The Scottish Government

NPPG 8 Town Centres and Retailing

Planning series:

• National Planning Policy Guidelines (NPPGs) provide statements of Government policy on nationally important land use and other planning matters, supported where appropriate by a locational framework.
• Circulars, which also provide statements of Government policy, contain guidance on policy implementation through legislative or procedural change.
• Planning Advice Notes (PANs) provide advice on good practice and other relevant information.

Statements of Government policy contained in NPPGs and Circulars may, so far as relevant, be material considerations to be taken into account in development plan preparation and development control.

introduction

1. This National Planning Policy Guideline (NPPG) sets out the Government's policy for town centres and retail developments. It also addresses other non-retailing uses which have a role in contributing to the economic health and enhancement of the town centre. The NPPG defines the factors that the Secretary of State will have in mind when considering policies and development proposals that come before him. Planning authorities are expected to take its contents into account in preparing their development plans and in undertaking their development control responsibilities.

2. It replaces the previous version of NPPG 8 Retailing, published in April 1996. While the underlying policy thrust remains unaltered, this revised version of NPPG 8 Town Centres and Retailing offers further clarification of the Government's commitment to town centres to ensure a more consistent interpretation of the policy principles. It also extends the policy to commercial leisure developments. The Glossary of Terms defines the different forms of development and types of location used in this NPPG.

Policy context

3. Shopping is an essential part of life for most people in Scotland, serving both their everyday needs, and providing more specialist goods. It also has important links to tourism and leisure activities. Retailing is in turn an important economic activity in the service sector, providing over 214,000 full and part-time jobs in Scotland as well as economic benefits to both the local and national economies

4. The Government has put sustainable development at the heart of its domestic and international policies. It takes the view that it embraces economic growth and social progress as well as concern for the environment. This is reflected in the Government's commitment to promoting economic activity by establishing favourable economic conditions for the market to exploit. As part of its policies related to welfare to work and overcoming social exclusion, it wants as many as possible to take advantage of the changes in retailing and leisure, and to ensure that most people, including the disabled, have access to them. Promotion of and greater reliance on public transport will form part of this approach. Furthermore, concern about environmental change has resulted in challenging global, international and national commitments, while protection and improvement of the natural and built environment continues to be a priority at a domestic and international level.

5. Having regard to these wider objectives, the Government has adopted planning policies which promote sustainable development by supporting the regeneration of urban areas, particularly town centres, reuse previously developed sites, protect green belt or countryside. Moreover, as part of its integrated transport policy, the Government expects development to be located where there is better access by public transport, walking and cycling and less dependence on access by car. It attaches importance to air quality and recognises that traffic is the dominant source of pollution in urban areas.

6. Government policy gives particular weight to the environmental quality of our cities and towns, and is strongly of the view that the economic and social consequences of urban decay are unacceptable. The quality of the urban environment and urban life should encourage people to want to live and work there. The Government is committed to land use policies which ensure that retailing and major commercial leisure developments are suitably located and designed, and provide a catalyst for economic, social, and environmental benefits for the community at large.

7. Accordingly, the Government's broad policy objectives are:

• to sustain and enhance the vitality, viability and design quality of town centres, as the most appropriate location for retailing and other related activities ;
• to maintain an efficient, competitive and innovative retail sector offering consumer choice, consistent with the overall commitment to town centres; and
• to ensure that ways of meeting these objectives are compatible with sustainable development and, in particular, that new developments are located where there are good public transport services, and better access for those walking and cycling, leading to less dependence on access by car.

policy guidelines: general principles

8. The Government is committed to protecting and enhancing the vitality and viability of town centres. They offer a range, quality and convenience of services and activities that are attractive not only to the local population and visitors but also to investors. Despite recent pressures, they retain many natural advantages for shopping, leisure and employment. Shops in particular make an important contribution to their character. Town centres have a key role in contributing to the quality of life in urban areas and provide an important focus in rural areas, allowing both urban and rural communities to benefit from competition between retailers and types of retailing. Sustaining their vitality and viability depends on continuing investment in new schemes and refurbishments and a positive and a proactive approach by planning authorities, in partnership with other public sector agencies and the private sector, in the identification and development of suitable sites. Furthermore, a range of uses other than shopping should be encouraged to locate within the town centre, including commercial leisure developments.

Town centre - in this Guideline, the term "town centre" is used to cover city, town and district centres, irrespective of size, which provide a broad range of facilities and services and which fulfil a function as a focus for both the community and public transport. It excludes retail parks, neighbourhood centres or small parades of shops of purely local significance.

9. Protecting and enhancing town centres is therefore a key consideration which underpins Government policy. In considering whether there is a requirement for additional retail and other developments, planning authorities are expected to reflect the primacy of town centres and promote comprehensive policies and proposals for sustaining them, both through development plans and development control decisions. In support of this policy, planning authorities should adopt a sequential approach to selecting sites for new development, with first preference always being given to development opportunities in town centres. Details of the sequential approach are set out in paragraphs 12-16.

10. Cities and most towns in Scotland are now served by a range of recent major retail and commercial leisure developments developed during the 1980s and 1990s and often located on sites outwith town centres. Given the importance attached to town centres, the scope for further such developments is likely to be more limited. Where proposals for further developments are not in accordance with the approved development plan, they should be refused if the considerations set out in paragraph 45 cannot be met.

11. Furthermore, new retail and commercial leisure developments should not lead to greater dependence on the car, and should be easily accessible by a choice of means of transport, including regular and frequent public transport services. This important requirement reinforces the principle that town centres should be the preferred locations for major generators of travel, where access is easy and convenient.

Sequential Approach

12. Planning authorities and developers should adopt a sequential approach to selecting sites for new retail, commercial leisure developments and other key town centre uses (see also paragraphs 38 and 76-77). First preference should be for town centre sites, where sites or buildings suitable for conversion are available, followed by edge-of-centre sites, and only then by out-of-centre sites in locations that are, or can be made easily accessible by a choice of means of transport. The sequential approach should apply to all food and comparison shopping as well as other attractions and facilities usually found in town centres, unless guidance in this NPPG or the development plan provides for a particular exception.

