediately.

Reasons
Tourism is a potential source of economic growth and it can also be a means of helping the local community by restoring a sense of pride and identity. A tourism/visitor development strategy will be produced during the year 2000. It will aim to promote the Borough’s strategic location in south London and therefore its importance as an accommodation centre for London. The revival of the Borough’s heritage and social history through interpretation and community events can be a valuable means of involving the community and schools in the regeneration process and giving a new improved image to outsiders. A heritage trail could be developed linked to Greenwich which has an established tourist trade and either sign posted or marked by plaques in the pavement. A written guide could also be developed.

TABLE STC1

International Centres are major concentrations of a wide ranging specialist or comparison shopping sufficiently strongly characterised to bear valid comparison with equivalent centres in other countries and to have a significant international appeal in terms of customer profile.

Metropolitan Centres are presently characterised as outstanding shopping centres in outer parts of London with wide catchment areas covering several boroughs. They typically have more than 1 million square feet of total retail floorspace as defined by Goad and 600,000 feet square of comparison shopping floorspace. They offer a high level and range of comparison shopping including a broad range of multiple retailers and several department stores. They also have a significant range of employment and service functions. They have required major investment to maintain and develop their roles. Because of heavy investment in infrastructure most have developed complementary activities which draw in people outside peak shopping hours.

Major Centres are also important shopping and service centres, but are typically smaller in scale and closer together than those in the metropolitan category. They are characteristic of Inner London. Their attractiveness for retailing is derived from a mix of both comparison and convenience shopping. They usually have at least 500,000 square feet of retail floorspace. Experience suggests that if the amount of comparison shopping falls below a critical mass of 250,000 square feet, the Centre is likely to lose key multiples and become more like a District Centre. Some Major Centres have differentiated themselves from their competitors by developing specialist roles in addition to their general retailing functions. With sizeable local catchment areas, many of these centres have enough established cultural and entertainment facilities to keep them alive in the evening.

District Centres have traditionally provided convenience goods and services for local customers. They typically range in size from 100,000 square feet to 500,000 square feet. Comparison shopping floorspace rarely exceeds 50% of the total. The health checks indicate that their basic attraction has been that they are easy and pleasant for local people to use. The majority of people using District Centres currently visit on foot. However, at present these centres also need to make provision for car borne shoppers and public transport users as well – otherwise they tend to become purely local centres operating on a much more restricted scale.

Neighbourhood or Local Centres have traditionally provided local services for local customers. They are considered to be of cumulative strategic importance as elements of the overall network in maintaining local access and supporting environmental sustainability and equity aims.

Map 8.1