Development plan · Westmeath County Council
Westmeath County Development Plan 2021–2027
The council's development plan written statement: its strategy, policies, objectives and development standards.
Westmeath County Council · 2021–2027 · 634 pages
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- Appendix 4 Westmeath County Retail Strategy Westmeath County Development Plan 2021-2017 lxxii Resolution of redressing buildings at risk and bringing them back into viable economic use cannot be achieved by the Council alone and this is well understood, thus a collaborative approach with owners, business and other local people is the required road map. To harness and enhance the retail and tourism potential of Kilbeggan, it is the policy of the Council: RP32 To secure and promote the consolidation of Kilbeggan Town Centre through encouraging the re-use and regeneration of lands and buildings along Main Street, with the key priority being the development of the identified opportunity site. RP33 To work with owners and local businesses and people in a collaborative approach to bringing vacant and at-risk buildings of heritage and architectural merit back into viable economic use. RP34 To prepare and implement, in association with the Kilbeggan Distillery and Kilbeggan Racecourse, a Tourism and Interpretation Strategy for Kilbeggan. RP35 To prepare and implement, in association with local organisations, businesses and people, an enhanced Public Realm Strategy for Kilbeggan which develops a programme of improvements and interventions. 7.4 General Retail Policies In addition to specific policies relating to the main centres of Westmeath, a number of general policies are defined to shape retailing over the period of the County Retail Strategy and beyond. These are set out in the paragraphs which follow. 7.4.1 Self-Sustaining Towns The Tier 4 Self-Sustaining Towns in the County Retail Hierarchy are Rochfortbridge and Killucan/Rathwire. Each of these towns have: a range of retail and other local services; heritage townscapes; and, important tourism assets and infrastructure. They are important centres in their rural hinterlands. A number of these centres within the County successfully secured DAHRRGA Town and Village Renewal Scheme funding in recent years. The key priority is for the consolidation and enhancement of the central areas of these Self- Sustaining Towns and ensuring that they continue to grow and meet the needs of local people within the town and their wider rural catchment areas. To progress and achieve this, it is the policy of the Council: GR1 To sustain, enhance and consolidate the retail and services offer of Local Service Centres within their central areas and harness and develop the potential of their heritage and tourism assets. 7.4.2 Neighbourhood Centres Neighbourhood Centres are designated Tier 4 centres in the County Retail Hierarchy and form part of the retail hierarchy of Tier 1 and Tier 2 Retail Settlements (i.e. Athlone and Mullingar).
- Appendix 4 Westmeath County Retail Strategy Westmeath County Development Plan 2021-2017 lxxiii They are located in the suburbs of both Mullingar and Athlone in existing, growing or new residential areas and serve to meet daily shopping and services needs in a sustainable way to reduce the propensity for local people having to travel to meet these needs. These existing and proposed centres are identified in Map 1 of Appendix I. Neighbourhood Centres are limited in size and function, although the GRP 2012 do not set down an indicative threshold in respect of the former. The GRP define a Neighbourhood Centre as consisting of a small group of shops, typically comprising a newsagent and anchored by a small supermarket – be that a mainstream, symbol group or discount operator – and have the potential to provide a small range of local non-retail services, civic, community and commercial leisure floorspace serving a small localised catchment population. Consistent with the role, function and scale prescribed, it is the policy of the Council: GR2 To encourage and facilitate the development of appropriately located Neighbourhood Centres to meet the needs of existing, growing and new residential areas of Mullingar and Athlone. 7.4.3 Towns and Villages Towns and Villages and Rural (serviced) are designated as Tier 5 and Tier 6 settlements and centres in the County Retail Hierarchy. In respect of the former, they are identified in the County Retail Hierarchy as, Clonmellon, Delvin and Tyrrellspass. Although there has been a continuing decline in the number of Rural Areas around the more rural parts of the County and country in recent years, their role and function in the life of the community is recognised as very important. They predominantly serve local level convenience shopping needs, but some will provide a limited range of non-retail services and have tourism function. A number of these centres in Westmeath were successful in the Council’s bid for DAHRRGA Town and Village Renewal Scheme funding in recent years. Reflecting their role and importance, it is the policy of the Council: GR3 To retain, encourage and facilitate the retail and limited non-retail services role of Towns and Villages around the County. 