Retailing and Town Centres
Adopted Unitary Development Plan
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Introduction (Part I)
7.1 Town Centres provide an important focus for the provision of a broad range of services and facilities including not just shopping, but recreation, cultural provision, community facilities and transport. As such, several policies and proposals found elsewhere in the UDP will have an impact on town centres. Of particular concern is the need to enhance the appearance and vitality of all of Salford's town centres, to ensure that they retain their broad range of functions and contribute to the process of urban regeneration.
7.2 Access to shops offering competitive prices, a range and choice of commodities, in a safe, convenient and comfortable environment is an important factor in daily life. Retailing is also an important part of the local economy employing a significant number of people.
7.3 Retailing is a dynamic sector of the national economy. Growth in retail spending, rising car ownership, the changing requirements of retailers and corporate strategies have all influenced investment. Other trends include the move out-of-town, the growth of mail order and teleshopping, the retailing of services within established shopping areas and shopping as a leisure activity with its potential for speciality shopping and tourism development.
7.4 In Salford, however, shopping provision has changed little over the past 15 years. Shopping is concentrated in the four main district centres of Salford Precinct (Pendleton), Swinton, Walkden and Eccles, in local centres such as Little Hulton, linear developments along some major roads and a limited number of out-of-town facilities such as Tesco at Irlam. Two major recent retail developments are "The Regent", at Regent Road, where a new Sainsbury's foodstore and a retail warehouse park are now trading, and the recently opened Safeway and Aldi developments at Swinton. Retailing, also plays a part in mixed use developments; at Salford Quays, for example. The Anchorage, Harbour City and the Waterside Centre each include a retail element in predominantly office schemes. Manchester, as the Regional Centre, has a very dominant role in terms of shopping provision, as well as providing cultural, leisure and employment opportunities. Other sub-regional centres such as Bolton also offer choice outside Salford, and Cheetham District Centre, which is mainly situated in Manchester, provides for the shopping needs of people in the Broughton and Kersal area.
7.5 Many of Salford's town centre shopping facilities were constructed in the 1960's and 1970's and together with several local shopping centres, suffer from a poor environment and parking and servicing problems. Attempts are being made to upgrade such centres e.g.. the recent improvements to Salford Precinct and the enhancement of Walkden Town Centre which is currently in progress. However, further improvement works are needed to bring all of Salford's retail centre to today's standards of a safe, inviting shopping environment.
7.6 There is some concern over the retail industry seeking out-of-town locations. While this form of retailing offers car-borne shoppers increased choice and competition it should be balanced against the needs of the less mobile, non-car owning households who still require good, accessible facilities. In a city like Salford, where levels of car ownership are well below the national average, there is a particular need to take appropriate steps to secure the retention of local shops and facilities such as post offices, which provide a mix of both retailing and welfare provision. The plan's approach towards shopping provision attempts to achieve benefits for all the people of Salford.
Strategy (Part I)
7.7 The City Council's approved retail strategy includes a commitment to:
- the development of further large food stores within and adjacent to existing district centres
- the development of further retail warehousing, again at certain existing centres and other specified locations
- refurbishing existing centres (particularly the City's District Centres at Salford Precinct, Eccles, Swinton and Walkden), incorporating new development as appropriate, and
- protecting key local centres which provide for residents' essential day-to-day needs
These commitments will continue to form the basis of the City Council's approach to retailing, and are endorsed in this Plan.
In implementing the Strategy and Plan policies the City Council will have regard to current Government advice.
7.8 The retailing aims of the Plan may therefore be summarised as seeking to:
- provide an appropriate level of retail facilities at locations that satisfy the needs of Salford residents; and
- maintain and enhance existing shopping centres in a comprehensive and co-ordinated fashion, to ensure that Salford residents have access to retailing facilities that are safe, convenient and attractive.
