Hastings Development Management Plan Proposed Submission Version

[estimated] Ended on the 15 April 2013

Section Five – The Economy

Shopping Areas

5.1 To protect the viability of shopping and other commercial activities in the town centre and the mix of shops and services on offer, and to balance the aspirations and needs of local communities, the Plan provides policy guidance on what land uses will be permitted in the shopping areas defined in the Policies Map.

5.2 Some of the larger shopping areas provide a range of facilities, including not only shops and banks but also GP surgeries and dentists. These help to reduce the need for people in the neighbourhood to make long distance journeys. These centres are focal points in the local neighbourhood and are also accessible to less mobile members of the community, thus aiding social inclusion.

5.3 Shopping areas also are of great importance to the provision of employment opportunities and services. There is potential to add to the number of people using the shops and services in the centres and, for these reasons, there is a need to protect the land uses in these areas so they remain predominantly in retail and business use.

5.4 The defined shopping areas are listed below: (these follow the shopping hierarchy set out in policy E3 of the Planning Strategy and are in general support of the other policies of chapter 9):

Town Centre -	Hastings Town Centre
District Centre -	St Leonards Centre The Old Town Ore Village Silverhill
Local Centre -	Bohemia
Neighbourhood Centre -	Battle Road Marine Court Mount Pleasant Mount Road West St Leonards

Hastings Planning Strategy - Chapter 9: Local Economy
E1	Existing Employment Land and Premises
E2	Skills and Access to Jobs
E3	Town, District and Local Centres
E4	Tourism and Visitors

Table 6: Hastings Planning Strategy - Chapter 9

Hastings Town Centre Shopping Area

Non-shopping uses within Hastings town centre

5.5 There is a clear desire to ensure that Hastings town centre retains and strengthens its retail offer. A strong retail presence is essential if the Town Centre is to compete effectively with other nearby shopping destinations, including Eastbourne and Royal Tunbridge Wells, and to remain a sub-regional centre within the South East.

5.6 Recent national guidance also suggests that identifying core (or primary) areas of retail and secondary areas of niche shops, cafés and restaurants is important. This can help to maintain the vitality of town centres and the appropriate mix of services on offer within them.

5.7 The retail offer in Hastings town centre is characterised by a mix of larger national multiple retailers and smaller independent and specialist retailers. The primary retail core of the Town Centre, which is identified on the Policies Map, is focused around Priory Meadow. The adjoining pedestrianised streets of Queens Road, Robertson Street, Wellington Place and further to the north along Queens Road as far as the Morrisons food store contain national retailers, large and small shops and other services. There are also important areas of specialist and independent shops on Trinity Street, Claremont and the non-pedestrianised section of Robertson Street extending into White Rock.

5.8 It is recognised that different and complementary uses during the day and in the evening can reinforce each other, making the town centre more attractive to local residents, shoppers, workers and visitors. Helping to maintain and enhance the vibrancy and vitality of Hastings town centre will be the continued encouragement of appropriate residential development above premises in the identified areas. These factors have been taken into consideration when setting the threshold levels for non class A1 uses in the primary and secondary retail areas.

5.9 Retail uses should continue to dominate the primary retail core. Policy SA1 will be applied when assessing applications for the change of use from a class A1 retail unit to another use.

Priory Meadow

5.10 Priory Meadow is a pedestrian shopping centre located in the central part of the primary retail core. This is the prime retail location within the shopping area, catering for mainstream comparison shopping and accommodating the majority of the town's multiple stores. Pedestrian flows are high and vacancy levels are low indicating the retail supremacy of the area. This area is a primary attraction to shoppers visiting Hastings town centre. The retail function should continue to predominate strongly here. There is a planning condition that states that Non-A1 uses should not exceed 1,400 sq.m of the total floorspace of Primary Meadow.

Remaining Shopping Area

5.11 This part of the primary shopping area is characterised by a mixed retail presence including national multiples, independent traders in smaller units and a number of specialist stores. Again pedestrian flows are high here with excellent linkages to the railway station, bus routes and access to multi-storey car parking at Priory Meadow and Priory Street. The seafront car parks also serve this shopping area. Restricting non-A1 to 45% of the total ground level floorspace would allow scope for a range of uses within this primary retail core area without damaging the current function of the area.

