South Ayrshire Local Plan

Town Centres and Retailing

Retailing is an important sector of South Ayrshire’s economy, providing for local needs and offering links to the tourism and leisure industries. It is therefore of paramount importance that the retail sector remains attractive to both investors in, and users of, the services available, and in the most appropriate locations in order to maintain and enhance the vitality and viability of this sector and the existing town centres.

Town Centres

There are five main town centres within the Plan area. These are within Ayr, Prestwick, Troon, Maybole and Girvan. Ayr is one of the largest town centres in the West of Scotland.

Much of the investment in retail provision during the 1990’s concentrated on the refurbishment of malls and large chain stores in Ayr, and the development of both large-scale food and non-food stores – most notably in out of centre locations such as at Heathfield. The most up to date calculations in 2002 suggest that further major shopping developments

in out of town centre locations, especially for non-food provisions, could seriously affect the viability of existing shopping centres.

The recognition of the limitations for new retail provision and the identification of main town centres provides a framework through which investment opportunities may be guided to existing town centres. This will assist in their maintenance as attractive and vibrant centres of activity. These principles are strongly supported by National Planning Policy Guidelines No.8 “Town Centres and Retailing” which promotes the aims of sustainable economic development and strongly resists out of centre development. The extent of the defined town centres of Ayr, Prestwick, Troon, Maybole and Girvan are shown on the Proposals Map.

STRATEGIC POLICY RET1#

The Council will seek to guide new retail and commercial leisure investment to existing town centres as identified on the Proposals Map, in preference to out-of-centre locations.

Retail Development

Retailing is widely recognised as a dynamic sector of the economy, with new shopping formats continually being introduced. It is within this context that existing centres must accommodate or compete with the challenges of the new formats.

The most effective method of ensuring the continued viability of retail centres is not simply to resist additional provision, but to encourage new investment in these areas; by giving a clear commitment that they will be viewed by the Council as the most appropriate places for such activity. In considering proposals, the Council will therefore operate a ‘sequential approach’ whereby proposals would be expected to locate in town centres wherever possible, or on edge of centre sites where town centre sites are not available or could not be made available. Exceptionally, and subject to meeting a range of criteria, new out of centre locations that are accessible by a range of transport modes may be considered where all other options have been proven unacceptable.

Wholesale warehouses are regarded as storage and distribution use, and relevant policies are therefore contained in the industrial section of this chapter. All other retail formats are regarded as “shops”.

STRATEGIC POLICY RET2#

There shall be a presumption in favour of large scale retail developments (over 1,000sqm gross floorspace) being directed to the defined town centres of Ayr, Prestwick, Troon, Girvan and Maybole. Where there is no alternative site firstly in, or secondly, adjacent to town centres, the preference will be to edge of centre sites and then to Heathfield Retail Park, identified on the Proposals Map. Developments outwith existing centres but still within settlements may be acceptable provided they can be justified against the following criteria:

The applicant has demonstrated that there are no suitable sites, through the above mentioned sequential locational preference, and that there is no practical means by which the proposal could be adapted to fit into existing town centres; and

Where such development could co-exist with existing town centres without individually or cumulatively adversely affecting the vitality, viability or character of existing town centres; and

Where there is sufficient capacity for the proposal in quantitative terms or that the proposal would introduce choice or quality of provision that will reduce leakage of

expenditure, such that it will create sufficient capacity for the proposal in the catchment area; and

The site is well located for existing regular, frequent and convenient bus services, or other public transport and easy pedestrian and cycle access; and

The standard of design, including its scale and relationship to its surroundings, would provide lasting benefits and contribute positively to the overall quality of the urban area and where there is scope for integration with, and the enhancement of, other uses; and

The proposal does not raise any infrastructure implications or costs not borne by the developer; and

Goods to be sold in out-of-centre retail warehouses are restricted to DIY, furniture, carpets, electrical and gardening goods; and

Non food goods floorspace in out of centre large food stores will be restricted to an ancillary level and the range of non food goods sold other than household, DIY, furniture, carpets, electrical and gardening goods will be restricted to no more than 10% of the gross floorspace of the store.

