Ministerial guidelines
Retail Planning: Guidelines for Planning Authorities
The retail hierarchy, the sequential approach that puts town centres first, and caps on the size of shops and retail warehouses.
Department of the Environment, Community and Local Government · April 2012 · 73 pages
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- 35 4 4.11 Assessment of Specific Categories of Retail Development 4.11.1 Large Convenience Goods Stores Large convenience stores comprising of supermarkets, superstores and hypermarkets are now an accepted element of retailing in cities and large towns. They provide primarily for the weekly convenience goods shopping of households. They require extensive open areas of floorspace together with adjacent car parking as the majority (but not all) their customers undertake their bulk convenience shopping trips by car. Large convenience goods stores should be located in city or town centres or in district centres or on the edge of these centres and be of a size which accords with the general floorspace requirements set out in the development plan/retail strategy to support and add variety and vitality to existing shopping areas and also to facilitate access by public transport for shoppers. In certain limited circumstances however, it may not be possible to bring forward suitable sites in or on the edge of a city or town centre because of the site requirements of large convenience goods stores, heritage constraints in historic towns, or because the road network does not have the capacity to accommodate additional traffic and service vehicles. In these cases, the sequential approach should be used to find the most preferable sites. Where a proposal for large convenience goods stores development involves the sale of a significant amount of comparison goods (as is common now in many supermarkets, superstores and hypermarkets), the planning application drawings should clearly delineate the floorspace to be devoted primarily for the sale of convenience goods. The balance between the convenience and comparison element of the proposed store drawings is a critical element in the assessment of the suitability of the development proposal. Where a significant element of the store is indicated to be for comparison goods the potential impact of that element of the store on existing comparison goods stores within the catchment must be included in the assessment of the application. [Note: The distinction between ‘discount stores’ and other convenience goods stores which was contained in the 2005 Retail Planning Guidelines will no longer apply]. 4.11.2 Retail Parks and Retail Warehouses A retail park comprises an agglomeration of retail warehouses grouped around a common car park selling mainly bulky household goods, requiring extensive areas of showroom space, often with minimal storage requirements. There is an expectation that most of the goods purchased can be transported off-site by the customer. Home delivery services may also be available. There are benefits to be gained in grouping retail warehouses in retail parks so that the number of trips by car are minimised. The parks are generally located at out-of-centre locations to facilitate access by car. These locations may also provide relief to congested city or town centres. However, because the number of retail parks has grown substantially over the past decade, reaching saturation point in some areas, leading to vacancy in some cases, and also because of the blurring of the definition of the goods permitted to be sold in these parks, it is appropriate to reassess the impact of such developments. Due to
- 36 4 the fact that the range of goods being sold from retail warehouse parks often includes non-bulky durables, there is potential for a detrimental impact on city/town centres as indicated by the increasing numbers of vacant units in urban centres where retail parks exist on the periphery. It also needs to be recognised that many bulky goods stores such as furniture retailers can and are accommodated in city and town centres. For these reasons there should, in general, be a presumption against further development of out-of-town retail parks. However, the development plan and any relevant retail strategies should identify whether or not there is a need for the provision of additional retail warehouses in the light of the issues set out above. If a need for additional bulky format retailing is identified by the development plan on the basis of evidence from a relevant retail strategies including joint/multi-authority retail strategies, the size and potential location of the additional units should also be specified. In addition, in the interests of clarity, the development plan should clearly identify the type of bulky household goods which may be sold in these units, taking account of the requirements below. Type of goods sold To minimise potential adverse impacts on central areas, it is important that the range of goods sold in both existing and any future retail parks is tightly controlled and limited to truly bulky household goods or goods which are not portable by customers travelling by foot, cycle, or bus. See Annex 1 for definitions of bulky goods. While it is acknowledged that there are ancillary items associated with an otherwise bulky good, e.g. computer software, printing paper, it is recommended that the retail floorspace devoted to such ancillary products should not exceed 20% of the total net retail floorspace of the relevant retail unit and such space to be clearly delineated on the planning application drawings to facilitate future monitoring and enforcement. Planning authorities should also closely monitor compliance with existing permissions for retail warehouses to ensure that the goods being sold are consistent with the definition of non-portable bulky goods in order to promote and protect the vitality and viability of city and town centres. Enforcement action must be taken where retailing is not in compliance with the requirements above. Size of units Specific planning and competition issues arise in relation to the size range of individual retail warehouse units and it is therefore necessary to address the separate matters of minimum and maximum unit sizes. Generally speaking, units of less than 700 M2 gross floorspace are more easily capable of being accommodated in urban centres and, in any event, tend to sell a less bulky range of goods. Consequently, planning authorities may consider it appropriate to impose a minimum size condition preventing the construction or subdivision of retail warehouse units into stores less than 700 M2 in out-of-centre locations. Conversely, the development of very large single retail warehouse units in excess of 5,000 M2 (and sometimes of 10,000 M2 or more) focused upon a specific market segment, can have an unacceptable local monopoly effect on smaller shops in town centres, particularly in a country like Ireland which has few large conurbations. Furthermore, these large-scale development formats attract large volumes of carborne customers and require a high quality road network with spare capacity. These conditions occur in relatively few locations in the State.