(1) Policy SA1 – Hastings Town Centre Shopping

Within Hastings Town Centre Shopping Area, as defined on the Policies Map, at ground floor level, proposals for planning use-class A1, A2, A3, A4 and other uses appropriate to the character of the shopping area will be permitted provided both of the following criteria are satisfied:

The proposal would not result in non-A1 uses exceeding 5% of the total floorspace of Priory Meadow and not more than 45% of the remaining shopping area, as defined on the Policies Map;
The proposal would not result in such a concentration of non class A1 uses as to lead to a significant interruption in the shopping frontage, thus harming the vitality and viability of the town centre shopping area as a whole.

5.12 The following factors will be taken into account in the implementation of policy SA1:

The size of retail units

Within the town centre, retail units and frontages vary in both size and character. For example, a retail unit with a greater frontage generally has a more significant impact on the street scene. It is therefore appropriate to consider the scale of the unit subject to development.

The concentration of non-retail units

In general, a number of non-A1units adjacent to each other in the shopping frontage on one side of the road could constitute a high concentration and therefore a significant interruption. However, this would depend also on the scale and location of the units in question and the types of use proposed. For example, a number of class A3 (Restaurants and cafés) units within the shopping frontage may add character and life to a shopping frontage, where as a class, C3 (Dwelling Houses), use would not add to the attractiveness to shoppers of the shopping area. The Council will therefore consider each case on its individual merits, having regard to the existing situation and the use proposed.

Relationship to other plans

Planning Strategy (2012):

Objectives:

Achieve and sustain a thriving economy

Safeguard and improve the town’s environment

Supporting sustainable communities

Policy:

E3: Town, District and Local Centres

District Centre, Local Centre and Neighbourhood Centre shopping areas

5.13 It is important to assist the smaller centres in the town. They provide convenient district, local and neighbourhood level facilities as well as, in some cases, being valuable for specialist services.

5.14 In order to protect the role of these centres within the shopping hierarchy, in line with Planning Strategy Policy E3, the Council will seek to ensure that the key retail areas indicated on the Proposals Map are retained for predominantly class A1 uses (shops). Planning applications for non-A1 uses may be permitted in these areas, but only provided that they would not either individually, or cumulatively with other recently completed developments and outstanding planning permissions, be likely to undermine the primary retail function of these areas. Appropriate residential development above premises within these areas will be welcomed to help maintain and enhance the vibrancy and vitality of them.

5.15 St Leonards serves a broader function than the other district centres. Though smaller, it is similar in character to Hastings town centre, and includes a broad range of retailers within the centre, comprising a mix of national multiples, independent traders and specialist traders, along with a number of banks, building societies, restaurants and cafés. It is also functions as a speciality centre with the antique shops in Norman Road.

5.16 The Primary retail area of St Leonards includes the whole of Kings Road, the lower part of London Road, and the eastern part of Norman Road. It is important that a vibrant and varied mix of town centre retail uses remain predominant in this area.

5.17 The areas of Silchester Road, the eastern part of Grand Parade, the upper part of London Road (No 45 upwards) and the western part of Norman Road contain varying levels of retail activity, but are interspersed with commercial and residential uses. These areas are therefore considered to be secondary retail areas. Whilst it is still important to ensure that the overall vitality and viability of these areas is not diminished, a greater degree of flexibility will be applied to allowing non-retail uses including banks, building societies (class A2), cafes and restaurants (class A3), pubs and bars (class A4) and small commercial office space (class B1 (a) office).

5.18 The main speciality centre in the Borough is the Old Town with its craft and antique shops and restaurants.

5.19 Silverhill and Ore are the other two district centres. They rely on a good range of local convenience stores and, in particular, the presence of supermarkets. Both centres have a Post Office, high street banks and building societies, and a range of professional services. At Silverhill, the core shopping area has now been extended and reinforced by the opening of a large scale supermarket.