13. In support of town centres as the first choice, the Government recognises that the application of the sequential approach requires flexibility and realism from developers and retailers as well as planning authorities In preparing their proposals developers and retailers should have regard to the format, design, scale of the development, and the amount of car parking in relation to the circumstances of the particular town centre. In addition they should also address the need to identify and assemble sites which can meet not only their requirements, but in a manner sympathetic to the town setting. As part of such an approach, they should consider the scope for accommodating the proposed development in a different built form, and where appropriate adjusting or sub-dividing large proposals, in order that their scale might offer a better fit with existing development in the town centre. The scope for converting existing vacant and under-used premises in the town centre should be addressed as part of this approach. Consideration should also be given to whether the range of goods to be sold, including, say, bulky, electrical and fashion goods, could be retailed from a town centre or edge-of-centre site, in some cases in a different manner.

14. Planning authorities should also be responsive to the needs of retailers and other town centre businesses. In consultation with the private sector, they should assist in identifying sites in the town centre which could be suitable and viable, for example, in terms of size and siting for the proposed use, and are likely to become available in a reasonable time, for example, within the plan period or 5 years, where the plan period is short or silent on the matter. There may also be sites in town centres which are currently subject to constraint. The planning authority should indicate whether, how and when the constraints could be resolved, for example, by assisting in land assembly.

Out-of-centre - A location that is separate from a town centre but within the urban area, including programmed extensions in approved or adopted development plans.

15. Only if it can be demonstrated that all town centre options have been thoroughly addressed and a view taken on availability, should less central sites in out-of-centre locations be considered for key town centre uses. Where development proposals in such locations fall outwith the development plan framework, it is for developers to demonstrate that town centre and edge-of-centre options have been thoroughly assessed. Even where a developer, as part of a sequential approach, demonstrates an out-of-centre location to be the most appropriate, the impact on the vitality and viability of existing centres still has to be shown to be acceptable. Furthermore, the development should be easily accessible by a choice of means of transport and not be dependent on access solely or mainly by car. The majority of customers and staff in the forecast catchment area should be served by networks for walking and cycling and regular and frequent public transport services.

16. The principles underlying the sequential approach apply also to proposals to expand, or change the use of existing out-of-centre developments, where the proposals are of such a size or type that they would result in a change to their character as determined by the development plan.

Competition and Choice

17. A key Government aim is to ensure the availability of a wide range of shops, employment, services and facilities to which people have easy access by a choice of transport. By focusing development, particularly retail development, in locations where the proximity of other businesses facilitates competition, all consumers are able to benefit. Such an approach also reflects the Government's commitment to encouraging the development of attractive and convenient urban areas in which people want to live and work. Retailing and commercial leisure industries should generally be able to respond to consumer needs and demands. The public can then enjoy the benefits of improved choice and lower prices that may flow both from the competition provided by new retail and other developments and between competing centres.

18. Equally, the effects of competition should not be such as to deny access to retail and other facilities for significant sectors of society or to undermine existing centres which are currently serving the community well, or where programmed improvements to town centres give them a reasonable prospect of meeting community needs. Development plans should facilitate innovation in the retail and leisure sectors, particularly in town centres, and other locations accessible to all sectors of society. They should indicate whether there are particular deficiencies which cannot be met within, or adjacent to, town centres; and if so, the location of such deficiencies, and the criteria against which any such new proposals will be assessed.

Minimising Transport Impacts

19. The Government looks to the planning system to support and assist in delivering its integrated transport policy. New retail and commercial leisure developments should therefore be in locations which support more sustainable transport choices and reduce the need to travel. They should be accessible by direct, attractive, safe, and secure walking and cycling routes, as well as by regular and frequent public transport services, in addition to the car. Locating developments in or next to existing town centres will ensure that a range of shopping and other facilities can be reached for those without access to a car. Other centres may also be well served by public transport services and provide convenient access.

Promoting Quality

20. One of the key functions of the planning system is to improve environmental quality by promoting good urban and building design. The Government wishes to encourage new developments to be of high design quality and in harmony with their surroundings. NPPG 1 The Planning System (paragraphs 70 to 73) indicates that the relationship of a development to its surroundings and its appearance are material considerations to be taken into account in determining planning applications and appeals. Local plans should provide guidance on broad design matters. In larger centres an urban design analysis should be undertaken to provide a framework for local plan policies.

21. City and town centres should incorporate the best principles of urban design. Well designed shopping and other developments, together with public spaces, have an important role in maintaining and improving the environmental quality and attractiveness of existing centres. Integrating new retail and commercial leisure developments into existing city and town centres requires particular care, paying attention to their surroundings and the character of the centre; in some circumstances their size may be of an unacceptable scale in certain centres.

22. Better environmental quality may also require improvements to shopfront design, signage, and streetscape, including the quality, design, co-ordination and maintenance of street furniture, and paving materials. Where appropriate, planning authorities should draw up policies and supplementary planning guidance.

23. It will be particularly important, when maintaining and improving the essential historical character of towns, to develop a centre's individuality and to create a sense of local identity and place. This can be achieved by emphasising local heritage features, creating distinctive places in the town centre and by promoting events which make use of the centre's attributes. Where appropriate, it can be further emphasised by encouraging the rehabilitation and re-use of existing buildings.

24. Because of their size and scale, large new developments outside existing town centres can have a significant visual impact on the wider urban scene. Integrating such developments with long established development provides a particular challenge to developers. This has not always been achieved successfully, for example, in the case of some retail parks. There is a need to ensure that the size, scale, height, use of materials and colour of new developments, together with any parking, safety and security requirements, add to rather than detract from the environmental quality in urban areas. The provision of soft landscaping will often be very important in this respect, but will not be sufficient to redeem the damage done by inappropriate siting, scale or materials. Poor design or inappropriate materials may not always be consistent with safety and security and may be conducive to opportunistic crime. Where improvements to the design and quality of the development cannot be achieved through discussion, inadequate design should be regarded as a valid reason for refusal of planning permission.

policy guidelines: town centres

25. The town centre is the focus of a range of commercial and community activities, resulting in a mix of, often interdependent, land uses which contribute to a sense of place and identity. It includes a combination of natural features; listed buildings; cultural, civic and governmental buildings; as well as public spaces. This physical form and mix of functions, which will have evolved over a considerable period of time, makes a town centre different from a mere shopping centre and provides much of its character. It also has a high level of accessibility to employment, services, and facilities for all the community

26. But as shopping still largely underpins the use and value of town centres, and makes a major contribution to their vitality and viability, it is important that they retain retailing as the core function. Considerable investment has already taken place in town centres and planning policies should seek to sustain and enhance their role, including new retailing developments and other key uses. Planning authorities should also have regard to the value of maintaining retailing in smaller centres, as well as the role of local shops in villages and neighbourhoods, when drawing up their policies for inclusion in development plans and when considering applications for new developments.

