• Contents
• Introduction
• Strategic Policies
• Economy, Industry & Commerce
• Housing
• Town Centres, Retailing & Leisure
• General Community Services
• Transport
• Open Environment
• Built & Historic Environment
• Waste, Pollution, Minerals, Water & Energy
• Planning Standards & Controls
• Car Parking Standards
• Cycle Parking Standards
• Proposals Map Schedules
• Glossary of Terms

CHAPTER 4: TOWN CENTRES, RETAILING & LEISURE

INTRODUCTION

BACKGROUND

POLICIES AND PROPOSALS

TRL1 Hierarchy of Major Centres
TRL2 Development in Borough Centres
TRL3 Out-of-Centre Developments
TRL4 Regeneration of Town Centres
TRL5 Primary Shopping Frontages
TRL6 Secondary Shopping Frontages
TRL7 Proposals outside primary and secondary frontages
TRL8 Neighbourhood Centres
TRL9 Local Retail Parades
TRL10 Proposals outside designated centres and retail parades
TRL11 Safeguarding Amenity and Townscape Character
TRL12 Hot Food Takeaways, Restaurants and Night Economy Uses
TRL13 Housing in Designated Centres
TRL14 Retail Facilities in Petrol Filling Stations
TRL15 Facilities for Shoppers
TRL16 Arts, Culture and Entertainment Facilities
TRL17 Indoor Leisure and Recreation
TRL18 Outdoor Markets

Fig 4.1 Network of Centres in Waltham Forest

BACKGROUND

Existing Town Centres

4.6 The West End of London is an internationally renowned shopping centre. Good public transport links between the West End and Waltham Forest, especially via the Victoria and Central Underground lines, have assured its continuing attraction to borough's residents. In addition, centres such as Wood Green, Romford, Ilford, and Lakeside shopping centre support a diverse range and scale of activities and therefore tend to influence shopping patterns in the borough.

4.7 Waltham Forest however has its own established hierarchy of centres, which are well distributed throughout the borough. Walthamstow, at the top of the hierarchy, is designated as a major centre in the London Plan 2004. It offers a wide range of goods and services, plus the added attraction of the longest street market in London, and draws trade from a wide area. There are plans to implement a number of projects in this centre through the New Opportunities for Walthamstow Partnership Single Regeneration Budget Programme.

4.8 The next level in the hierarchy are District Centres. These include Leytonstone, Bakers Arms, South Chingford, North Chingford, and Wood Street. These centres are geographically reasonably well distributed throughout the borough. They all provide a range of food and non-food goods as well as services like banks and building societies. However, there is great variation in the vitality and viability of these centres. There is therefore the need to ensure that those that have prospered continue to do so and improvements are made to other centres. Generally, centres north of the borough (e.g. North/South Chingford) are much more prosperous. In other centres such as Walthamstow, Leytonstone and Leyton, current regeneration programmes are providing benefits and new opportunities.

Local centres and parades

4.9 Neighbourhood centres are the next level in the hierarchy. Leyton and Highams Park are the largest of these centres and may be operating at district centre level. These areas are important for everyday shopping for mainly food and grocery items and often have essential services such as post offices and chemists. Finally there are local retail parades serving nearby residential areas and which are used for convenience or top-up shopping by many people, particularly the less mobile members of the community.

4.10 The role of these centres and parades is also important. Many of these contain specialist food shops and other services - particularly those meeting the needs of the ethnic minority community. These shops serve people living within a walking distance. They often provide flexible opening hours and services such as home delivery - which are particularly important to women and children and those without the use of the car during the day, elderly people and people with disabilities.

Retailing

4.11 The Council estimates that there are about 3000 retail shops within the borough. About 55% of these are located within designated centres. The remaining proportion is made up of parades of shops often along main road corridors and other small clusters of shops within residential areas.

4.12 During the 1990s, there was a rising trend in shop vacancy. In some centres this was well above the national average. This trend has however now decreased as more efficient use of floorspace is being made. The Council has witnessed many changes of use from shops to other non-retail uses, particularly A3, A4 and A5 uses and other mixed uses. Lack of retail demand and insufficient financial returns on retail investment in some parts of the borough appear to be the main reasons leading to vacancies. Also some of the existing stock of retail premises dates back to Victorian times and is unsuitable for modern retailing. Although the Council would wish to see retail facilities retained throughout the borough’s centres, the general market trend is towards the gradual loss of retail premises, particularly those in marginal trading locations. There is a need for a strategy that takes a long-term view of how change would be managed over time.

4.13 Demographic and socio-economic characteristics of the borough, particularly factors regarding unemployment and low spending are conditions affecting retailers’ perceptions of successful trading. These characteristics in particular have appeared to discourage certain types of retailers, particularly department stores and other specialist retail multiples in Walthamstow and other centres. Furthermore, the borough’s shopping centres have seen some decline in the number of good quality shops over the years. Although Selborne Walk shopping centre provides a fair range of middle market mainstream multiples, there is still an inadequate representation of the range of quality retail multiples usually found in competing centres.