5.20 Bohemia local centre comprises primarily independent retailers but with a limited number of national retailers. There is a range of professional services including estate agents and solicitors.

5.21 Neighbourhood Shopping Centres, as indicated on the Policies Map, cater primarily for the day to day needs of the nearby area or those passing by, but may also cater for more limited specialist needs from a wider area. They are more easily accessible to the local community, in particular the elderly and less mobile. The role of Local and Neighbourhood Centres has been somewhat eroded in recent times with the increased preference for large food stores and increased car use, but the Council intends to do what it can to support the survival of these important community assets.

5.22 The neighbourhood shopping areas at West St Leonards (Bexhill Road), Battle Road, Mount Pleasant, Mount Road and Marine Court include a more limited range of stores, for example newsagents/confectioners, chemist, post office, grocers/mini-market, baker and butcher, serving their immediate neighbourhoods. These centres range in size and character from the small groups of shops at Mount Pleasant to the more specialist shops at Marine Court.

Policy SA2 – Other Shopping Areas

Within district, local and neighbourhood Primary Shopping Areas, as defined on the Policies Map, at ground floor level, proposals for Class A1, A2, A3, A4, A5 and other uses appropriate to the character of the shopping area will be permitted provided both of the following criteria are satisfied:

The proposal would not result in non-A1 uses exceeding the stated proportion for each of these shopping areas, as defined on the Policies Map:

St Leonards centre	Primary area 40%
	Secondary area 60%
The Old Town	45%
Ore village	45%
Silverhill	45%
Bohemia	50%
West St Leonards (Bexhill Road)	40%
Battle Road	50%
Mount Pleasant	40%
Mount Road	40%
Marine Court	40%

The proposal would not result in the excessive concentration of non-A1 uses which would cause a significant interruption in the shopping frontage, reducing its attractiveness and thus harming the vitality and viability of the centre as a whole.

Relationship to other plans:

Planning Strategy (2012):

Objectives:

Achieve and sustain a thriving economy

Safeguard and improve the town’s environment

Supporting sustainable communities

Policy:

E3: Town, District and Local Centres

Shops and Services outside defined shopping areas

5.23 Some local shops and services provide a particularly important focal point for a community. The corner shop or doctor’s surgery that is outside of the main shopping areas, as shown on the Policies Maps, is potentially more accessible, especially for those without private transport, and the Council believes that these should be afforded some protection.

5.24 Policy SC1 of the Planning Strategy details how a sustainable community could be achieved and an important part of this is access to shops and services. This access is for existing services or for goods that are required on a daily basis and can most often be found in local convenience shops.

5.25 Policy SA3 is intended for those shops and services that generally have a small catchment area and whose customers and visitors are less likely to arrive by car.

5.26 It is, however, acknowledged that where it can be demonstrated that the shop or service is not economically viable (this will be determined on a case by case basis), and has been tested through marketing, it may be unreasonable to refuse a change of use.

Policy SA3 – Shops and Services outside the Shopping Areas

Proposals for the change of use or redevelopment that would result in the loss of a local shop or service outside the defined commercial areas will only be permitted when:

There is an alternative within reasonable walking distance; or
It is demonstrated that the existing use is no longer viable.

Relationship to other plans:

Planning Strategy (2012):

Objectives:

Achieve and sustain a thriving economy

Safeguard and improve the town’s environment

Supporting sustainable communities

Policies:

SC1: Overall Strategy for Managing Change in a Sustainable Way
E3: Town, District and Local Centres

Managing certain types of premises

5.27 There may be a need to manage the concentration of shops and services outside defined shopping areas, and also the concentration of single types of outlet to reduce, for example, noise or litter production. Policy DM3 of this plan details what should be considered, in terms of amenity, by proposers of schemes. In the cases of proposals for drinking establishments (A4 in the Planning Use Class Order) and hot food takeaways (use class A5), the Council believes some extra assessment of the likely impacts will be required. The nature of these assessments and additional information are outlined in Policy SA4.

5.28 Certain types of retail activity have a greater effect on their neighbours; this could be because of what they sell or the hours that they open. The particular nature of alcohol and take-away sales means that people use the premises that sell them in a different way to other shops and restaurants.