- 37 4 For the foreseeable future, therefore, the cap on large-scale single retail warehouse units in excess of 6,000 M2 gross (including any ancillary garden centre) will remain, due to their potential effect on the surrounding road network and their potential for creating local monopolies which would inhibit competition within local catchment areas. Where it is considered warranted, local authorities should impose appropriate conditions when permitting retail warehouse developments to prevent the provision of single large units either through new development, coalescence or the linking together of two or more stores. In general, coalescence or linking together of stores would be considered to be development and therefore subject to a requirement for planning permission. The 6,000 M2 gross threshold should apply in all cases, except in the exceptional circumstance as indicated in below. Exceptional provision for certain types of large-scale retail warehouses There is evidence of consumer demand in Ireland for innovative types of large-scale retail warehouses which are capable of displaying a very wide range of bulky goods under one roof, together with a range of customer facilities. The scale of such outlets requires a regional, if not a national, population catchment. Accordingly, proposed exceptions to the 6,000 M2 retail warehouse cap may be considered on the merits of individual development applications in the five NSS Gateway cities of Dublin, Cork, Waterford, Limerick/Shannon and Galway. Planning authorities in those areas may wish to consider designating potential development sites which would satisfy the locational criteria at (b) and (c) below. In order to be acceptable from a planning perspective, any proposal for an individual large scale retail warehouse with a floorspace in excess of 6,000 M2 gross in the locations above must demonstrate that the proposal: will accommodate predominantly bulky goods under one roof, together with aa. range of customer facilities (e.g. restaurant, crèche), on a scale which requires a regional, if not a national, population catchment; is in accordance with the Planning Guidelines on Spatial Planning and Nationalb. Roads in that the proposal can demonstrate that the development will not adversely affect the efficiency of the national road network and key junctions and interchanges and that it can be demonstrated that traffic volumes can be accommodated within the design assumptions for such roads, taking account of the opportunities for encouraging a modal shift towards more sustainable travel modes; will be served by existing or planned public transport services;c. will make adequate provision for those opting for home delivery of goods otherd. than by private car; will be accompanied by a traffic impact assessment, demonstrating compliancee. with the above criteria; and will take account of the vitality/viability criteria in respect of city/town centresf. set out in these Guidelines and avoid the incorporation of uses and activities, as part of the development, which are more appropriate to city and town centre locations.
- 38 4.11.3 Factory Shops Such units, usually located as part of or adjacent to the production facility, should be restricted by way of condition to the sale of products produced by the relevant factory. Proposals for individual factory shops may be appropriate, provided the scale of the shop is appropriate to its location and raises no issues in relation to the vitality and viability of nearby urban centres. 4.11.4 Outlet Centres Outlet centres consist of groups of stores retailing end-of-season or discontinued items at discounted prices and are typically located in out-of-centre locations. The success of these outlet centres depends on attracting customers from a wide catchment area, and from the tourism sector. When they are located out-of-town on greenfield sites, they can divert a significant amount of expenditure on comparison shopping goods away from established city/town centres and tourist centres even some distance away. Nonetheless, outlet centres within or immediately adjacent to a city or town centre can generate commercial synergies with the established retail outlets, thereby raising the profile of the centre and enhancing aggregate turnover on retail goods and leisure activities. Because of the specific niche that outlet centres operate within, applicants must demonstrate, and planning authorities must ensure that the products sold will not be in competition with those currently on sale in typical city/town centre locations. Applications for the development of outlet centres should be considered having regard to the provisions of the development plan/relevant retail strategy and assessed in accordance with the sequential test set out in Chapter 4. It should be recognised, however, that outlet centres are unlikely to succeed commercially in close proximity to the main urban centres in Ireland because retailers do not normally choose to trade at a large discount in direct competition with their high street outlets. However, experience shows that this constraint is unlikely to arise with smaller or secondary town centres, especially those in areas which attract large numbers of tourists. Consequently, the most appropriate location for outlet centres is likely to be where commercial synergy can be achieved between an outlet centre and an urban centre which would lead to economic benefits for the overall area. Outlet centres should not be permitted in more remote out-of-town locations. 4.11.5 Retailing in Small Towns and Villages The role of small towns and villages in the provision of retail services to their local urban and rural populations should be defined in development plans. Where appropriate, the maximum size of store, consistent with maintaining a variety of shops in the centre of these towns and villages and protecting an appropriate level of retail provision in the rural area, should be identified. In general there should be a clear presumption stated in favour of central or edge-of-centre locations for new developments. 4