4.14 New shop types/activities have emerged over the last 5 years. These include advice centres, telephone call centres, internet cafes and other quasi-retail and sui generis uses. Some non-retail uses are changing their image towards retail concepts and are seeking prime locations within retail frontages. Examples include dental surgeries, betting shops and amusement centres. The continuing process of change often requires different responses in policy terms. There have also been pressures from non-retail uses such as restaurants and take-away food outlets as they seek to replace existing retail uses. Whilst in some locations, this has helped to overcome vacancies and maintain attractiveness, in other locations the continuing decline in the number of shops could seriously limit residents’ accessibility to local shops and may present adverse environmental and amenity conditions.

Superstores and Retail Warehouses

4.15 The last fifteen years have seen a large increase in the number of food superstores and retail warehouses in London. This trend however appears to have decreased following a tightening of national retail planning guidance (PPS 6). These stores cater for an increasing number of people who travel by car and want to buy the bulk of their weekly or perhaps monthly purchases in one visit. The introduction of a wider range of non-food items within food superstores has also been notable.

4.16 Town centres provide greater opportunity for food sales but sites are often difficult to identify and secure. Many non-food items can also be bought directly from large retail warehouses with abundant surface level parking. These stores generally sell bulky goods such as DIY products, furniture, soft furnishings, carpets and electrical goods. More recently there has been a tendency for specialist operators to offer goods which are increasingly comparable to those offered in traditional high street locations. The new superstore and retail warehousing development in Leyton – (Temple Mills, Marshall Road) has improved the range of shopping facilities available to residents in the Leyton and South Leytonstone areas. The Council has generally tried to control out-of-centre retail developments. Waltham Forest currently has two out-of-centre superstores trading, i.e. Morrisons, off Chingford Mount Road and Sainsbury’s at Walthamstow Avenue on the North Circular Road.

Leisure

4.17 This chapter contains policies relating to indoor leisure and recreation activities such as cinemas, bingo, theatres, public halls, libraries, swimming pools, indoor sports centres and other activities of an arts, culture and entertainment nature.

4.18 Nationally, there has been a general increase in both leisure time and expenditure on leisure activities. Greater interest in health, more disposable income and greater mobility has increased participation in a wider range of sporting and recreational activities. The leisure industry has also experienced massive change since the last UDP was adopted and has been continually adapting its formats to meet the changing tastes and demands of the consumer. A major trend has been the emergence of the large purpose-built commercial leisure development - the ‘leisure park’ or ‘leisure box’. These multi-purpose developments are often anchored by a multiplex cinema, which is complemented by a number of other leisure uses such as a nightclub, health and fitness centres, restaurants or theme bars etc. Other growing areas of leisure use include go-karting, golf, and children’s activity centres.

4.19 The borough has a modest selection of commercial leisure facilities, particularly in relation to its potential catchment population. Existing major facilities include Larkswood Leisure Park, the Greyhound Stadium and Gala Bingo on Lea Bridge Road. In addition there are a number of sport centres and private health and fitness clubs, public houses, bars, cafes and restaurants. The choice of major facilities is limited and many local residents travel away from the borough to reach some forms of leisure and entertainment facilities. Within the designated centres there are only a limited range of leisure facilities. Restaurants, cafes and public houses however have been important activities in these centres.

4.20 Generally, the Council wishes to focus appropriate new leisure activities within designated centres. At present these facilities are limited in the borough and the Council considers that there is scope for additional or new provision, particularly in association with new commercial development schemes. The proposed redevelopment of the Arcade in Walthamstow is expected to include a health and fitness club. The Council is also seeking to ensure the provision of a multi-screen cinema in Walthamstow and a range of other leisure facilities in the district centres. In particular the Council will encourage family centred provision.

Future Trends/Needs

4.21 It is difficult to predict trends in retailing and leisure activities for the coming decade. Much will depend on wider economic factors such as interest rates (and their effect on people's disposable income) and technological developments, in particular the impact of e-commerce and e-shopping. Although current trends provide an idea of what changes may be expected in the future, it must be noted that present patterns could also change. Current trends indicate the following;

• Changing shopping patterns. People now undertake a variety of shopping bulk, car-based shopping at out-of-town stores. These activities are taking place at varying times of the day and week, including Sundays. There has also been the tendency towards longer shop opening hours. These changes are attributed to a combination of socio-economic and technological trends, including increased mobility, changes in working patterns and the fact that shopping activity is becoming more linked with other purposes e.g. leisure.
• There has been a growing importance of ‘e-shopping’, however the impact of this on retailing patterns and practices and also on town centre growth is uncertain.

4.22 In accordance with Government guidance, as expressed in PPS 6, the Council has undertaken a retail study (Waltham Forest Retail Study, published May 2002) covering the entire borough area and adjoining areas. This study addresses the need for future retail and leisure provision in the borough. It also provides a foundation for some of the policies outlined in this plan.

4.23 In summary, the study forecasts the need for additional convenience floorspace of up to 5000 sq.m net by 2007 in the North Chingford and Walthamstow areas. The Council will monitor requirements beyond 2007. With regard to comparison floorspace, the Council considers that there is no pressing need for major development in the short term as current development opportunities in Walthamstow and the re-occupation of vacant shops across the Borough could soak up a significant proportion of the scope for additional provision. In the long term however, the Council accepts that an additional requirement of about 8,000 sq.m gross floorspace for comparison provision may be required. The Council intends to update these projections periodically. In the context of anticipated future retail need, the borough, in partnership with the Mayor and other relevant stakeholders, will need to review retailing and town centre policy within the context of Sub Regional Development Frameworks.