Vitality and Viability

27. The concept of vitality and viability is central to maintaining and enhancing town centres. It will depend on many factors, including the range and quality of activities in a centre, its mix of uses, its accessibility to people living and working in the area and its general amenity, appearance and safety. Although no single indicator can effectively measure the health of a town centre, the use of a series of them, as described in figure 1 below, can provide a view of performance and so offer a framework for assessing vitality and viability. In this way, the strengths and weaknesses of town centres can be analysed systematically and planning authorities will be able to ascertain how well centres are performing in terms of their attraction, accessibility and amenity. Such health checks should both inform and be undertaken within the framework provided by the development plan. Planning authorities, in keeping their area under review, should collect information on key town centre uses, including sites which may be suitable and may become available for retail and other non retail uses, with or without rehabilitation or redevelopment.

FIGURE 1: MEASURING VITALITY AND VIABILITY

Vitality is a measure of how busy a centre is and viability is a measure of its capacity to attract ongoing investment, for maintenance, improvement and adaption to changing needs. Together, they can give an indication of the health of a town centre. Various indicators can be used to provide an effective insight into the performance of a centre and so offer a framework for assessing vitality and viability, for example:

• Pedestrian flow (footfall) measures the numbers and movement of people on the streets. Counts should be collected on a consistent basis over a period of time, at different locations and times.
• Prime rental values provide a measure of the relative position of locations or streets within a centre and give an indication of retailer desire to locate within an area.
• Space in use for different town centre functions and how it has changed.
• Retailer representation and intentions; particularly by national multiples.
• Commercial yield. Generally, the lower the yield the more confidence that investors have in the long term profitability of the centre. Although a valuable indicator of retail viability, it needs to be used with care, as, in part, it reflects a developer's, rather than a retailer's, interest in locating in an area.
• Vacancy rates, particularly street level vacancy in prime retail areas.
• Physical structure of the centre, including opportunities and constraints, and its accessibility.
• Periodic surveys of consumers.
• Crime - co-operation with the local police Architectural Liaison Service can assist in identifying persistent or potential problems in an area.

Further information about vitality and viability is included in: 'Vital and Viable Town Centres: Meeting the Challenge' DoE 1994 HMSO £25 (ISBN 0-11-752943-5).

28. If the indicators show that a centre may be 'at risk', it will be necessary to find responses which make better use of the centre's resources and address major deficiencies. A multi-disciplinary strategic approach should consider the centre as a whole. It should aim for a realistic vision for the centre, drawing on the support of all interested parties and an action programme that mobilises resources and promotes effective town centre management. Particular attention should be paid to:

• the availability of development opportunities and the need to promote land assembly;
• encouraging a diversity of uses in the town centre throughout the day and evening;
• ensuring accessibility by a range of transport types, including reviewing the car parking strategy;
• creating an attractive and safe town centre for pedestrians; and
• undertaking effective management and promotion of the town centre.

29. Planning policies which seek to preserve the present shopping hierarchy without regard to the environmental and other problems in existing centres are no substitute for policies which address the problems and provide the basis for positive action to improve their quality and competitiveness. Improvements can enable existing centres to develop their role as a focus for comparison and leisure shopping and in doing so become more attractive to shoppers and visitors. Comparison shopping, notably fashion, clothes and gift merchandise, has a particular role in maintaining a healthy and vibrant town centre and planning authorities should through their development plans provide positively for its continued location there. Development plans also have an important role in promoting a co-ordinated and long-term view of town centres, identifying the land use measures necessary to improve and maintain their future viability as well as environmental quality.

30. Convenience food supermarkets and food superstores often play a vital role as an anchor store in maintaining the quality and range of shopping in existing centres. In these locations they also provide an essential service for the less mobile members of the community. Convenience food shopping should where feasible continue to be an important element of retailing in many town centres, including smaller towns and district centres.

31. Where a town centre site is not available or not suitable in terms of size, parking, traffic generation, or where there could be difficulties in providing servicing arrangements for large scale developments in the town centre itself, for example, in small or historic towns, an edge-of-centre site adjacent to the town centre should be the preferred alternative, since it should enable those shopping at the foodstore to walk to the town centre for other business. In this way it enables one trip to serve several purposes. In order to maintain and strengthen the adjoining town centre, this may require the reuse of derelict land or the redevelopment of suitable sites on the edge of the centre, enabling less favoured and neglected areas to be brought back into use.

32. Some town centres may be under challenge and showing early signs of decline. Where such centres have failed to benefit from recent investment that may have been attracted to other competing centres and locations, or to attract sufficient custom, a different approach may be necessary. Although these town centres would clearly benefit from modernisation and refurbishment, authorities should be realistic in their expectations. Attempts to go back to past patterns of use, against the market trends that led to deterioration, may not always succeed and in some circumstances it could be necessary for planning authorities to manage the decline in the relative importance of the centre.

Town Centre Strategy

33. Failure to improve town centres will make them more vulnerable to the competitive challenges presented by new forms of retailing in other nearby town centres or out-of-centre locations. Planning authorities should therefore adopt a proactive role towards town centre change and improvement. Working in partnership with retailers, other development interests, private investors, public agencies, infrastructure providers and the community, they should agree an overall strategy for the town centre, indicating the scope for change, renewal and diversification. These issues are discussed in the following paragraphs, focused around the likely main components of a town centre strategy.

34. Positive action to promote change may include the identification of development opportunities, site assembly, better access for public transport, cyclists and pedestrians, and environmental improvements including improving the attractiveness of townscape and open spaces. Renewal opportunities may also arise where underused property and land might be brought back into more productive use through joint action. Improved town centre management, could also help in the co-ordination and implementation of a range of activities in support of the strategy.