- 39 4.11.6 Local Retail Units Local retail units such as corner shops or shops located in local or neighbourhood centres serving local residential districts perform an important function in urban areas. Where a planning authority can substantiate the local importance of such units in defined local centres, they should safeguard them in development plans, through appropriate land-use zoning. Development management decisions should support the provision of such units, particularly where they encompass both food-stores and important non-food outlets such as retail pharmacies, and have significant social and economic functions in improving access to local facilities especially for the elderly and persons with mobility impairments, families with small children, and those without access to private transport. 4.11.7 Retailing in Rural Areas Retailing in rural areas should generally be directed to existing settlements: development for this purpose in the countryside should be resisted. It is recognised, however, that there may be exceptional circumstances where the development of certain types of retail units in rural areas could be acceptable. The retail units in question could be: a retail unit which is ancillary to activities arising from farm diversification;• a retail unit designed to serve tourist or recreational facilities, and secondary to• the main use; a small scale retail unit attached to an existing or approved craft workshop• retailing the product direct to the public; and/or a small scale retail unit designed to serve a dispersed rural community.• 4.11.8 Casual Trading Casual trading is provided for under the Casual Trading Act 1995 and includes trading markets and the increasingly popular farmers’ markets. If properly regulated such casual trading can make a significant contribution to the local economy. Casual trading should be promoted in the retail centres of cities and town where it can create an ambiance which can contribute to the vitality and viability of such centres. To date a number of local authorities have inserted specific policies/objectives into their development plans to facilitate the temporary use and nature of open-air trading, e.g. craft (Christmas) markets, farmers’ markets and car boot sales. 4.11.9 Retailing and Motor Fuel Stations Convenience shops are part of the normal ancillary services provided within motor fuel stations. In rural areas, they can have a very important function as the local shop or small supermarket. However, such shops should remain on a scale appropriate to the location, and their development should only be permitted where the shopping element of the station would not seriously undermine the approach to retail development in the development plan. The floorspace of the shop should not exceed 100 M2 net; where permission is sought for a floorspace in excess of 100 M2, the sequential approach to retail development shall apply, i.e. the retail element of the proposal shall be assessed by the planning authority in the same way as would an application for retail development (without petrol/diesel filling facilities) in the same location. 4
- 40 In considering applications for development, attention should also be given to the safety aspects of circulation and parking within the station forecourt. Motor fuel facilities ancillary to large convenience goods stores located in or adjacent to town centres often provide healthy competition in this sector of the market without adversely affecting town centres. It is not axiomatic, however, that all large convenience goods stores formats should have ancillary fuel facilities, particularly where the objective of planning policy is, wherever possible, to fit large convenience goods stores on sites within or on the edge of town centres. It will often be difficult to find a site at this type of location with acceptable road access which is sufficiently large to allow both a full sized store and a fuel station. Consequently retailers should not seek to claim that they are unable to assemble sites within a town centre or on the edge of one, simply because they face difficulty in assembling a site capable of accommodating a large convenience goods stores and a fuel station. 4.11.10 Online and Off-Line Motorway Service Areas Online and off line motorway service areas are not considered in these guidelines. Guidance in relation to the provisions which apply to these facilities are contained in the Spatial Planning and National Roads Guidelines for Planning Authorities DECLG 2012. 4
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- 44 Key Messages A high quality of design in retail development can make an important contribution• to the vitality and attractiveness of city and town centres. Planning authorities should promote high standards of design and finish through• both the forward planning and development management processes. The basic approach to design issues set out in this chapter needs to be read in• conjunction with the more detailed guidance provided in the companion Retail Design Manual. 5.1 Introduction Quality design ensures attractive, inclusive, durable, adaptable places which contribute positively to making places more pleasant for people to work in, to live in, to shop in, or pass through. Planning authorities should plan positively for the achievement of high quality and inclusive design for all retail development. Design which is inappropriate for its context, or which fails to realise the opportunity of improving the character and quality of an area or a site, should not be accepted. The Department’s statement on housing policy, “Delivering Homes, Sustaining Communities”, (2007) contains a useful definition of design quality: ‘Design is a creative activity and definitions of quality in design are elusive. It cannot be reduced to codes and prescriptions … However it is possible to distinguish good design from bad design … Good design is fit for purpose, sustainable, efficient, coherent, flexible, responsive to context, good looking and a clear expression of the requirements of the brief … Assessing quality is to a large extent an objective process. Ultimately … some questions come down to individual taste and preference. What matters is quality not style’. 5.2 Forward Planning and Quality Design Planning authorities should promote quality design in their policy documents and implement this through the development management process. This is of particular importance for retail development because of the dominant visual and use role it plays in a city, town or village streetscape. Where there are clearly defined design policies and objectives relating to retail use within a development plan or local area plan, this gives greater clarity and certainty to developers and their design teams and provides the framework for discussion at the pre-application stage. Design needs to be applied by skilled practitioners, and planning authorities are encouraged to provide suitable training opportunities for relevant staff and, in appropriate situations when necessary, use architectural/design consultants to advise them on appropriate plan policies and development management responses in particularly sensitive areas and sites, e.g. heritage towns, architectural conservation areas, protected structures etc. (See also Chapter 3 - Retailing and Spatial Planning) 5 Retailing and Design Quality
Source Department of the Environment, Community and Local Government: Retail Planning: Guidelines for Planning Authorities (April 2012) · Licence the publisher's termsText read from the publisher’s PDF; tables, maps and drawings do not survive as text, and page numbers are the PDF’s (its first page is 1). Check the original before relying on a passage.