4.24 The existence of capacity does not suggest that planning permission would be granted automatically. In determining applications, the Council will ensure that proposals are well sited and there would be no adverse impacts on existing centres or stores. The Council plans to prepare detailed strategies for the main centres. These would identify suitable development opportunities within and at the edges of these centres where projected needs may be met.

POLICY CONTEXT

Objectives

4.25 The policies and proposals of this Chapter will be guided by the following objectives:

• To direct major new retail, leisure and other uses likely to attract many people to the borough’s designated centres in line with government policy advice. (PPS 6)
• To ensure, as far as it is practical to do so, that all residents of the borough have convenient access to shops, services and facilities.
• To maintain and enhance the character, vitality and viability of the borough’s town centres and encourage physical and economic regeneration.

Strategy

4.26 The borough’s designated centres – Walthamstow, the District and Neighbourhood centres have a special role to play in many aspects of life. These areas as defined in Schedule 9, 10 & 13 and shown on the Proposals Map, represent the main concentrations of town centre activities. They may also include areas within which the Council wishes to encourage the development of new town centre uses. The Council intends to concentrate town centre activities within these boundaries to prevent them from expanding into surrounding residential areas. To maintain the vitality and viability of these centres, the Council’s strategy is as follows:

• Consolidation of retail activities within compact retail core areas of the borough’s designated centres and encouraging greater change of use within secondary and tertiary frontages.
• Encouraging diversity/variety of activities (including business, housing, leisure, entertainment, etc) in Walthamstow, District and Neighbourhood centres.
• Managing the decline of retailing, where retail demand no longer exists - through changes of use to appropriate alternative uses such as housing, business, leisure, entertainment uses, and community (such as doctors and dentists) uses.
• Protecting the local function of shops particularly where the effect of changes of use could seriously limit residents’ accessibility to local shops.
• Regeneration of designated centres by encouraging redevelopment of vacant or underused sites for appropriate town centre uses including new retail, arts, leisure, offices, community uses, cultural industries, housing and other suitable uses.
• Steering new major trip-generating developments (shopping, offices and leisure) into Walthamstow and the District Centres.
• Supporting the role of individual centres and encouraging some degree of differentiation/specialisation in activities through town centre strategies and actions plans.
• Improving the environment of designated centres by seeking urban design objectives in refurbishment and redevelopment schemes.
• Adoption of suitable traffic management and parking measures likely to encourage the vitality and viability of centres.
• Promotion and management of the borough’s town centres in partnerships with stakeholders and town centre interest groups.

POLICIES AND PROPOSALS

Hierarchy of Centres

4.27 The network of centres in Waltham Forest is illustrated in Fig 4.1. These centres have evolved over a considerable period of time and will continue to be the main focus for the provision of shopping and other town centre activities and facilities. However the plan also recognises that a centre’s role and place in the hierarchy and the actions required to address particular problems may change overtime. Accordingly, the Council will carry out periodic reviews of the health of all centres and parades and make changes to the hierarchy and network of centres as may be necessary. Where issues of sub-regional importance arise, such change will be made in consultation with strategic partners through Sub-Regional Development Frameworks.

4.28 At the top of the shopping hierarchy is Walthamstow, which is designated as a major centre. Walthamstow town centre is the borough’s largest shopping centre and represents the main concentration of a range of comparison retailing, leisure and services the borough.

4.29 Second in the hierarchy are five other centres, including North and South Chingford, Leytonstone, Bakers Arms, and Wood Street. These have been designated as District centres. They are much smaller centres than Walthamstow in terms of the number and range of activities they provide but they are also an important focus for public transport i.e. most have a bus/train station.

4.30 Next in the hierarchy are the nine neighbourhood centres listed above. Although listed as neighbourhood centres, Highams Park and Leyton may be operating at District centre level. The need to co-ordinate changes to the London town centre network strategically means that a change cannot be made until the review of the London Plan 2004. Neighbourhood centres provide services for local communities and represent a much smaller grouping of shops than the district centres. The cluster of shops and other commercial/ leisure activities serve as a focus for the community within the immediate walking distance. There are also eighteen designated local shopping parades representing the lowest level in the hierarchy. Typically, they comprise a small grouping of shops within one or two parades comprising the newsagent, a general grocery store, a post office and occasionally a pharmacy, hairdresser or other small shops of local nature. These areas are defined in Schedules 15 and shown on the Proposals Map.

4.31 The need to maintain and enhance the borough’s designated centres is in accordance with national and regional policy guidance on retailing (PPS 6). Although these centres are of different sizes, they perform specific functions and together provide a range of services and facilities, which meet the needs of shoppers, residents and visitors. The UDP recognises their emerging role and in line with Government policy, the Council aims to maintain an efficient and innovative retail sector in these centres whilst sustaining and enhancing their vitality and viability. The Council also seeks to ensure the availability of a wide range of shops, services and facilities to which people have easy access by public transport.

Development in Borough Centres

4.32 New retail, office and leisure investment is vital to the regeneration of the borough’s centres if they are to continue their role as focal points for the communities they serve. Accordingly, the Council seeks to direct new retail, office and leisure proposals into these centres. If shops, offices and leisure facilities can be conveniently located together, the need to make other additional journeys elsewhere will be reduced and the vitality and viability of these centres will be improved.