7.4.4 Convenience The enhancement of the convenience/food shopping offer across all centres in the County Retail Hierarchy is a sustainable objective. Underpinning this is the need to ensure the sustained vitality, viability and attraction of centres at all levels of the County Retail Hierarchy and, as such, new foodstores should be located in the centre of towns, villages and neighbourhood centres with all other applications demonstrating they fully meet the tests of the Sequential Approach. The GRP 2012 no longer distinguish between discount stores and other convenience goods stores and the Strategy reinforces this. There is concern with the exclusion of any comparison threshold within the net floorspace cap of 3,000m² for large convenience stores in the County, as set out in the GRP 2012. This is specifically as a number of the main national and international convenience operators are potentially opening the door to in-store High Street mainstream fashion brand concessions. This has very real potential implications for the vitality, viability and attraction of main centres in the County Retail Hierarchy. Over the period of the Strategy, it is
- Appendix 4 Westmeath County Retail Strategy Westmeath County Development Plan 2021-2017 lxxiv an issue which will be fully addressed in the assessment of applications for large scale convenience stores. To ensure that these issues are addressed, it is the policy of the Council: GR4 To request that the nature of the comparison component of proposed large convenience stores is provided in detail and a transparent and evidence-based RIA/RIS provided in support of the application. GR5 To prohibit the development of edge of and out of centre large convenience stores which include a large component of high street fashion brands in the comparison mix proposed in the interests of sustaining and further enhancing the vitality, viability and attraction of the Core Retail Areas and central areas of the main centres in the County Retail Hierarchy. 7.4.5 District Centres The GRP 2012 in Annex 1 – Glossary of Terms under A.1.5 Types of Centre sets out the following description of what a District Centre comprises: ‘Provides a range of retail and non-retail service functions (e.g. banks, post office, local offices, restaurants, public houses, community and cultural facilities) for the community at a level consistent with the function of that centre in the core strategy. They can be purpose built as in new or expanding suburbs or traditional district centres in large cities or town.’ The previous GRP set out thresholds of what the thresholds for District Centres were likely to comprise and, outside of the Dublin Area, in or adjacent to main towns this was 10,000m². This has not been the guidance provided in the GRP 2012 where no threshold is provided. In the context of the County and its Tier 1 and Tier 2 Retail Settlements and the priority of the ‘core area/centre first’ principle, the nature and scale of District Centres, as prescribed in the GRP 2012, are deemed not to be an appropriate centre or retail format in the County Retail Hierarchy. As such, it is the policy of the Council: GR6 To prohibit applications for District Centres in the Tier 1 and Tiers 2 settlements to ensure and protect the vitality, viability and attraction of the Core Retail Areas of Mullingar and Athlone. 7.4.6 Retail Warehouse Parks In view of the saturation of the retail warehouse market over the last decade, there are both many unimplemented permissions for new retail parks and vacancies in existing retail parks. Consequently, there has been increasing pressure on the Council for alternative forms of retailing to bulky goods shopping to be permissible on retail parks. To protect the vitality and viability of the County’s core areas within its Tier 1 and Tier 2 retail settlement areas (Athlone and Mullingar) and avoid retail parks emerging as out-of-town shopping centres, this pressure has been resisted by the Council. This responds to advice in the GRP 2012 which states under paragraph 4.11.2 – Retail Parks and Retail Warehouses that:
- Appendix 4 Westmeath County Retail Strategy Westmeath County Development Plan 2021-2017 lxxv ‘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.’ Reflecting this advice, it is the policy of the Council: GR7 To prohibit mainstream and discount convenience retail developments in retail parks. GR8 To prohibit mainstream comparison retail development or retailers in retail parks. 7.4.7 Retail Development in Business Parks & Employment Areas Increasingly, single use large employment areas, be they business parks or industrial parks and estates, have generally been superseded by more mixed-use sustainable development models that combine working, living, leisure, shopping and local services provision. In addition to being a more sustainable development strategy for major strategic greenfield and brownfield locations, the introduction of local shopping and services provision is an important ingredient in the attraction and competitiveness of such areas. In respect of older employment areas, retail provision will be limited unless it directly interfaces with existing and expanding residential areas and forms part of a strategic approach to provision in the suburbs of the County’s Tier 1 and Tier 2 retail areas (Athlone and Mulllingar). Any further retail floorspace in such employment areas will be restricted to meeting the convenience and non-retail services needs of employees rather than facilitating the creation of new Neighbourhood Centres or enabling retail warehousing to be introduced. Underpinning this strategic approach, it is the policy of the Council: GR9 To ensure that the level of retail and local services provision in existing and new major employment areas sustains and enhances their attraction as locations for investment and working in. GR10 To provide the land-use and retail planning framework to ensure that the mixeduse strategies for new employment areas respond to the wider context of need and demand in related expanding residential areas and individual main centres, in the interests of ensuring that these locations are attractive to new residents, workers and employers. GR11 To limit the level of shopping and local services provision in existing industrial estates or business parks. Stand-alone mainstream and discount convenience or comparison floorspace will not be permitted, however the introduction of wholesale retail floorspace will be open for consideration. 7.4.8 Enhancement of Towns & Villages The enhancement of the main centres has been established as a key strand in the required approach in the specific policies for each. This general policy outlines the mechanisms needed to progress and implement these specific polices. It is, therefore, the policy of the Council:
- Appendix 4 Westmeath County Retail Strategy Westmeath County Development Plan 2021-2017 lxxvi GR12 To encourage and facilitate the enhancement and environmental improvement of the County’s towns and villages. GR13 To pursue all avenues of funding to secure resources for the enhancement, renewal and regeneration of the public realm of the County’s towns and villages. GR14 To ensure the best quality of design is achieved for all new retail development and that design respects and enhances the specific characteristics of the different towns and villages in the County. 7.4.9 Re-Use & Regeneration of Derelict & Underutilised Land & Buildings Re-use and regeneration of derelict/obsolete/underutilised land and buildings in town and village centres is a sustainable and desirable objective. In the context of the County, regeneration and renewal are particularly important in town and village centres as they will help achieve preservation and restoration of the character and quality of the centres, particularly in terms of vernacular/historical architecture, scale, height, density and massing. The potential for the re-use and regeneration of derelict buildings and brownfield or underutilised sites in town/village/smaller centre locations should be promoted in the formulation of retail and mixed-use development proposals. Only where suitable, available and viable land and buildings cannot be found should alternative options be considered by applicants. To deliver the achievement of these principles, it is the policy of the Council: GR15 To identify obsolete and potential renewal areas and to encourage and facilitate the re-use and regeneration of derelict land and buildings in the County’s main towns, villages and smaller centres. The Council will use its statutory powers, where appropriate, to facilitate this and consider such buildings and lands for inclusion in the Register of Derelict Sites. GR16 To work with landowners and development interests to pursue the potential of suitable, available and viable land and buildings for retail and other town centre uses across all centres in the County Retail Hierarchy. 7.4.10 Retailing & Tourism & Leisure The specific policies for the main centres in the County serve to highlight the importance of tourism in the economies of these towns and this extends across Westmeath as a whole. To date, the full retail dimension of the County’s tourism economy has not been harnessed. As this is of considerable importance to the wider Westmeath economy, retail-related tourism requires to develop a greater critical mass and profile, in the interests of the attraction and competitiveness of the County. To develop and better harness this potential, it is the policy of the Council: GR17 To encourage and facilitate the development of retailing in the tourism and leisure sectors, subject to protecting these assets and amenities from insensitive and inappropriate development.