NOTE 1
If considered necessary by the Council there shall be restrictions on floorspace, subdivision of floorspace and the range of goods sold to ensure the development remains as originally intended and approved.
NOTE 2
Where new public transport links are required to comply with criteria d, above, these must be guaranteed for a period to be agreed with the Council.
NOTE 3
Sites are identified in Policy OPP2 as being retained for town centre development, and particular regard will be given as to whether the proposed developer has considered these sites under criteria a). However, additional sites within or adjoining town centres may exist and an assessment against these may also be required.

POLICY RET3

There will be a presumption in favour of retail outlets within settlements where:

Goods to be sold are manufactured on site; or
Goods comprise fuels or building materials.

NOTE
The impact and cumulative impact of the provision of retail floorspace outwith town centres or neighbourhood centres will also be considered in terms of the criteria of Policy RET 2.

Vital and Vibrant Town Centres

Retailing is the primary function upon which the vitality and viability of the town centre depends. However, a vital and vibrant town centre is one that provides for a diversity of activities and which maximises opportunities in which to shop, spend leisure time, to work, and to live in. Nevertheless, the encouragement of a diverse range of activities can introduce uses that could detract from the environmental quality of towns and undermine the vitality of the centre as a whole.

Town centres typically have readily identifiable core areas, where there is a concentration of shops, often represented by national multiple retailers. These ‘cores’ have a long standing history, which is represented by the historic townscape of these areas. As one moves away from these cores the presence of these uses gradually fades and gives way to other uses, such as residential. These areas can be described as ‘peripheral’ areas. All five of the town centres in South Ayrshire – Ayr, Prestwick, Troon, Maybole and Girvan- have areas that display characteristics of being core and peripheral

The encouragement of shops to locate into core areas, thereby concentrating the attractions that shoppers may wish to visit, is thought to have the greatest potential to maximise vitality and viability of a town. However, there may be scope for a range of other town centre uses, such as cafes and restaurants, especially where such uses provide the vitality typically generated from shopping provision, in terms of pedestrian flow and in making a positive contribution to the environment and townscape.

Within peripheral areas, in addition to the town centre uses acceptable in the core areas, there is scope for a still wider range of uses, such as residential and tourist, which may encourage a broader range of visitors to the town. Such use could also contribute to the vitality of the town by introducing additional ‘footfall’, especially during the evening. Therefore, in areas where an increasing number of retail units have become vacant, with little realistic hope for their re-use as shops, providing such uses do not predominate to such an extent as to be detrimental to adjacent uses, such proposals may be viewed positively.

POLICY RET4

Within the core shopping areas of town centres, as identified on the Proposals Map, shops should be the predominant ground floor use. However, to ensure the continued vitality and viability of town centres there will be scope for a range of town centre uses where such proposals;

Provide benefits to the town centre and to customers in terms of providing added value in service or by meeting a qualitative deficiency in provisions within the shopping centre or by providing new or innovative proposals; and

Maintain a high and continuous degree of public contact in the normal day to day running of the use; and

Maintain an adequate and attractive window display or appropriate frontage; and

Do not have an overall detrimental effect on the vitality and viability of the shopping centre; and

Ensure the amenity of the surrounding area will not be adversely affected by the use: particular consideration will be given where there is evidence of an undesirable concentration of uses;

Within Ayr Town Centre proposals shall also require to accord with the policy RET 7.

NOTE 1
Whilst each proposal will be considered on its merits the Council will be concerned if the proposals would result in a concentration of uses to the extent that either ‘dead frontages’ develop or the amenity of the area is compromised.

NOTE 2
Town Centre Uses refers to those uses permitted by classes 1,2,3 (excluding hot food and snack bars), 7 and 11 of the use class order. Sui generis use public house are also considered acceptable. Hot Food uses will require to comply with policy RET 7.

NOTE 3
Favourable consideration may be given to the diversification of activity within restaurants and cafes to provide an ancillary and subsiduary hot food carry out facility where it is demonstrated, to the satisfaction of the Council that the proposal would not compromise the principles of the above policy.