4.33 The Council is committed to maintaining a viable network of centres. This policy seeks to ensure that each centre has an adequate range and level of services and facilities to sustain its own vitality and viability without undermining other centres in the hierarchy. Some degree of differentiation/specialisation in activities will be required to ensure that centres complement each other. This plan does not seek to prescribe a preferred size or scale of development for each centre in the hierarchy. Very often this will depend on site-specific development opportunities and constraints.

4.34 The Council plans to prepare a strategy for each centre to be adopted as supplementary planning guidance. This will provide detailed guidance on the scale, type and range of activities to be encouraged in each centre. In general, the scale of proposals should be such that they serve the same catchment area as the centre. As a guide, Walthamstow will be the focus for large-scale retail and leisure developments, where the development has a wide catchment area and seeks to serve the borough as a whole.

4.35 In considering the appropriateness of the development (in terms of scale), the Council will have regard to the following matters; a) the role and function of the centre within the wider hierarchy and the catchment served, b) the pattern of existing development within the centre and c) the scale of existing buildings. Where necessary, developers will be encouraged to explore the possibility of enabling the development to fit into the centre by reducing the footprint of their proposals. In addition, the proposed development should also accord with other policies of the plan, including BHE1, BHE3-5 and other planning standards and controls.

Out-of-Centre Developments

4.36 Walthamstow Town Centre is the Major centre for the borough and its regeneration is a strategic priority of the Council. Wherever feasible all new major retail, leisure and commercial development servicing a borough wide function should be located in that centre. Maintaining and strengthening the other designated centres in the borough is also important and new retailing and leisure developments will also be welcome in those centres at a scale appropriate to their role and function. It is unlikely that large scale retail, leisure and commercial development will be appropriate outside the Major and District centres. This plan makes provision for additional convenience floorspace of up to 5000 sq.m net in the North Chingford and Walthamstow areas. In meeting this need, the plan identifies the former C&A site in Highams Park (MURA1 as shown on the Proposals Map).

4.37 The Council is concerned about the impact that out-of-centre retailing can have on the vitality of existing shopping centres by decreasing the range and variety of goods available within them. By directing major developments to designated centres, shopping facilities and other services can be conveniently located together to provide a sense of place and focus for the local community. Complementary uses during the day and evening would reinforce each other to make the designated centres more attractive and viable. For example, leisure needs could also be met as part of a shopping trip, thus reducing the need to make additional journeys.

4.38 In accordance with government and regional policy advice, the Council generally considers that out-of-centre developments will only be acceptable in exceptional circumstances. For example where existing centres are incapable of providing good retailing opportunities, where the scale, type and location of such developments would not undermine the vitality and viability of existing centres, and where the proposed location is well served by public transport. In implementing this policy, the Council will be guided by government policy in PPS6 which requires that applicants should demonstrate flexibility in their proposed business model regarding scale, format, car parking provision and the degree to which constituent units within the proposal could be accommodated on more centrally-located sites.

4.39 Outside town centres, the Council will expect applicants to submit a detailed report demonstrating the need for the development. In addition to considerations regarding 'capacity' and 'demand', the Council will also consider the wider 'needs' of the community as may be identified through community strategies or local needs surveys. As a guide to development control decisions, the Council has carried out a retail capacity study as referred to in paragraphs 4.22-4.24.

4.40 Applicants for planning permission will be expected to support their applications with impact studies to justify their proposals. In carrying out impact assessments, the Council will require a survey based approach, such as outlined in the DETR report (1998) on the Impact of Large Foodstores on Market Towns and District Centres.

4.41 The Council will expect the location of all new retail, leisure and other major generators of travel to satisfy the sequential test set out in the above policy. Government policy guidance – as in both PPS6 and PPG13 seeks to focus travel intensive uses such as offices, retail, commercial, leisure etc in locations well served by public transport, such as town centres. A study commissioned by London Planning Advisory Committee (Sustainable Access to Town Centres, March 2000) indicates that there is spare capacity on public transport grounds to absorb some expansion of this town centre. As a major centre, Walthamstow should be the main focus for large-scale proposals likely to serve a wide catchment area or the borough as a whole. The District Centres are also appropriate locations if there are no suitable sites in Walthamstow. Where permission is granted, the Council may also require the developer to carry out a post retail impact study one year after full scheme implementation.

4.42 With specific reference to large durable goods stores (retail warehouses) intended to sell bulky goods, where there are no suitable sites in or adjoining a designated centre, then, exceptionally an out-of-centre location will be considered. Any planning permission granted for such developments may be restricted by condition to bulky goods only.

4.43 The accessibility of the proposal by a variety of modes of transport including public transport, cycling and walking will be an important consideration. Furthermore, proposals will be considered in relation to other policies in this Plan relating to the existing use of the land e.g. Open Environment policies (Chapter 7), Employment and Industry policies (Chapters 2), Built and Historic Environment (Chapter 8), General Community Services policies, (Chapter 5) or Transport policies (Chapter 6).

Regeneration of Designated Centres

4.44 The Council has noted in recent years the apparent decline of some of the borough’s designated centres. The lack of investment in new activities, facilities and services often leads to a run down appearance. Generally, centres north of the borough (e.g. North/South Chingford) are much more prosperous. In centres such as Walthamstow, Leytonstone and Leyton, current regeneration programmes are providing benefits and new opportunities. This policy seeks to facilitate the success of current and future regeneration programmes.