- Appendix 4 Westmeath County Retail Strategy Westmeath County Development Plan 2021-2017 lxxvii GR18 To encourage and facilitate the delivery of tourism related retail developments and initiatives, subject to compliance with the Strategy’s objectives and assessment criteria. 7.4.11 Non-Retail Uses in Core Retail Areas The Terms of Reference for the review of the 2007 Strategy and the preparation of this Strategy indicated concern in regard of the overprovision of lower order services within the town centre areas of the main centres of the County and that this was impacting on the characteristics and ambience of these centres. These lower order services were identified as take-aways and betting offices. However, there is a wider range of retail and non- retail uses which also contribute to the potential undermining of the retail heart of these centres. These include amusement/gaming arcades, budget shops, charity shops, telephone/mobile shops and business and financial services. It is recognised that in the majority of the County’s main central areas the retail footprints do not meet the requirements of national and international operators and the space provides the opportunity for the introduction of alternative occupiers, often without a planning application for a change of use being required. To maintain the integrity, critical mass of quality retail activity, viability and vitality of Core Retail Areas and other main streets, the Council will seek to discourage an overconcentration of the aforementioned uses in prime retail areas. To achieve this objective, it is the policy of the Council: GR19 To prohibit the development of amusement/gaming arcades as they are considered to be an undesirable use and potentially detrimental to the business and commercial environment of centres in the County. GR20 To discourage where possible within its statutory powers the introduction of nonretail and lower grade retail uses in the Core Retail Areas and central areas of the main centres in Westmeath in the interests of maintaining and sustaining the retail attraction of the County’s centres. 7.4.12 Markets The 2007 Strategy recognised that markets are a popular form of traditional retailing which meet local shopping needs, often with a range of other specialist and tourism-related shopping. It advised that it would be appropriate for the Council to develop and initiate a Market’s Strategy for Mullingar and Athlone. This initiative has not been progressed at a strategic level but Farmers Markets (Mullingar, Moate and Clonmellon), a Food and Village Market (Athlone) and Christmas Markets (all the main centres with the exception of Kinnegad) operate within the County. Quality markets are key attractors to centres and greatly add to their vibrancy and ambience. The scope and potential for the County to have a sustainable and quality network of markets, not solely restricted to Mullingar and Athlone, requires to be examined and developed building on the market town heritage of Westmeath. This potential is specifically highlighted in the County Development Plan in respect of Moate and Kinnegad. To harness this potential, it is the policy of the Council:
- Appendix 4 Westmeath County Retail Strategy Westmeath County Development Plan 2021-2017 lxxviii GR21 To support and develop, in association with leading organisations in the County’s main towns and other centres, an integrated Markets Strategy for the County. GR22 To encourage and facilitate the development and attraction of quality town markets selling indigenous products in towns and villages at all levels of the County Retail Hierarchy, in recognition of their potential to sustain and increase the attractiveness of these centres. 7.4.13 Casual Trading In contrast to Farmers’ Markets, those which would come under the banner of Casual Trading are not considered to be the image and attraction sought for the town and village centres of the County. In addition to not having the ambience of Farmers’ Markets, they are viewed as creating adverse environmental effects such as noise, litter and traffic congestion. To seek to redress this, the Council will carry out its statutory functions under the Casual Trading Act 1995, including the issuing of permits and the designation of Casual Trading Areas where the Council considers these to be necessary. In recognition of the prevailing issues, it is the policy of the Council: GR23 To prosecute in situations where the Casual Trading Act 1995 is being contravened. GR24 To take cognisance of the proper and sustainable development of the County’s towns and villages, including the preservation and improvement of amenities, the safety and convenience of pedestrians, the traffic likely to be generated by Casual Trading and the promotion of tourism. 7.4.14 Innovation in the County’s Retail Offer After the boom years in retail development, following the impact of the recession, there remains caution in CSO and ESRI forecasts on whether the retail sector achieves the level and profile of its expansion years in the last decade. This noted, to ensure that the County sustains and enhances its attraction and competitiveness as a retail destination, it must be proactive and responsive in respect of innovation in retailing and new retail market trends. The Council has demonstrated its commitment to looking at innovative concepts and formats through its granting of planning permission for Phase 1 of the major Europe China Trading Hub to be located just outside Athlone. Although progress on the proposal has not emerged to date, the approach adopted by the Council is the way in which the County can maximise its competitiveness and capitalise on its strategic location at the centre of the country. Therefore, encouraging and facilitating innovation, be that in trading format, location or product, will assist the County to build on the success that has been established to date and, consequently, its retail profile and attraction. To ensure this remains a strategic component in the development of Westmeath’s retail and tourism profile and competitiveness, it is the policy of the Council: GR25 To encourage and facilitate innovation in the County’s retail offer and attraction.