Diversity of Use

35. Change and renewal will be much enhanced if it can take advantage of the wide diversity of town centre uses and activities. The variety of shops and other uses available, the range of services provided, the choices offered and the commercial and customer activity generated, can all contribute to maintaining the vitality and viability of town centres. As indicated above, comparison shopping, particularly for fashion and specialist goods, is an important function of many town centres. Small and specialised shops can also add variety and draw on the concentration of customers attracted to larger stores. Other activities, particularly residential, leisure and recreational uses and, where appropriate, tourism can bring life into the town centre throughout the day and evening. Development plan policies should provide for diversity, and where appropriate be tailored to the type and size of centre.

36. The location of small businesses, housing or offices in or near town centres and the occupation of flats above shops can also increase activity, while ensuring that buildings are kept in good repair. The residents and workers stimulate shopping, restaurants and cafes, and other businesses to serve them, and so in turn add to vitality. In those town centres that contain vacant office and retail premises that seem unlikely to be reused for these purposes, planning authorities should encourage conversion to other service, retail or residential uses. Such buildings, especially older office buildings originally converted from houses and under-used space above shops, may be particularly suitable for conversion to flats. To encourage conversion, local authorities may need to adjust car parking standards to reflect the particular circumstances in the centre, for example, seeking and accepting lower provision for residential flatted development.

Mixed Use Developments

37. In exercising their planning powers, planning authorities should encourage diversification of uses in the town centre as a whole. The appropriate mix of uses will depend on the nature and size of the town. As part of this mix, uses such as restaurants and eating places, banks and building societies provide a variety of essential services in town centres. However, a concentration of particular uses such as restaurants may, in some circumstances, cause local problems. Positive contribution to diversification should be considered alongside the cumulative effects such as parking and the effect on residential amenity.

Other Key Town Centre Uses

38. Town centres are easily accessible by public transport, and therefore are not only the best location for new shopping but also for related uses which attract many people. Other uses contribute to the economic health, character and overall attraction of the town centre. Planning authorities should seek to encourage on appropriate town centre sites, uses which need to be accessible to a large number of people, for example, commercial leisure and entertainment (including cinemas and theatres), offices, health care, higher education and tourism. In the absence of suitable and readily available town centre sites, developers and planning authorities should rigorously examine the scope for redevelopment, including modifying the built form of the proposed development to fit a possible town centre location. Only if that proves impossible would edge-of-centre sites or other sites easily accessible by public transport be appropriate. Additional guidance on commercial leisure developments is set out at paragraphs 76-77.

Changes of Use

39. Sustaining the vitality of shopping areas depends on flexibility in the use of retail floor space. The need to apply for planning permission for changes of use between a number of essentially similar activities found in town centres is removed by the Town and Country Planning (General Permitted Development) (Scotland) Order 1992. This grants planning permission for certain changes of use, as defined in the Town and Country Planning (Use Classes)(Scotland) Order 1997, as follows:

• to Class 1 (shops) from Classes 2 (financial, professional and other services) and 3 (food and drink); and from use for the sale or display for sale of motor vehicles to Class 1 (shops), where the floor area of the building is not more than 235 sq. metres; and
• to Class 2 (financial, professional, and other services) from Class 3 (food and drink).

Owners and tenants can therefore respond to changing demands with greater speed than was previously possible. Changes which came into force on 2 February 1998 remove the use of a hot food take-away from Class 3 (food and drink). Further details are set out in SODD Circular 1/1998.

Accessible Town Centres

40. Retailing and other uses in town centres are major generators of journeys by both public and private transport and the vitality and viability of a centre's economy is usually dependent on the availability of both public transport and provision for shoppers and other visitors travelling by car. New development in town centres can not only encourage the use of public transport, but also enable one car journey to serve several purposes, thus reducing the overall amount of car use. Planning authorities should consider the traffic generation and congestion implications of land use proposals when preparing development plans and deciding individual planning applications, with a view to ensuring that an appropriate mix of opportunities for convenient access are available in support of the town centre strategy.

41. The scope and opportunity for the greater use of public transport is a long term challenge, but choosing accessible sites in town centres for retail and related developments now, can facilitate that process. In the meantime, ensuring good access to town centres is important in order to maintain the competitiveness of town centres. Heavy demand for access by car also generates demand for parking spaces which can create congestion, pollution and parking problems, affecting the convenience, attractiveness and competitiveness of the centres. Local authorities should :

• develop a comprehensive traffic management strategy, and in particular establish clear parking policies, which give priority to good quality, well located short stay parking for visitors to the town centre and reduce the level of long term parking;
• ensure that parking provision serves the need of the town centre as a whole, rather than exclusive use of a particular building;
• work with public transport operators to improve services;
• meet the access and mobility needs of disabled people; and
• improve access and safety for cyclists and for those visitors on foot.

Attractive and Safe Pedestrian Environment

42. Local authorities should take a positive and active role in enabling town centre enhancements which achieve an attractive, safe and secure environment for all shoppers and visitors. Improvements, designed to put the pedestrian first, will contribute to making town centres safer, healthier and more attractive. Where this is linked to a traffic management strategy referred to in paragraph 41, it will help to reduce air pollution. In particular, they should :

• provide convenient and well-managed access for shoppers and other users, including the disabled (whether by public transport, by car, by cycle or on foot), including the provision of good quality short stay car parking for shoppers;
• improve links between transport interchanges, car parks and the town centre ; and
• provide opportunities for special activities, such as markets and cultural events.

The careful design of a safe, secure and attractive environment is particularly important for people with disabilities including those in wheelchairs, the elderly and parents with young children.