4.45 Achieving recommended proposals/projects often involves many different organisations. As sources of public finance from the Council, Central Government and Europe, are limited, the only way to achieve planned improvements is through building successful partnerships to encourage investment. Successful partnerships will be important in giving confidence to investors, property owners, shopkeepers and shoppers.

4.46 In partnership with interested groups and stakeholders, the Council will prepare Town Centre Strategies or Action Plans for each centre. These plans will generally provide the strategic framework and programme of action for each centre. With the support of the private sector, interest groups and stakeholders, the Council will implement these actions as and when resources permit. In addition, the Council will seek further opportunities through planning agreements and other bidding and funding programmes such as the Single Regeneration Budget and the European Regional Development Fund Objective 2.

4.47 In some instances it is likely to be difficult for the private sector to assemble sufficiently large sites within designated centres because of the multiplicity of ownership. The Council can help this process by identifying areas where opportunities for site assembly may exist and by the use of Compulsory Purchase Powers where necessary. In the past, this approach has been used by the Council and may be the appropriate way to secure improvements in all designated centres.

4.48 In meeting needs, the Council will negotiate and enter into planning agreements with developers to provide facilities, services and infrastructure as may be required.

Primary Shopping Frontages

4.49 This policy aims to ensure that Walthamstow and the District Centres continue to fulfil their primary role of providing convenient and accessible shopping facilities within reasonably compact areas. The policy also applies to Leyton and Highams Park – the larger neighbourhood centres. To achieve this, the primary frontages will generally be restricted to retailing. In these frontages the Council will only accept Class A1 uses as defined in the Town and Country Planning (Use Classes) Order 2005. However other non-retail uses meeting the criteria set out above may also be permitted. All proposals will be expected to accord with other policies of this plan, in particular Policy TRL11. For the purposes of this policy, Schedule 11 identifies the relevant frontages in the borough’s designated centres. Paragraph 4.53 sets out the key policy considerations the Council will take into account in determining the acceptability of new quasi retail or other uses of a sui generis type not falling within Class A1 of the Use Classes Order.

4.50 The Council considers that the success of any particular centre is dependent, at least in part, upon retaining a reasonably close grouping of shops selling a wide range of goods. Shopping particularly for items such as clothes, shoes, footwear and jewellery etc is in essence a process of search and comparison before final selection. Therefore, grouping shops conveniently together attracts shoppers and if the shopping frontage is broken or diluted by uses not directly related to a shopping trip, this leads to a loss of attractiveness.

4.51 Most non-retail uses or service businesses rather tend to gain from the availability of footfall generated by other uses, particularly retail. The Council accepts that these services may meet a real need of town centre visitors and therefore ought to be available as part of any flourishing shopping centre. However if too many of such uses were allowed to locate in primary shopping frontages, the essential retailing function of a shopping centre becomes diluted with far reaching implications on vitality and viability. In support of this policy, government advice as set out in Annex A, Table 2 of PPS6 distinguishes between primary and secondary frontages. Primary frontages contain a high proportion of retail uses whilst secondary frontages provide greater opportunities for a diversity of uses.

4.52 Some non-retail uses, such as banks, building societies and cafes, provide services which are directly related to a shopping trip in that people most frequently visit them as part of their shopping trip. Therefore they generate high levels of pedestrian activity and need not cause blank spaces in the shopping frontage if shop style windows and displays are maintained. Therefore this policy makes some provision for such uses. However, other uses including some professional and financial services such as estate agents provide a more specialised service and do not generate levels of pedestrian activity similar to most retail uses. Therefore, whilst such uses may be appropriate in the centre as a whole (see policy TRL6), they will not be permitted in the primary frontages. Overall, the number of non-retail outlets in a centre should be such that they do not have a weakening effect on the nature, character and vitality of the centre.

4.53 In assessing new uses, particularly those of a quasi-retail or sui generis nature wishing to locate within the primary frontage, the Council will consider all of the following factors;

• The extent to which the proposed use may be associated or combined with a shopping trip. The proposed use must be related to a shopping trip and capable of attracting a significant number of shoppers/visitors to the centre;
• The extent to which the proposed use meets an important local need. Such need may be identified through local need surveys and national/local initiatives e.g. one stop shops;
• The contribution the proposed use will make to the vitality and viability of the proposed frontage and the centre generally; and
• The availability of suitable alternative vacant premises outside the primary frontage. The Council will not grant planning permission for non-retail uses within a primary frontage if there are suitable premises in nearby secondary frontages.

Secondary Shopping Frontages

4.54 In general the Council will encourage greater flexibility of use in secondary frontages. In these areas, diversification has most to contribute to the overall vitality and viability of the centre. Accordingly, the Council will seek to promote a mix of uses within secondary frontages. This policy also applies to Leyton and Highams Park – the larger neighbourhood centres. Schedule 12 defines the secondary frontages to which policy TRL6 applies. Appropriate uses include those listed above. The Council will need to be satisfied that the proposed use provides a substantial element of its services to visiting members of the public and is likely to contribute to the attractiveness of the centre.

4.55 The Council accepts that non-retail uses, which provide services to visiting members of the public, make a contribution to the vitality of shopping centres. However, the secondary shopping frontages of Walthamstow and the District Centres are also important locations for some types of retailing activity. This may include new businesses that cannot initially afford prime locations, or retailers specialising in a particular product or serving a local ethnic minority community.