- Appendix 4 Westmeath County Retail Strategy Westmeath County Development Plan 2021-2017 lxxix GR26 To review and monitor retail trends that could have an influence on the performance of the sector within Westmeath and pursue harnessing new concepts and formats in the County’s retail structure. 7.4.15 Garden Centres & Agri-Business Diversification The profile and mixed-use diversification of existing and new garden centres and agri-businesses has been an increasing trend over the last decade in the County and across the country as a whole. The Council in principle supports this, as both contribute to the economies of Westmeath’s rural areas. However, through their expansion and diversification, such developments should not become alternatives to small town and village centres, as this could impact on the viable sustainability of existing retail and non-retail services, businesses and the expansion of these offers in the County’s smaller rural centres. Sustaining, protecting and enhancing the vitality, viability and attraction of small towns and villages in the County is a priority of the Council and proposals that could undermine this will be resisted. To assure such proposals do not have the potential to adversely affect small rural centres, it is the policy of the Council: GR27 To seek comprehensive details, such as RIA/RIS and other appropriate information, for all proposals for new garden centres or agri-businesses or extensions to either (which include retail and restaurant/café floorspace) to enable assessment of their potential impact on nearby small towns and villages. 7.4.16 Petrol Filling Stations The GRP 2012 reinforced that the size of retail units associated with petrol filling stations should not exceed 100m2 net. Where permission is sought for floorspace in excess of 100m2 in retail units associated with petrol filling stations, 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. In addition, there has been development pressure for non-retail food takeaways and cafes at filling stations which have the potential to adversely affect smaller town and rural centres through trade diversion. In respect of the latter, this is highlighted as a concern of the Council. To be consistent with the guidance in the GRP 2012 and limit the range and function of petrol filling stations, it is the policy of the Council: GR28 To restrict the size of any retail units associated with petrol filling stations to 100m2 of net retail floor area and ensure that any proposals above this threshold will be subject to the Sequential Approach. GR29 To prohibit food takeaway outlets and cafes in petrol filling stations if not located in a designated centre.