Town Centre Management

43. There is increasing evidence that effective management and promotion of town centres brings positive benefits. Often there are significant differences between towns with town centre management and those without it. Town centre management programmes can lead to improvements in a wide range of services and activities which help to maintain and enhance the attractiveness and vitality of centres. Accordingly, such programmes should form part of a wider commitment and partnership between local authorities, retailers and other private sector and community interests. They should be based on a long term town centre strategy agreed by both public and private sectors, supported by ongoing monitoring of its health to ensure lasting success. Such actions can ensure added value through co-ordinated delivery of services for which the local authority has responsibility. Additional information on town centre management and other issues will be included in forthcoming guidance on town centres.

assessing new developments

44. During the 1980s and 1990s there has been investment in town centres, but more significantly there has also been growth in new forms of retail and commercial leisure developments outwith traditional centres, such as food superstores and retail parks. Cities and most towns in Scotland are now served by a range of recent major developments and others approved or under construction, often in out-of-centre locations. Where Planning Authorities consider there to be a requirement for further new developments or the expansion of existing developments, development plan policies and proposals should indicate the location, scale of additional floorspace and type of development appropriate. Such policies or proposals should be consistent with the general policies in this NPPG, including the particular considerations set out in paragraph 45 below. Accordingly, applications for further new, or expansions to existing, major retail and commercial leisure developments, should initially be assessed as to whether they are consistent with the development plan. Where there is considered to be no requirement for further developments, additional sites should not be identified in the development plan.

45. Where a proposed development is not consistent with the development plan, it is for the developer to demonstrate why an exception to policy should be made. Such proposals should be rigorously assessed by the planning authority against the policies set out in this NPPG and should be refused if all the following considerations cannot be met. The proposed development should :-

1. satisfy the sequential approach;
2. not affect adversely, either on its own or in association with other built or approved developments, the development plan strategy in support of the town centre, taking account of progress being made on its implementation, including through public and private investment;
3. be capable of co-existing with the town centre without individually or cumulatively undermining its vitality and viability, if necessary supported by planning conditions limiting, for example, floorspace or the range of goods sold or the level of car parking; and should not lead to changes to the quality, attractiveness and character of the town centre, affecting the range and types of shops and services that the town centre would be able to provide, or undermine leisure, entertainment and the evening economy;
4. tackle deficiencies in qualitative or quantitative terms which cannot be met in or at the edge of the town centre;
5. not run counter to the Government's integrated transport policy. Locations for major growth and travel generating uses, including retail and commercial leisure developments, should be easily and safely accessible by a choice of means of transport providing a network of walking, cycle and public transport routes, which link with the forecast catchment population, in addition to the car. Consideration should be given to whether the development would have an effect on travel patterns, car use and air pollution ;
6. be, or able to be made, easily accessible by existing regular, frequent and convenient public transport services. Such services should be available from the time of opening of the development and, where possible, improved over its life. Planning agreements may be used to secure such accessibility in appropriate circumstances;
7. address at the developer's expense the consequences to the trunk and local road networks of the generated and redistributed traffic resulting from the development proposal. In certain circumstances the impact may not be restricted to junctions and road lengths adjacent to the development;
8. result in a high standard of design, ensuring the built form, scale, materials and colour contribute positively to the overall environmental quality and attractiveness of the urban area, and should not, for example, result in sporadic and isolated development, especially along major road corridors;
9. not threaten or conflict with other important policy objectives e.g. green belt, urban regeneration, the loss of good quality industrial or business sites; or where priority is being given to the reuse of vacant or derelict land, the development should, in all other respects, provide an appropriate location for the proposed development;
10. not affect adversely local amenity; and:
11. not lead to other significant environmental effects.

46. As with new developments, the expansion of existing developments should be judged against the Government's objectives of sustaining and enhancing existing town centres. Unless the proposed expansion accords with the strategy set out in the development plan which provides for further development, it should be assessed against the considerations in paragraph 45 above. The presence of an established development should not in itself set a precedent or provide the justification where such expansion would be inconsistent with the development plan and/or the policy principles in this NPPG.

47. Where a proposal for the expansion of an existing individual out-of-centre retail store is of a small scale, it may not have a significant effect. Nevertheless, it should be assessed against the development plan strategy and the principles in this NPPG, ensuring that where the expansion is approved, the scale of the increased floorspace does not result in a significant change to the retail or transport impacts of the original development.

48. When determining an application for the renewal of an existing planning permission that has lapsed, planning authorities should determine the application in accordance with the up-to-date development plan policies and, where such policies are no longer relevant, with due regard to policy in this NPPG. This may mean that planning permissions for such applications, which do not accord with up-to-date policy, are not renewed.

Other Considerations

49. In order to assist the planning authority in its assessment of the development proposal including its impact on the town and other centres within the forecast catchment of the development, all applications for major retail developments over 2,500 square metres gross retail floorspace and commercial leisure developments should be supported by information provided by the developer which enables the authority to address the issues set out in paragraph 45 above. Information may also be necessary for smaller scale proposals, including some within town centres where they could have a large impact on the centre and surrounding small rural settlements. Depending upon the scale of the proposal and whether there are significant environmental effects, some of these matters may be covered in an Environmental Assessment (see paragraphs 96 and 97), and by information collected on the health of town centres (see paragraph 27 and figure 1).

50. In making an assessment, a broad based approach should be adopted. It should rarely be necessary to attempt detailed calculations or forecasts of retail growth or of changes in the geographical distribution of retailing, as even small variations in assumptions about trends in turnover, population, expenditure and the efficiency of use of existing retail floorspace can lead to a wide range of forecasts. Parties should where possible agree data and present information on areas of dispute in a succinct and comparable form.

51. Account should also be taken of the likely effect of the development proposal on small rural settlements, and locally important neighbourhood centres. Developers should be required to address this aspect and provide the planning authority with relevant information.

52. The planning authority may consider that the developer should prepare a transport impact assessment to address a range of matters, including items e, f, and g in paragraph 45. Further guidance on transport impact assessment is set out in the NPPG and PAN : Transport and Planning. While the use of the private car should be accommodated in the range of possible transport types, the expectation should be that there will be a choice of other forms of transport, including public transport coming directly into or past the development, for the majority of customers and staff to reach the development. Where public transport is not adequate to serve major travel-generating development proposals, developers should ensure that improved access by means other than the car will be made available to coincide with the opening of the development. Such improved access should be sustained and, where possible, improved over the life of the development.