4.56 The importance of retaining retail uses for such traders varies between the centres in the borough. As part of strategies to be prepared for each centre, the Council will assess the level of retail provision within each centre. This may help to clarify issues regarding the appropriate level of retail provision required to sustain vitality and viability. In addition, the Council will carry out periodic health checks on each centre and will also monitor the balance between retail and non-retail uses. Where in the opinion of the Council the continued loss of retail uses would affect the character and function of the shopping centre, it would not grant planning permission for further non-retail uses within the relevant secondary frontage. In exceptional cases - where there is a high level of vacancy within the frontage or area generally, changes of use leading to a significantly high proportion of non-retail uses may be permitted.

4.57 Furthermore, proposals will be expected to conform to other environmental policies and development standards and respect the scale, character and environmental sensitivity of the particular local area (e.g. policies TRL11, BHE1 and BHE 3-5).

Proposals outside designated primary and secondary frontages

4.58 The Council considers that peripheral areas less attractive to retailers could accommodate a range of mixed uses. A mixture of small businesses, housing, offices and restaurants, community and leisure uses can stimulate shopping and contribute to the overall vitality and viability of the borough’s centres. In these areas in particular, the Council believes that there may be opportunities for achieving employment gains to compensate for the decline in employment levels in the borough generally. Accordingly in locations where retailing is no longer viable, the Council will also encourage proposals to convert buildings/premises for use as small business offices, start-up units and cultural industries. Proposals will be expected to conform to other environmental policies and development standards and respect the scale, character and environmental sensitivity of the particular local area (e.g. policies TRL9, BHE1 and BHE 3-5).

Neighbourhood Centres

4.59 Neighbourhood Centres provide local shopping and other community services for people who may live or work in the surrounding local area. These centres provide a much smaller range and choice of essential shop uses (e.g. sub post office, chemist, newsagent, greengrocer, baker) than District Centres and their vitality also depends on other complimentary facilities and services e.g. pubs, entertainment /leisure and community uses. In principle they could be appropriate locations for new activities and uses serving people who would otherwise make longer trips to a town centre or to free standing retail stores. Black and ethnic minority businesses are also often found in Neighbourhood Centres because of historic and economic factors. These businesses are an important source for providing goods and services to the black and ethnic minority community and also to the wider community. Neighbourhood centres can also be of great importance to people with mobility difficulties and those without cars.

4.60 Over the last 10 years, the Council has witnessed a rise in the number of planning applications involving the change of use of shops to other uses. The Council considers that the continued loss of shops could seriously limit resident’s accessibility to local shops, particularly those living within the walking distance catchment area. To ensure that they retain a strong retail core with the minimum number of shops, the policies governing changes of use are more restrictive.

4.61 Within each neighbourhood centre, the Council has defined a retail core area to which this policy would apply (Neighbourhood Retail Parades - Schedule 14). These are locations within which retail activity would be strongly encouraged. Such parades represent frontages where retail activity is more dominant. They often have a key footfall-generating feature or retail ‘anchor’ and contain the minimum number or range of shops, which the Council considers necessary to enable the centre to perform its local shopping role. The need to protect these parades is important particularly to meet emergency/day to day shopping needs. Accordingly, the Council will generally resist proposals resulting in the loss of shops within the designated local parades.

4.62 In exceptional cases (e.g. where a retail property within the protected frontage becomes vacant despite evidence of attempts to let, lease or sell it for retail use on reasonable terms), the Council will consider an appropriate replacement use that is directly related to a shopping trip. Appropriate uses may include those in Class A2, A3, A4 & A5 or those meeting an important local need e.g. doctors and dentists surgeries. In any case the Council will need to be satisfied that the proposed use provides a substantial element of its services to visiting members of the public and is likely to contribute to the attractiveness of the parade.

4.63 The Council also considers that outside the designated shopping parades, diversity has a lot to contribute to the overall vitality of neighbourhood centres. The Council therefore wishes to attract a range of community facilities including doctors’ surgeries, crèches, day nurseries, local library facilities, halls for social and religious purposes. These uses should also accord with other policies of the plan, including BHE1, BHE3-5 and other planning standards and controls.

Local Retail Parades

4.64 Local parades often contain essential local shop uses such as a post office, chemist, greengrocer, baker, newsagent and other supporting retail services for people living or working within the local area. They have been designated because the Council considers that the loss of such facilities would significantly limit residents’ accessibility to local shops. These parades can provide a similar service, albeit more limited, to that of Neighbourhood Centres and they are of great importance to many elderly and disabled people. Schedule 15 identifies the parades to which this policy will apply.

4.65 The Council wishes to protect designated retail parades in order to provide accessible shopping facilities for all local residents. To minimise the need to travel, ideally all residential properties should be within a reasonable walking distance of a full range of essential shops. The Council accepts that this may not be possible as in some situations the viability of retail uses depends on many other economic factors. However where there is sufficient population to support these, the Council will ensure that retail units, particularly those that are reasonably sized with adequate facilities are retained to attract a good range of essential shops. Essential shops include the sub post office, chemist, greengrocer, baker, newsagent, etc. The Council will also consider the need for particular shop types as may be identified through local need surveys or other public consultation exercises. As a minimum level of provision, the Council will seek to retain 4 standard sized shop units in retail use.