POLICY RET5

Within the peripheral areas of town centres, as defined in the Proposals Map, proposals for town centre uses and other complementary uses (as defined in note 1 below) will be favourably viewed. The re-use or redevelopment of vacant shops for non

town centre uses, which complement the character of the area and which do not undermine the vitality or viability of the town centre may be acceptable.

NOTE 1
Town Centre Uses refers to those uses permitted by classes 1,2,3,4,7,9 and 11 of the use class order and sui generis public houses. Hot Food and Amusement Centre uses will require to comply with policy RET 7.

Hot Food and Amusement Centres

Outwith of core areas, there may be scope to allow uses, such as hot food and amusement centres, that are not easily compatible with residential areas or main shopping thoroughfares. Providing that such uses do not predominate to such an extent as to be detrimental to adjacent uses, they may positively contribute to the variety of activities within the locality and the continued viability of town centres.

POLICY RET6#

Applications for amusement centres and hot food carry out uses will be directed to the peripheral areas of town centre locations, and will be assessed in terms of:

Their effect on the character of the shopping centre and their impact on surrounding uses; and

The impact and effects on the character and amenity of neighbouring and surrounding land uses, especially with regard to residential properties and schools

Planning Strategy for Ayr Town Centre

Ayr town centre makes a significant contribution to the economy of South Ayrshire, and it plays an important role in attracting tourists and visitors to South Ayrshire. It is therefore especially important that the town centre remains an attractive place to visit. A planning strategy for the town centre provides an overview of the manner in which the Council wishes to see the town centre develop. This strategy provides a framework for considering proposals in the town centre and identifies sites that could be developed to achieve that vision.

POLICY RET7

Proposals in Ayr town centre will be assessed against the Planning Strategy for Ayr Town Centre.

Local Retail Provision

It is recognised that not all retail activity takes place within town centres, and provision within neighbourhood centres, corner shops and in smaller settlements performs an important function of serving local needs. It is also considered that public houses and local hotels may provide a valued feature of commercial and community activity. Such provision should be maintained to reduce the need to travel for goods/services and help prevent areas from becoming isolated from essential facilities, especially for the less mobile. Many areas also suffer from inadequate provision and therefore for similar reasons, encouragement will be given to new retail development of an appropriate scale to meet local needs where there is currently a deficiency or possible future deficiency. The Council will therefore be sympathetic to proposals for investment in new or existing businesses in these locations.

POLICY RET8

The Council will seek to safeguard public houses/hotels, retail and class 2 office uses serving local communities within villages and at neighbourhood centres identified on the Proposals Map and will direct new retail and class 2 office development to these locations, subject to the provisions of policy RET2. Proposals for amusement centres and hot food carry out uses within these areas will be assessed in terms of critera a) and b) of policy RET 6.

NOTE 1
The cumulative impact of the provision of retail floorspace outwith town centres will also be considered in terms of Policy RET2(b).

NOTE 2
The Council may give sympathetic consideration to proposals which may result in the loss of an important local commercial facility where it is demonstrated, to the satisfaction of the Council, that the loss will not have an unacceptable impact on the overall local availability of such services.

Extensions to Out of Centre Retail Stores

It is recognised that the retail sector is dynamic and that shops and stores will wish to evolve and adapt to meet changing retail trends. Shops within town centres may be able to manage change through acquisition of larger premises also located in the town. However stores in out of centre locations, that wish to remain at their existing location have less capacity to expand as there is a general presumption against further retail expansion out of centre. However, there is scope to allow for modest expansions that would not undermine the strategy for investing in town centres. Proposals for more significant levels of expansion will require to be assessed against the terms of policy RET 2, which requires retailers to respond to new space requirements by giving consideration to amending their retail format, perhaps by splitting the product offer between out of centre and town centre locations

RET9*

Proposals to extend stores at out of centre locations may be acceptable where;

the proposal represents the expansion to a non food store, and the extension does not exceed 500m2; or
the proposal represents the expansion of a food store, and the extension does not exceed 1000m2

And where in all cases the store has not been expanded in the preceding ten years, and there is not a significant change in retail or traffic patterns as a result of the expansion, from that of the original development

NOTE
This policy excludes Heathfield Retail Park which is subject of policy RET10

Heathfield Retail Park

Following trends to decentralise retail activity a number of retail warehouses have been developed throughout Scotland. Within West Central Scotland the majority of these retail warehouses are restricted to the sale of ‘bulky goods’ i.e. DIY, furniture, floorcoverings, gardening and electrical goods. Within South Ayrshire this type of retail park has been developed at Heathfield – The Heathfield Retail Park – which also has consent for a large food store (4,500m2) on land adjoining the Retail Park.