- Appendix 4 Westmeath County Retail Strategy Westmeath County Development Plan 2021-2017 lxxx 7.5 Criteria for Assessment of Retail Proposals The development management process is fundamental to the delivery of an effective County Retail Strategy. In accordance with the requirements of the GRP 2012, the Strategy identifies the development management criteria for the assessment of retail developments. These criteria apply to the assessment of what is considered significant retail development in the context of the County’s towns and villages. Development thresholds for rural counties, such as Westmeath, generally distinguish between what should be applied to major centres and what is appropriate at lower levels in the County Retail Hierarchy. This is the approach adopted with regards threshold levels, which is as follows: Athlone and Mullingar: developments of 1,000m² gross convenience and 2,000m² gross comparison will be tested by the assessment criteria All Other Centres: proposals for 500m² gross convenience and comparison developments will be assessed against the criteria. Applications for significant retail development will be assessed in accordance with the following criteria and whether or not the proposal will: i) Support the long-term strategy for town and village centres in the County Retail Hierarchy, as established in the Strategy, and not materially diminish the prospect of attracting the private sector into one or more such centres; ii) Have the potential to increase employment opportunities and promote site and centre sustainable economic regeneration in both urban and rural centres across all levels of the County Retail Hierarchy; iii) Have the potential to increase the competitiveness of the County regionally, nationally and internationally, as appropriate, and thereby attract further consumers/shoppers to the County and its towns and villages; iv) Respond to consumer demand for its retail offering and not diminish the range of activities that all centres across the County Retail Hierarchy can support and sustain; v) Cause an adverse impact on one or more centres in the County Retail Hierarchy, either singly or cumulatively with recent developments, outstanding permissions (which have a realistic prospect of implementation) or those which are at an advanced stage in the planning process, sufficient to undermine the quality of the centre or its wider function in the promotion and encouragement of the arts, culture, leisure and public realm, all of which are critical to the economic and social life of communities in the County; vi) Cause an increase in the number of vacant properties within the designated Core Retail Area or central area of settlements at the higher levels of the County Retail Hierarchy but also generally in respect of the smaller, more rural, centres in the County; vii) Ensure a high standard of access by public transport, foot, bicycle and private car so that the proposal is easily accessible by all sections of society. Specifically, details of proposed Mobility Management Measures should be provided which outline how the proposed development could both improve accessibility of retail areas while aiming to contribute to the development of pedestrian and cyclist friendly centre environments and a vibrant street/village life. These criteria are on the whole directed at applications in the County’s main retail centres in recognition that communities in centres and areas in the more
- Appendix 4 Westmeath County Retail Strategy Westmeath County Development Plan 2021-2017 lxxxi rural parts of Westmeath are highly reliant on the private car given both the lack of public transport and the distances involved; and viii) Link effectively with the town/village centre in which the development is proposed so that there is likely to be commercial synergy. In addition, the Council will seek that applications for new retail developments address and provide evidence in respect of the following: The relationship of the application to any Development Plan/Local Area Plan allocations. Assessment of the proposal against the tests of the Sequential Approach with all other options being considered. Under the Sequential Approach, the following criteria require to be addressed: If a brownfield town or village centre site is not being promoted in the application, it should be demonstrated that all town or village centre options have been fully evaluated and that flexibility has been adopted with regard to the retail format In all cases, the site should offer the optimum accessibility by all transport modes, including walking and cycling, and this is generally best achieved within town or village centres. There is demonstrable qualitative and quantitative need for the proposal, and it is in accordance with the centre’s role and level in the County Retail Hierarchy. In respect of quantitative need, this should be derived from the expenditure capacity within the relevant catchment area which should be appropriate to the nature and quantum of the retail floorspace proposed. All applications should provide details of the methodology applied and the source inputs to the capacity assessment. The baseline information and capacity/impact assessment is fit for purpose and transparent. Its contribution to town/village centre improvement through quality of design, public realm interventions and integration. Its contribution to site and/or area regeneration. Its role in sustaining rural communities. The extent to which it is relevant to consider the imposition of restrictions on the nature and range of goods permitted for sale. The Council will consider hours of operation in assessing planning applications for retail development and may attach conditions restricting same. In making applications for retail development above the Strategy defined thresholds, applicants should ensure that the proposal addresses and demonstrates compliance with above assessment criteria. This is a requirement set down in the GRP 2012. If the retail proposal, whether significant or not, is in compliance with County Development Plan and Local Area Plan policies and proposals in all material respects, it should expect to be met with approval. In accordance with the GRP 2012, in such instances, it should not be necessary for the applicant to provide additional supporting background studies. However, the onus is on the applicant to demonstrate convincingly that the proposal does comply with these plans as
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