4.66 A period of six months with supporting evidence of attempts to let, lease, or sell the property will be a material consideration. Whether the parade contains sufficient essential shop uses will depend on its size and function within the shopping hierarchy and the extent to which alternative retail provision exist within a convenient walking distance of the parade to serve the surrounding residential area.

4.67 In assessing the extent to which the surrounding area is deficient in essential local shops, the Council will have regard to the number and range of uses within the nearby local area. The Council considers that residents’ accessibility to local parades would be seriously compromised if they have to do more than a 10 minute walk, approximately 800m to the nearest facility. 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. In such situations the Council will generally consider proposals for other uses so long as the policy requirements have been met and there is no conflict with other policies of this plan.

4.68 The proposed replacement use must also be appropriate to a shopping area. The Council would generally welcome uses such as those within Class A2, A3, A4, A5 and doctors/dental surgeries. Other appropriate uses must create activity and interest to passing pedestrians.

Proposals outside designated centres and local parades

4.69 This policy relates to shop units located outside the boundaries of Walthamstow town centre, the District and Neighbourhood Centres and designated Local Retail Parades. It makes provision for changes of use to occur outside the designated areas and in locations where retail activity has declined. These retail properties do not meet the criteria for designation as neighbourhood centres or designated local parades by reason of their location, size, the types of uses they provide and other characteristics.

4.70 The Council recognises the fact that these may be of local importance to many residents including elderly and disabled people. Although the Council would like to protect all shops, the long-term trend is towards a gradual loss of shops, particularly those in poor trading locations and unattractive for modern retailing needs. The Council also recognises that it cannot prevent the loss of a local shop if it is no longer commercially viable. In such situations, it is more preferable to allow an alternative use in order to avoid the property remaining vacant. In considering planning applications for such changes of use, the Council will have regard to other policies of this plan in particular policy TRL11 stated below.

Safeguarding Amenity and Townscape Character

4.71 The Council generally wishes to ensure that proposals involving changes of use within designated centres and shopping parades contribute positively to vitality and viability and enhances the environment. In determining planning applications, the Council will consider the nature of the proposed use and the implications on neighbouring amenity as stated in Policy BHE3. In addition, the impact of the proposed use on the character and function of the parade or frontage in which it is located will be important – how well (in design and appearance) the proposed use can be integrated within the existing street block or frontage. In some situations responsive design solutions will be necessary to ensure satisfactory integration. In implementing this policy the Council’s approach will be as follows:

4.72 Along commercial frontages, the Council would generally encourage active uses (those that create activity and interest and are directly related to passing pedestrians). Ground floor housing conversions within commercial frontages will generally not be permitted unless they are as part of a comprehensive scheme involving the entire parade or street block.

4.73 Where appropriate, a shop style window display must be retained. This is important to protect the townscape of commercial shopping areas. Window displays help to maintain the attractiveness and continuity of the shopping frontage and can provide information for users and visitors. In considering planning applications, the Council will have regard to its supplementary planning guidance on Shopfront Design.

Hot Food Take-Aways, Restaurant and Night Time Economy Uses

4.74 The Use Classes Order April 2005, describes A3 uses as restaurants/cafes (where food and drink are consumed on the premises). Public houses, wine bars and other drinking establishments fall within the Class A4. Hot food Take-Aways falls within Class A5. These uses are becoming increasingly popular to local residents and visitors. They contribute to the vitality and viability of shopping areas and can maintain the liveliness and attractiveness of the borough’s centres and local parades beyond normal opening hours.

4.75 They are however also commonly associated with environmental and amenity problems such as litter, waste disposal, fumes, late night noise and traffic. In some locations, the over-concentration of these uses has resulted in cumulative implications on amenity, congestion, parking and other disturbance. Proposals will need to be designed and sited with reference to the above factors. The Council will refuse planning permission where over-concentration results in cumulative implications on amenity, congestion, parking, disturbance and other adverse conditions.

4.76 To ensure compliance with planning standards, the Council may impose conditions covering restrictions on uses, opening hours, sound proofing, ducting, disposal of refuse, car parking and other matters necessary to make the development acceptable.

Housing in Designated Centres

4.77 This policy supplements the general policies on housing as set out in Chapter 3 (Housing). These centres are often the most sustainable locations and residential development can complement new and existing retail and commercial uses. The borough has a substantial resource of vacant and underused capacity including the upper floors of shops and other commercial buildings. Their refurbishment can make a significant contribution to the number of new dwellings needed in the borough and to the regeneration of town centres.

4.78 New housing will also be welcome as a constituent of new retail and commercial development in these centres. A careful manipulation of density, car parking and amenity space can often result in successful schemes. Guidance on planning standards is provided in Chapter 10 and Appendix 1. Well designed high density schemes will in principle be welcome. The standard of the internal environment and provision of amenity space will be important considerations. It is recognised that such schemes may be most suited to households without young children and will mainly comprise one or two bed units.

Retail Facilities in Petrol Filling Stations

4.79 Recent changes in filling station operations have seen retail functions expand from ancillary to general retailing, often including a small supermarket. This policy supports forecourt retailing proposals where they contribute to the vitality and viability of designated centres. Proposals in out-of-centre locations likely to threaten the vitality and viability of nearby centres and parades will be resisted.

4.80 The Council is concerned about the negative impact upon the local retail environment, particularly where such operations are located in out-of-centre locations. The Council considers that such development on a site that is not abutting or wholly within existing centres or parades could undermine vitality and viability by functioning as a rival destination and overwhelming existing convenience stores. When this occurs, other local shops and services that rely on customers attracted to existing convenience shops then become vulnerable.