7.9 In accordance with these broad aims, the City Council will give priority to schemes which:
- enhance the Regional Centre and the existing district centres
- improve retail provision within the Investment Priority Area and
- contribute to or form part of wider schemes of redevelopment or refurbishment
7.10 This approach is in accordance with Strategic Planning Guidance, which directs local authorities to enhance the strength, diversity and vitality of existing town centres, and strengthen the role of the Regional Centre. Proposals for further major retail provision should consider effects on urban regeneration, the viability and vitality of existing town centres, and accessibility by public and private transport. The Secretary of State sees UDPs as encouraging proposals for modernisation and refurbishment of town centres. He feels that there is also scope for retailing to make a contribution to urban regeneration through environmental improvement, and by bringing derelict, disused and under-used land within or adjacent to town centres into productive use.
Town Centres
Policy (Part I)
S1 - The City Council will seek to protect, maintain and improve Salford's district centres, in the form of the town centres at Salford Precinct, Swinton, Eccles and Walkden by:
i. preparing detailed strategies or action plans for each town centre, where appropriate
ii. promoting and supporting schemes for the comprehensive refurbishment of precinct developments and other retail floorspace
iii. normally permitting within, or adjacent to existing town centres
a) changes of use or redevelopment to Class A1 (Shops) of the Town and Country Planning (Use Classes) Order 1987 and
b) changes of use or redevelopment to Class A2 (Financial and Professional Services) or A3 (Food and Drink) of the Town and Country Planning (Use Classes) Order 1987, unless this would have an unacceptable effect on the amenity, environment, vitality or viability of a town centre, either individually or by virtue of the cumulative effect of such developments
iv. improving the overall shopping environment, access for pedestrians and the disabled, car parking, facilities for non-car-borne shoppers and service facilities and
v. reducing pedestrian and vehicular conflict
Reasoned Justification (Part II)
The City Council recognises the importance of Salford's town centres in meeting the shopping and associated requirements of Salford residents and those working in the city. There is therefore a clear need to maintain and improve them.
To this end, the City Council encourages retail and other appropriate development which reinforces and, enhances these town centres. In considering planning applications for non-retail uses, the City Council will need to be satisfied that such developments (either, individually or cumulatively) do not seriously detract from the primary retail function, in order to maintain the concentration of shopping floorspace and prevent a decline in the shopping environment through the fragmentation of shopping frontages. Notwithstanding this the City Council acknowledge that non-retail uses have a place in town centres.
The City Council will prepare more detailed strategies for the comprehensive and co-ordinated improvement of its town centres. These strategies will form supplementary planning guidance as defined in paragraph 1.5 of the UDP, which is consistent with PPG12 "Development Plans and Regional Planning Guidance".
Location of New Retail Development
Policy (Part I)
S2 - The City Council will normally require all new retail development to be located in or immediately adjacent to existing shopping centres, unless it is to meet purely local needs. The City Council will also expect such developments to be appropriate in scale and character to the areas which they serve.
The City Council will consider whether any exceptions to this policy might be justified by assessing proposals against the following criteria:
i. the effect on urban regeneration
ii. the benefits for local residents
iii. the economic effects particularly on the vitality and viability of existing town centres both within and outside Salford
iv. the environmental effects on the locality and on any existing shopping centre
v. accessibility by public as well as private transport and its effects on the highway network
vi. the feasibility of using any alternative sites in or immediately adjacent to a shopping centre, including environmental acceptability
vii. the need for, and suitability of, the site for other land uses and
viii. the particular nature of the scheme proposed and any exceptional locational requirements
Reasoned Justification (Part II)
The City Council recognises the important role played by Salford's existing shopping centres and the need to maintain and improve them.
The City Council recognises that retailing is a dynamic and evolving industry and its requirements change over time. The public too can benefit from a widening choice of shopping facilities and increased competition.
The City Council acknowledges that in certain circumstances, out of centre development may be permissible, but that this needs to be well justified in respect of particular factors.