Use of Conditions

53. Developments may change their character and composition over time, including extensions in trading hours. Planning conditions can in the light of local circumstances be used to ensure that a development does not subsequently change its nature and extent in a manner which could be detrimental to the vitality and viability of an existing centre. Any conditions imposed should apply only to the main ranges of goods e.g. food and convenience goods, hardware, electrical, furniture and carpets, and should not seek to control details of particular products. Furthermore, where a new or expanded development will be located in or close to an existing residential area and extended trading hours are proposed, conditions may be appropriate in the interests of residential amenity, for example, by specifying the hours of trading or access for service vehicles. Further guidance on the tests for conditions is set out in SODD Circular 4/1998. The imposition of conditions does not imply changes should not take place over time, but the proposed changes should be scrutinised against the policy in this NPPG and the development plan.

supplementary guidance for particular retail and leisure developments

54. In order that planning applications can be handled on a consistent basis, additional guidance in relation to particular types of development is set out in the following paragraphs

New Regional Shopping Centres

55. Experience has shown that new shopping centres, of 50,000 square metres of floor space or more, often referred to as regional shopping centres, can have a substantial impact over a wide area. In some cases their development can lead to significant levels of trade diversion from existing centres, jeopardising investment in those centres and also encouraging excessive traffic growth. Whereas a proposal for such a development at Braehead was approved on appeal in 1990 following careful examination of its potential impact, other proposals of this scale were dismissed on appeal. Decisions in the late 1980s in relation to proposals at Bathgate and Newhouse indicated that there would be a significant impact on nearby town centres. Given the scale of the majority of town centres in Scotland, the development of further new regional centres in Scotland would not be consistent with this Guideline, and planning permission should be refused unless all the considerations set out in paragraph 45 can be resolved satisfactorily.

New District Shopping Centres

56. The case for new district centres within the urban area should be set out within an agreed strategy for retailing in development plans, consistent with the requirements in paragraph 45. Proposals for new district shopping centres should not exceed a maximum of 30,000 square metres gross, although outside the cities a smaller size is likely to be more appropriate.

Retail Parks

57. There has been significant growth in the number of retail parks in Scotland since the mid-1980s. In the past, such parks provided space for large showrooms, selling bulky electrical, furniture and DIY goods, which a town centre could not always accommodate. However, the nature of the products sold is changing, with the recent advent of retail warehouses selling shoes, household goods, toys, clothes, leisure goods, and pets and pets produce. Because the sale of such goods continues to be an important function of larger town centres there is greater potential for impact on them.

58. If making provision in development plans for further retail parks or expansion of existing parks, or in considering individual applications, planning authorities will need to be clear about how such proposals fit into the pattern of shopping centres, as well as the nature of the goods to be sold, in order that account can be taken of any implications for existing centres. Where justified through policies in the development plan, which take account of local circumstances, it may be necessary to impose planning conditions, to control the main ranges of goods sold (see paragraph 53). The development of further retail parks or the expansion of existing retail parks which are not provided for in the development plan, and where such proposals do not meet the considerations set out in paragraph 45, will not be consistent with this guideline.

59. As with other retail developments, planning authorities should also ensure that where further retail parks are provided for, direct and regular access is possible by public transport or improvements to public transport have been negotiated with the developer. Retail parks may also provide a possible location for large foodstores for which there is no suitable site in or at the edge of an existing centre, in preference to a free-standing store.

60. A new retail warehouse, which cannot be accommodated in the town centre or on an edge-of-centre site, and which meets the considerations in paragraph 45, should wherever possible be developed as part of an existing or expanded retail park. Because of their visual impact, the sporadic siting of free-standing retail warehouses along major road corridors should be avoided.

Food Discount Stores

61. Food discount stores have a potential role in extending the choice and range of retailing, particularly for certain sectors of the community. Their customer catchment is different to the mainstream superstores and supermarkets and their trade draw will be different; this will be relevant when assessing impact, although the effect on neighbourhood centres and other shops should also be considered. In land use planning terms they are indistinguishable from most other forms of retailing and therefore planning authorities will normally have no control over the use of existing shops as food discount stores. Re-use of existing non-retail premises in existing centres should be permitted unless there is clear evidence to suggest that there would be a significant impact on the viability of smaller centres, due to the size of the discount store.

Retail Warehouse Clubs

62. Retail warehouse clubs or discount clubs combine elements of cash and carry wholesaling with sales to qualifying members of the public. This balance may vary according to the operator. Despite restrictions on those who may shop in them or the range of goods that can be sold, these outlets often share many of the characteristics of very large retail outlets, in which case they should be treated for the purpose of this guidance as if they were retail businesses and subject to the requirements set out in paragraph 45.

Factory Shops

63. This form of retailing involves the selling of branded products at discount prices in an individual shop usually located as part of or adjacent to the production facility. Such shops, which are an ancillary use to the main manufacturing use, are an established part of the retail scene in parts of Scotland. Further such proposals may be appropriate, provided the scale of the shop does not affect the viability of nearby town centres or raise significant traffic and transport issues, and the industrial area can cope with the number of shoppers attracted. Proposals for individual factory shops within retail warehouse parks at some distance from the place of manufacture should be handled in the same manner as retail warehouses.

Factory Outlet Centres

64. More recent proposals have been for factory outlet centres which include a grouping of factory outlets and other shops, focusing mainly on fashion and other specialist shopping, unrelated to their manufacturing base and generally in out-of-centre locations. Although begun as a means of disposing of surplus stock at the end of the season, they have generally become a mechanism for manufacturers to sell current products direct to the customer. Unless the sale of goods can be regarded as a use incidental to the manufacturing process, such outlets should be treated as normal retail developments and assessed accordingly.

65. The success of these centres depends on drawing customers and visitors from a wide catchment area, including tourists, and there may be implications for existing tourist centres and other town centres, even those some distance from the proposal. In particular, they can lead to the diversion of expenditure on comparison shopping, particularly fashion and specialist goods, from existing established town centres. As indicated in paragraph 31, such shopping has an important role in maintaining a healthy and vibrant town centre and tourist related shopping should be located in or adjacent to the town centre. Having regard to a number of considerations - the impact on existing centres, including those in neighbouring authorities; the traffic and transport implications, including the aim of reducing the need to travel - the development of factory outlet centres in Scotland outside town centres will not be consistent with this Guideline. Similar considerations will also apply to tourist related shopping centres outwith existing town centres.