4.81 In determining applications, the Council will also refer to its environmental policies as set out in Chapter 8 - Built Environment.

Facilities for Shoppers

4.82 It is in the interests of both customers and operators that good public facilities are provided within new town centre developments. Making facilities more convenient and user friendly will attract more customers. As well as the specific requirements of this policy, developers' attention is drawn to policies in the Built Environment Chapter which sets out the Council's requirements for all new developments including, safety and security, design and landscaping etc. and "Access for All" Guidelines. This policy will be applied to all new developments including extensions resulting in a gross floorspace of over 2,300 sq.m.

4.83 The Council's policy on planning advantage is set out in Part I of this Plan. Bearing in mind the possible disbenefits of new developments in terms of additional stresses on local environment and infrastructure, the Council may seek to enter into planning agreements to provide compensatory facilities at the developer's expense. Matters relating to this agreement may include Green Travel proposals also required under Policy TSP9. Policy WPM5 provides specific guidance on recycling.

Art, Culture and Entertainment Facilities

4.84 This policy refers to uses such as cinema, bingo, theatres, visual arts, pubs, health clubs/fitness centres, amusement centres and nightclubs that are considered appropriate in town centres and other shopping areas. The borough has a modest selection of commercial leisure facilities, particularly in relation to its potential catchment population. The choice of major facilities is relatively limited and often borough residents have to travel away from the borough to reach some forms of leisure and entertainment facilities. Policy ENV1 in the Open Environment Chapter also refers to other arts, culture and entertainment activities that may be appropriate elsewhere on urban open spaces.

4.85 Arts, Culture and Entertainment (ACE) activity can make an effective contribution to wider planning goals, by enhancing the vitality and viability of the designated centres, providing local employment opportunities, encouraging tourism and community engagement, and assisting local urban regeneration. Culture and the arts can contribute to the life of local communities and can provide an outlet for multi-cultural expression and understanding.

4.86 ACE facilities, especially those likely to draw large audiences are appropriate town centre uses because they complement town centre activities and can extend the use of the centre from day to evening. They can also enhance the sense of place and identity of a centre. These facilities are generally limited within town centres, yet they can be important for shoppers and workers. The Council believes that there is scope for additional provision of such facilities particularly in the designated centres as they could be associated with other uses as mixed-use developments.

4.87 Walthamstow is the borough’s major centre. It is highly accessible by public transport and considered to be the most appropriate location for large sized ACE proposals likely to attract significant numbers of people. The location of large-scale ACE facilities in this centre will have a greater role to play in assisting economic regeneration and in increasing and diversifying evening activity within this centre. Alternative locations will be considered on the basis of the sequential approach set out under Policy TRL3. Subject to meeting other planning standards, proposals for small sized ACE activities will be encouraged in other centres. In considering proposals for entertainment uses, the Council will also refer to its other policies, in particular Policy TRL12 regarding the impact of such uses and how they may be managed.

Indoor Leisure and Recreation

4.88 Indoor leisure and recreation activities include libraries, public halls, swimming pools and indoor sports centres. Many of these activities are currently being undertaken outside the borough’s designated centres. Much of this is also carried out in inadequate premises and on sites not well served by public transport.

4.89 The need to redress social exclusion means the provision of adequate facilities in appropriate locations to meet local needs. Whilst there is a shortage of proper facilities, opportunities to provide some types of facilities are limited because in most cases these activities cannot compete successfully with other uses and need sources of funding e.g. SRB or Lottery. In this context, the loss of indoor leisure facilities without replacement anywhere in the borough will generally be resisted.

4.90 In partnership with property owners and other organisations, the Council will also seek to upgrade and enhance leisure and entertainment facilities. Policy ENV13 provides support to organisations such as the Lea Valley Regional Park Authority (LVRPA) in improving the range and quality of leisure provision in the borough. Where a proposal is made which would lead to the loss of a facility, the Council will expect the developer to make satisfactory proposals for its replacement at an alternative site. Such sites include areas close to or within designated centres and other areas with high public transport accessibility. Suitable sites for the re-provision of leisure facilities should be in accordance with the sequential test approach as set out under Part B of Policy TRL3. Car dependent leisure and entertainment facilities outside town centres will be discouraged.

4.91 In assessing the retention and upgrading of existing entertainment facilities, and the provision of new ones, consideration will be given to the environmental impact on the immediate neighbourhood. Uses must meet local needs and must be of a type and scale compatible with the neighbourhood. Uses likely to generate unacceptable noise levels or other adverse environmental effects for local residents would be contrary to Policy BHE3 of the Built Environment Chapter and would therefore be refused planning permission.

Outdoor Markets

4.92 This policy seeks to support the role of markets within the designated centres rather than at out-of-centre locations. The Council also wishes to ensure that suitable arrangements for servicing, parking, cleaning, refuse collection and management can be provided to support their efficient operation. The market in Walthamstow plays a central role in the life of the community and is essential to the prosperity of the borough’s largest centre. There are currently proposals to improve this market in order to enhance its role. Whilst seeking to encourage the development of markets in other centres, the Council also wishes to ensure that such developments do not adversely affect the viability and vitality of the existing market in Walthamstow town centre.

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