Key Local Centres
Policy (Part I)
S3 - The City Council will seek to retain, consolidate and improve Salford's key local centres. In appropriate circumstances the City Council may assist these centres, with either one or a number of the following measures, especially where they are in association with major improvement activities:
i. shop facelift and refurbishment schemes
ii. environmental improvements
iii. highway and traffic management schemes and
iv. amalgamating/adapting existing shops
Within key local centres the City Council will normally permit development of appropriate scale to the local area involving:
a) changes of use or redevelopment to Class A1 (Shops) of the Town and Country Planning (Use Classes) Order 1987 and
b) changes of use or redevelopment to Class A2 (Financial and Professional Services) or A3 (Food and Drink) of the Town and Country Planning (Use Classes) Order 1987, unless this would have an unacceptable effect on the amenity, environment, vitality or viability of the key local centre either individually or by the cumulative effect of such development.
Reasoned Justification (Part II)
Key local centres as defined in this Plan are a group or groups of shops within close proximity to each other which contain at least four of the following uses:
- grocer/greengrocer
- butcher
- baker
- Post Office
- confectioners/tobacconists/newsagent or
- chemist
Several of these uses may be contained in one shop. Such centres play a very important role in serving the day-to-day needs of local residents.
The protection and enhancement of these key local centres, through positive measures is an important part of the City Council's retail strategy.
The City Council encourages retail and other appropriate development which reinforces and enhances the services provided to the community within such centres. Equally, the City Council will seek to ensure that developments do not seriously detract from the primary shopping function of key local centres.
Currently Salford's key local centres include:
- Eccles New Road
- Higher Broughton
- Langworthy Road
- Leicester Road
- Littleton Road
- Liverpool Street
- Lower Broughton
- Ordsall
- St. Stephens Street
- Cheetham Hill District Centre (that part within Salford)
- Bolton Road North
- Bolton Road South
- Clovelly Road
- Irlams o'th'Height
- Manchester Road/East Drive
- Eccles Old Road; Monton
- Patricroft
- Peel Green
- Westwood Park
- Winton Park
- Stanfield Centr;
- Little Hulton District Centre
- Rydal Crescent
- Walkden Road
- Boothstown
- Higher Irlam
- Lower Irlam
- Cadishead.
Local Shopping
Policy (Part I)
S4 - The City Council will identify and foster other local centres and shops which provide an important local function, particularly in disadvantaged areas, by promoting improvement schemes and new local shopping provision in appropriate circumstances.
Reasoned Justification (Part II)
In addition to key local centres, other local shops can also play an important role, especially in disadvantaged areas. The City Council will also encourage shopping provision in areas of major new housing development through, in appropriate circumstances, conditions attached to planning approvals and/or through development briefs.
Control of Food and Drink Premises
Policy (Part I)
S5 - The City Council will only permit proposals for the sale of food or drink for consumption on the premises or of hot food for consumption off the premises, (Class A3 of the Town and Country Planning (Use Classes) Order 1987) where the following criteria can be satisfied:
i. the use would not have an unacceptably adverse impact on the amenities of surrounding residential occupiers by reason of noise, disturbance, smells, fumes, litter, vehicular traffic movements, parking or pedestrian traffic
ii. the use would not be significantly prejudicial to the safety of pedestrians and road users, with respect to car parking, servicing or the effect on the free flow of traffic (particularly on primary roads)
Reasoned Justification (Part II)
Class A3 uses, including restaurants, cafes, hot food take-aways, snack bars, wine bars and public houses pose a number of potential associated environmental and highway safety problems which need to be carefully controlled. These uses can generate considerable levels of activity, including vehicle and pedestrian traffic. This is likely to be far greater than a retail use would produce, particularly in the case of a take-away. For this reason the likelihood of noise and disturbance, particularly at the weekend and in the later evening hours, will need to be considered carefully.
The City Council has developed this policy from an existing document entitled - `Development Control Policy No 2 - Hot Food Cafes and Snack Bars' - which has been used in the assessment of applications for such uses. The City Council will as necessary update and review this document, which will supplement and be consistent with the criteria of this policy, in order to provide a guide to those submitting planning applications for such uses. This will constitute Supplementary Planning Guidance, the status of which is explained in paragraph 1.5 of the Written Statement.