Shops in Small Towns and Rural Areas

Retailing and Small Shops : August 1997

Research Report by University of Stirling -

Available from The Stationery Office

66. The Government's discussion paper 'Towards a Development Strategy for Rural Scotland' drew attention to the importance of, amongst other things, people living in rural areas having reasonable access to services, including local foodstores, that those living in larger towns take for granted. The importance of village shops and isolated stores, which also perform a community role, was a key finding of research into Retailing and Small Shops. Government policy seeks to promote a healthy rural economy and this should be taken into account by planning authorities when dealing with applications for new retail development or for the change of use of existing shops into dwellings. Planning policies should be supportive of local facilities in small towns and villages which provide an effective and valuable service to the local community.

67. Existing foodstores and supermarkets often play a vital role in maintaining the quality and range of shopping in smaller rural town centres. They also provide an essential service not only to the town itself but often to the surrounding rural hinterland. Such centres should continue to provide not only for food, but also comparison shopping and should be the preferred location, especially for supermarkets. Where rural town centres are not serving the community well, and there is a significant amount of travel by car to other larger centres, then proposals for new retail developments should be encouraged in or near the town centre, in order to reduce travel and retain trade in the town. Where suitable sites are not available to assist in the regeneration of the town centre, edge-of-centre sites may be considered.

68. In small towns and villages there is therefore a clear presumption in favour of central locations for new developments. As elsewhere out-of-centre retail developments should not be allowed if their provision is likely to lead to a reduction in the range of local facilities in towns and villages or affect the diversity of shops or lead to the loss of general food retailing from the centre of smaller towns. Given the potential impact on the variety of shopping in town centres as well as surrounding small settlements and village shops, the scope for superstores and other large scale retail developments is likely to be more limited in smaller rural towns than elsewhere. Where appropriate local plans should indicate the maximum size of store, consistent with maintaining a variety of shops in the centre.

Village Shops

69. The village shop plays a vital economic and social role in rural areas and is important for essential day-to-day needs, particularly for the elderly, disabled and those with no access to a car or poorly served by public transport. Its loss can have a severe impact on the community. The implications for village shops should therefore be fully addressed when planning authorities are assessing new retail development proposals in nearby towns. Planning authorities should adopt a positive approach to applications for conversion to shops and for extensions designed to improve their viability. Their design, and in particular the shop fronts, should be in keeping with the character of the village. The lack of regular public transport services in rural areas should not preclude small-scale retail or service developments where this will serve local needs. Where there are no convenient village shops, shops ancillary to other uses, including farm shops and petrol filling stations, can also serve a vital function in rural areas.

70. Retailing should generally be directed to existing settlements and development in the countryside should be resisted. Exceptionally, retail facilities outside the development limits of settlements and beyond green belts could be acceptable in the following circumstances:

• a farm shop tied to an existing farm;
• a shop designed to serve tourist or recreational facilities, and secondary to the main use;
• a small scale shop attached to an existing or approved craft workshop retailing the product direct to the public; and
• a small scale shop designed to serve a dispersed rural community.

The conversion and reuse of existing buildings should normally be the preferred location for such retail facilities.

Local Shops

71. The need for local shops is as important in urban areas as it is in rural areas. In addition to town centres, smaller neighbourhood centres and local shops can provide an important service, catering particularly for the daily or casual needs of nearby residents or of those passing by. In some cases neighbourhood centres provide a valuable 'walk-in' facility which could help reduce the demand for short car trips in urban areas. Local convenience shops have significant social and economic functions; they offer a particularly important service for those who are less mobile, especially elderly and disabled people, families with small children, and those without access to a car. For example, in peripheral housing estates they may provide the only readily accessible shopping facilities.

72. Equally, post offices and pharmacies are often important local shops, and the inclusion of such non-food retail uses in superstores and other out-of-centre developments nearby may lead to the loss of existing provision important to the local community. Where the planning authority judge such shops to be locally important, they should safeguard them through development plan policies. The planning system, through development plan policies, should also encourage a wide range of facilities, including appropriately sized supermarkets, in smaller centres and set out the role of different centres and the protection each will be accorded

Petrol Filling Stations

73. Petrol filling stations can provide a wide range of retail goods in the associated shop. In rural areas some function as the local shop or small supermarket. Whilst the important role of such provision is recognised, such shops should clearly remain secondary to the use as a petrol filling station.

74. The proposed sale of petrol at superstores in large towns may affect other petrol filling stations in smaller towns and villages in the catchment area and, in doing so, could also affect shops ancillary to rural filling stations which fulfil a useful local role. The potential wider impact should therefore be considered, with full weight being given to maintaining services in surrounding rural areas.

75. New foodstore, small supermarket or fast food outlets are sometimes proposed as part of a petrol filling station. Where they are of scale which is likely to have repercussions for other shopping facilities, they should be assessed with regard to their potential impact on existing facilities. Such developments should only be approved where the additional components would not seriously undermine shopping provision in nearby centres or local village shops, and would be satisfactory in their own right.

Commercial Leisure Schemes

76. As well as retailing developments, the sequential approach applies equally to the location of commercial leisure schemes, such as multi-screen cinemas and bowling alleys, which need to be accessible to a large number of people. Where appropriate sites can be found in or on the edge of town centres, these should be the preferred location for major commercial leisure uses planned in conjunction with complementary uses and parking. Where this is not possible, such developments should be located on sites which can be reached easily by means other than the car, and are well served by regular public transport services, not only during the working day, but also during the evening.

77. In applying the sequential approach, the Government expects developers to be flexible about the scale, format, design, and amount of car parking, and adapt their proposals to local circumstances. Rather than propose developments with a mixture of large scale leisure uses and a large amount of car parking which can only be accommodated in out-of-centre or even out-of-town locations, the developers should demonstrate why they could not develop individual elements of the larger scheme in more central locations, in some cases sub-dividing the proposal, and with less on-site car parking. For their part planning authorities should plan positively for leisure developments in their development plans. In applying the sequential approach, they should be realistic about the suitability of sites and should consult the leisure industry in drawing up their plans. Proposals for multiplex cinemas and other commercial leisure developments which do not meet the requirements of paragraph 45 will not normally be consistent with this guideline.