5.29 Proposals that involve licensed premises and (hot food) take-aways should include careful consideration of the ways that people are going to use the premises. This will include how they will access the premises, whether there is enough parking, and at what times customers are likely to use them. All of these will affect both immediate neighbours and those living in the local vicinity, and should be carefully assessed.

Policy SA4 – Drinking establishments and hot food take-aways

Planning permission for new drinking establishments (Use Class A4 of the Town and Country Planning Use Classes Order 1987 (as amended)) and hot food takeaways (Use Class A5) will be granted provided that:

The precise nature of the use proposed (which should be specified in the planning application), including opening hours, is given;
The proposal would not adversely affect neighbours, for example, causing excess noise or smell;
The proposal would not, on its own, or cumulatively with other such uses in the area, be likely to result in problems of disturbance or public disorder;
Suitable off-street parking is or can be provided where there is insufficient on-street parking; and
It would not cause inconvenience or danger on the public highway as a result of the additional stopping and manoeuvring of vehicles.

Relationship to other plans

Planning Strategy (2012):

Objectives:

Achieve and sustain a thriving economy

Safeguard and improve the town’s environment

Supporting sustainable communities

Policies:

SC1: Overall Strategy for Managing Change in a Sustainable Way
E3: Town, District and Local Centres

Caravan, camping and chalet sites

5.30 Caravan and camping sites contribute in an important way to tourism. The existing caravan and camping pitches in the district are close to vulnerable ecological and natural habitat areas and their expansion requires specific guidance that is not covered by other issues in this Plan, but is supported by Policy E4 of the Planning Strategy. New proposals also require close scrutiny if their location is likely to be on the fringe of the urban area and would encroach into the open countryside.

(2) Policy CC1 – Caravan, camping and chalet sites

Planning permission will be granted for additional caravan and camping sites or the expansion of existing sites provided the proposal:

(1) would not, either on its own or cumulatively in combination with other established or proposed sites in the vicinity, harm the landscape character or rural amenity of the countryside and the resident population, and an assessment of potential the ecological and landscape impact is provided;
is conveniently and well located in relation to an adequate road system which can accommodate the traffic generated;
where possible, has convenient access to footpaths and cycle routes and frequent public transport services;
(1) restricts the use to a seasonal basis (between the 28th February in any one year and the 14th January in the following year); and
(1) allows for a minimum of one third of the total number of pitches on new or extended static caravan sites to be reserved for touring caravans or campers.

(2) Development within Caravan camping and chalet sites

Proposals for the intensification (increase in pitch number within the existing permitted area), the reorganisation of uses/layout (within the existing site) and the enhancement of site facilities/provision of new facilities in connection with existing sites for tents, touring caravans, static caravans and chalets will be permitted provided the proposal:

(1) would not, either on its own or cumulatively with the remainder of the site or in combination with other established or proposed sites in the vicinity, harm the landscape character or rural amenity of the countryside and resident population;
is conveniently and well-located in relation to an adequate road system which can accommodate the traffic generated;
where possible, has convenient access to frequent public transport services;
includes landscape improvements relevant to the development and a scheme for their maintenance;
(1) would not significantly reduce the range and choice of available accommodation as a result of a loss of tent and/or touring caravan pitches.

Relationship to other plans:

Planning Strategy (2012):

Objectives:

Achieve and sustain a thriving economy

Safeguard and improve the town’s environment
Addressing the impacts of climate change
Supporting sustainable communities

Making best use of the Seafront and promoting tourism

Policies:

E4: Tourism and Visitors

Cultural Quarters

5.31 The policy which follows is derived directly from objectives set out in the Hastings Cultural Regeneration Strategy 2010-2015 and also confirmed in the Hastings Planning Strategy.

5.32 It is widely recognised that cultural activities can make a vital contribution to a local economy including the creative sector, increasing employment and skill levels and empowering residents and communities. By supporting cultural activity, we can strengthen our visitor economy and raise aspirations in the town. In addition, the NPPF recognises the importance of the cultural well-being of the community in planning for sustainable development.