Maintenance and Improvement of Town Centres
Policy (Part II)
S6 - The City Council will encourage the refurbishment and improvement of the following town centres as defined on the proposals map, in accordance with policies S1 and S2:
Reasoned Justification (Part II)
The Precinct was developed in the early 1970's. It has been subject to a recent comprehensive refurbishment scheme which has considerably enhanced its attractiveness. It would however benefit from improved parking provision.
The recently completed Safeway and Aldi developments at Swinton have helped broaden the range of shopping facilities available within the centre. However, the remainder of the centre, which predominantly comprises a 1960's precinct development, presents a poor image and the City Council is keen to encourage its refurbishment to help retain and improve existing shopping facilities. Planning permission has also been granted on an adjacent site for retail warehousing.
The shopping centre consists of two linked precincts: the Arndale developed in the 1960's, and the St Ouen Centre developed in 1972, together with other retail outlets located along adjacent roads. Planning permission for the refurbishment of the precincts has been granted and work is underway. Additional retail floorspace is also proposed on adjoining land (see proposal S7/3).
Eccles Town Centre includes a substantial modern precinct, built in the 1960's together with numerous older shops, concentrated along Church Street. The centre suffers from a number of environmental problems and in response to these, the City Council has approved an Action Plan to co-ordinate improvements. Measures will include:
- the completion of the bypass and pedestrianisation of Church Street (see Transport Proposals T16/5 and T18)
- the refurbishment of the shopping precinct
- the provision and improvement of car parking (including the introduction of car parking control measures)
- the provision of new market facilities following the construction of the Eccles bypass
- encouragement of the Passenger Transport Authority to refurbish Eccles Bus Station, or provide alternative good quality facilities for bus passengers and
- the preparation of a town centre environmental improvement programme
Sites for New Retail Development
Policy (Part II)
S7 - The following sites are allocated for retail development in accordance with policies S1, S2 and S4:
- Oldfield Road/Ordsall Lane, Salford - provision of retail warehousing (3.5ha)
- Land off Broughton Road, Salford - provision of local shops (0.5ha)
- Land to the north of Walkden Town Centre - provision of retail warehousing (5 ha)
- Land at junction of Newearth Road and Bridgewater Road, Ellenbrook - provision of local shops (0.7ha)
Reasoned Justification (Part II)
1. Oldfield Road/Ordsall Lane, Salford
Redevelopment of this site for retail warehousing will complement the adjacent Sainsbury foodstore and will complete the development of "The Regent" site. The design layout requirements for the site are contained in the planning brief "The Regent Phase II - Retail Warehouse Park - Guidance for Development 1989", and planning permission has now been granted.
2. Land off Broughton Road, Salford
This proposal carries forward allocation A15 of the Kersal and Pendleton Local Plan which sought to retain local shopping provision on the site through either the refurbishment or redevelopment of the existing shops. Since the majority of the properties are in a poor condition, the City Council is currently acquiring them, either through voluntary or compulsory purchase, in order to bring about comprehensive redevelopment of the site for local shopping facilities.
3. Land to the North of Walkden Town Centre
Development of this site for retail warehousing will diversify and strengthen Walkden's role as a district shopping centre. The development has planning permission and site clearance and other preparatory works have been undertaken.
4. Land at junction of Newearth Road and Bridgewater Road, Ellenbrook
The Worsley and Boothstown Local Plan sought to develop this site for the provision of a public house, local shops and a village green. A public house has now been provided on an adjacent site. The need to provide a small number of local shops remains, to serve the surrounding area of housing growth. Within such a development care should be taken to retain existing trees around the site's periphery, particularly at the prominent corner of the site at the junction of Ellenbrook Road and Bridgewater Road. The proposal supersedes proposals B11, B12 and B13 of the Worsley and Boothstown Local Plan.
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This page was last updated on 22 October 2009