Policy RET 2 identifies a sequential preference for further retail development. The Heathfield area is not currently well served by public transport and therefore any further retail proposals within this area, that are able to satisfy policy RET 2 shall also require to provide a convenient, regular and frequent public transport service. Additionally, recognising the environmental and infrastructure benefits of integration, proposals within the Heathfield area

that demonstrate integration with the existing Heathfield Retail Park shall be given preference to other sites in the Heathfield area.

POLICY RET10

The Heathfield Retail Park will be restricted to the sale of DIY, furniture, floorcoverings gardening and electrical goods and there is a presumption against subdivision of any unit. Proposals for retail development in the Heathfield area, which adjoin and integrate with the existing Heathfield Retail Park, as defined on the Proposals Map, and which satisfy policy RET 2, will be given preference subject to the following criteria;

The applicants shall require to provide from time of opening of the development a convenient, regular and frequent public transport service, which shall be sustained for a period of time to be agreed with the Council; and
The sale of goods will be restricted to DIY, furniture, floor coverings, electrical and gardening goods.

NOTE
The Heathfield Area is defined by the area detailed in the Heathfield Strategy and indicated on the Proposals Map.

POLICY RET11

The Council will favourably view proposals for food retail development on land adjoining Heathfield Retail Park as defined on the Proposals Map, provided the development accords with the following criteria;

The development functionally integrates with the Heathfield Retail Park; and

The range of goods to be sold is restricted to the sale of convenience goods and that which meets with the terms of criterion h) of policy RET2.

NOTE
Once developed this site will be considered to comprise part of the Heathfield Retail Park.

POLICY RET11A

The Council will favourably view proposals for non food retail development subject to the following criteria:

a) Proposals will require to integrate with the Heathfield Retail Park, as defined on the Proposals Map; and
b) The sale of goods will be restricted to DIY, furniture, floorcoverings, electrical and gardening goods.

POLICY RET11B

Land to the south of Heathfield Road is allocated for retail purposes and will be restricted to the sale of DIY, furniture, floorcoverings, gardening and electrical goods.

Garden Centres/Horticultural Retail

In general terms, large garden centres are no different to other forms of retailing. However, in practice they operate in a way that would be difficult to accommodate within a town centre. In addition, their origins are within a market garden and agricultural context. For these reasons, the Council may view this type of retail format favourably outwith a town centre, or indeed when located in a suitable rural location. Other types of retail development may also be considered acceptable in the countryside, for example as part of a small scale farm diversification scheme where the produce sold is grown at that location.

POLICY RET12

Garden centres/horticultural retail may be acceptable within the Rural Protection Area and Rural Diversification Area where:

Permanent structures containing goods on sale to the public do not exceed 1000m²;

Non plant sales and ancillary uses/services do not exceed 10% of the total sales/display area.

POLICY RET13

Retail development outwith a settlement may be acceptable where goods to be sold are crafts or other products made or produced on site and:

It comprises the re-use of a structurally sound and substantially intact traditional/ vernacular building worthy of retention in terms of a positive or potentially positive contribution to its locality and which will not require significant external alterations; and

It does not exceed 1000m² gross floor area of sales; and

The proposal or cumulative impact of the proposal does not have a potentially detrimental effect on retail provision within a settlement.

NOTE 1
The sale of goods not made or produced on site will be restricted to 10% of the total floor area.
NOTE 2
Proposals granted through the above policy will not be viewed as comprising unrestricted Class 1 Retail Development. The future use of the premises may therefore be restricted accordingly.