5.33 Hastings has a strong and diverse cultural infrastructure including a number of important components - most recently, the Jerwood Gallery and Stade performance space but also: performance venues; museums; art galleries and studios; the cultural dimension offered by Sussex Coast College and the University of Brighton’s Hasting campus; the Creative Media Centre; the potential that could come from the pier restoration project; and most importantly, its artists, performers and other creative businesses and communities and its tradition of festivals.

5.34 Cultural activities include: visual and performing arts, media, architecture and design, heritage and historic environment, libraries and literature, museums and galleries, and related tourism. However, a range of other activities are associated with them and provide necessary support, for example: hospitality, specialist retail, food and drink, workshops, the work of schools and colleges, and community led activities.

5.35 It is natural for many of these to cluster within an area for mutual advantage. Such areas are often characterised by mixed uses, diversity, and small scale activities such as workshops and live-work premises and café culture. They need to embrace flexibility, change and temporary ‘meanwhile uses’ to engender an environment which is creative and vital in nature. They can also benefit if there is an availability of indoor and outdoor exhibition and performance space. Supporting and nurturing such areas is important if they are to thrive.

5.36 In Hastings, four such areas have been identified and planning policy will seek to support their role and a secure future for them. The areas are:

5.37 Old Town and The Stade – The Old Town has long been the focus for a wide range of cultural activity helped by its distinctive non-conformist image – ranging from Old Town Week, to crafts, to performance art. The introduction of the Jerwood Gallery and The Stade performance space linked to the strong heritage of the fishermen’s beach and museum is a new facet for the area. The St Mary in the Castle area is also included.

5.38 White Rock and the America Ground - The cluster of the theatre, the hotel, the pier and the opportunities of the White Rock Baths site and Bottle Alley defines the western end of this area which extends eastwards along the seafront to the America Ground area with the library, the Creative Media Centre and its collection of restaurants and cafés.

(1) 5.39 Academic – The core of this area is Sussex Coast College and the two University of Brighton’s Hastings campus buildings and the cultural activity generated within them. Complementary activities such as shops and cafés are beginning to establish around them and could be encouraged further.

5.40 Central St Leonards and Seafront - A range of cultural activities is spread throughout this centre, including art and craft shops, small galleries and community facilities including the Magnet Centre. St Leonards Gardens and Warrior Square are used for performance and cultural events, and there are small sites suitable for cultural projects. The area has been the subject of a regeneration programme over a number of years and it is becoming a favoured place for artists to locate to.

5.41 To support this policy, where opportunities arise and subject to available resources, the Council will take steps to enhance positive qualities of the built environment and the public realm within the cultural quarters.

(4) Policy CQ1 – Cultural Quarters

The Council recognises the importance of cultural activities within Hastings, to the local economy and the well-being and enjoyment of the community at large and to visitors.

Four Cultural Quarters have been identified where such activities are concentrated, and where their continuance and expansion will be encouraged and supported:

Old Town and The Stade Cultural Quarter
White Rock and the America Ground Cultural Quarter
Academic Cultural Quarter
Central St Leonards Cultural Quarter

The areas displayed on the next pages are indicative of where the identified activities take place and should be seen as a guide and not necessarily a boundary.

Within these areas:

Development will be encouraged which will assist the further expansion of their role as centres for cultural and related leisure and business activities.
Proposals will be viewed in terms of their contribution to the mix and diversity of uses and to their potential to enhance their attraction to visitors.
The Council will also take into account the effect of any development proposals on existing cultural activities and expect them to be protected or for there to be no net loss.
To improve vitality, a positive approach will be taken to assist the occupation of under-used floors above shops and other premises.

(all of the above are subject to other relevant policies elsewhere in the Local Plan, especially DM1 (Design), DM3 (Amenity), DM4 (Access), and those relating to heritage assets.)

It should also be noted that the Council will exercise this planning policy in a way that does not compromise its adopted Licensing Policy. The Licensing Policy is designed to guide the licensing of the sale of alcohol, clubs and regulated entertainment.