Combined Retail/Leisure Schemes

78. In considering combined leisure and retail proposals, involving multi-screen cinemas or ice-rinks for example, planning authorities should establish that the retail component in itself is acceptable, in terms of the criteria set out in this NPPG. Likewise, any sport, recreational, leisure element should be acceptable in its own right, and where appropriate accord with the objectives and policies set out in NPPG 11 : Sport, Physical Recreation and Open Space.

Amusement Centres

79. Depending on the type of facility proposed, amusement centres may cause noise and disturbance, and be of concern because of their location and impact on the amenity of neighbourhood, and on vehicular and pedestrian movements and their location and appearance. Generally, they are most appropriately sited in secondary shopping areas, or in areas of mixed commercial development. They are unlikely to be acceptable in primary shopping areas, close to housing, or near schools, places of worship, hospitals and hotels, or where they are likely to affect amenity adversely, especially in conservation areas or other places of special architectural or historic character. They may also be inappropriate below flatted residential property if the amusement centre might give rise to noise and disturbance to the residents of the flatted development above them. Different considerations may arise in resort towns, where the seafront may be the preferred location. The local plan should give appropriate locational guidance where such uses are a significant issue.

80. In granting planning approval, planning authorities should give careful consideration to the nature and extent of any planning conditions which may be appropriate to mitigate the effects. These might include conditions limiting opening hours, or intended to reduce noise (for example, with insulation, self-closing doors, the enclosure of the front of the premises, or the prohibition of external loudspeakers). Account will always need to be taken of the amount of noise already generated in the area. Although it will not normally be reasonable to expect amusement centres to be quieter than their neighbours, account should be taken of the likely impact on the neighbourhood of any disturbance generated.

81. As well as planning permission, premises with amusement-with-prizes machines require a permit from a local authority under the Gaming Act 1968 before they can operate. Local authorities will be aware that planning and licensing are two separate control regimes, intended to address separate issues. Planning applications should be considered on their merits; a permit under the Gaming Act 1968 does not confer any special or particular status in terms of planning legislation.

82. Where a few amusement machines are installed in premises used for other purposes, for example in cafes and hotels, planning permission may not be required if the use is ancillary to the primary use of the building. In cases of doubt, the planning authority should be consulted.

Restaurants, Pubs, Hot Food Outlets

83. Similar considerations in relation to noise and disturbance may also be relevant in relation to restaurants, pubs and hot food shops. It will normally be appropriate for them to be located in existing shopping or commercial areas. Such proposals should be assessed not only on their positive contribution to diversifying uses in existing centres, but also have regard to local problems which could arise from a concentration of such uses. Account should be taken of traffic noise and nuisance, particularly in close proximity to residential areas. Special consideration should be taken of possible impacts on tenement areas, and on listed buildings and conservation areas. In such circumstances it may be appropriate to avoid a proliferation or a clustering in order to minimise disturbance and to protect the amenity of an area. When giving planning approval, it will often be appropriate to apply conditions restricting opening hours.

action required

Development Plans

84. In preparing development plans, planning authorities should take account of the broad forecasts of retail demand, deficiencies in retailing provision (if any), and how the retail sector is likely to respond to that demand over the plan period, by reference to location and type of retailing. Likewise, they should take account of the market demand for other related developments, such as commercial leisure developments. They should, in consultation with business interests and the local community, seek to agree a framework for promoting the retailing and commercial leisure roles of town centres, co-ordinated with their policies on transport, car parking and regeneration. This should lead to a town centre strategy involving the private sector including retailers, leisure operators, property owners and investors, and infrastructure providers, setting out the scope and policies for change, renewal and diversification.

85. Planning authorities should identify and build on the essential qualities of the centre and seek to ensure that it meets the needs of the community it serves. They should take account of the dynamic nature of the retail and leisure industries and the need to make good use of existing infrastructure investment in town centres. In this way, the town centre strategy can then be reflected in the development plan. Important considerations will include:

• the opportunities for growth, improvement or redevelopment (including sites on the edge of centres) and the need to encourage the best use of existing facilities;
• the scope for diversification of uses to broaden the range of town centre activities (see paragraphs 35 to 38);
• accessibility, the impact of traffic, and the availability of public transport (see paragraphs 19 and 40-41);
• the need to retain and improve open space and recreational opportunities;
• the opportunities for housing and offices, particularly in mixed-use developments; and
• scope for adding to the quality of the urban environment.

86. Within that context it should be possible to establish the extent to which the town centre in the first instance, and edge-of-centre in the second instance, can satisfy that demand through development and change. As part of the overall provision, consideration should be given to the role of out-of-centre developments and whether there is a requirement for further such provision. If so, such developments should always be within the overall policy objective of giving priority to, and strengthening and safeguarding, the town centre. The scope for provision of any new out-of-centre development should satisfy the considerations in paragraph 45 and should be incorporated in the development plan for the area.

87. Where appropriate, development plans should take account of the likely impact of major shopping proposals on rural areas. They should also ensure that their policies are compatible with the aim of encouraging sustainable development and generally seek to minimise travel demand for shopping in their locational decisions. In devising policies for the overall retailing and commercial leisure strategies, planning authorities should take account of the existing stock of recently developed floorspace and the likelihood of other approved proposals being developed.

Structure Plans

88. The strategic framework in structure plans should:

• set out the policy for supporting and enhancing town centres, including an assessment of how far the existing town centres might be able to meet the demands for new shopping floorspace and other uses, while contributing to consumer choice and access to new formats;
• indicate whether, as part of the sequential approach, there is scope for retail developments outwith town centres; if so, indicate their scale and general location, ensuring co-ordination with expected housing, employment, or other planned developments, including transport infrastructure; and
• reflect the criteria set out in this guideline against which retail and commercial leisure development proposals outwith town centres should be assessed.

The key diagram should distinguish the types of location to which different policies apply.

Local Plans

89. Local plans should provide local detail and a sharper focus to the structure plan framework. They should:

• assess the performance of individual centres and, as part of the strategy for town centres, indicate their potential for change, improvement or stability;
• aim to safeguard and support existing town centres and other retail facilities, such as local centres and village shops, where they are serving the local community well;
• identify sites, including those suitable and available within a reasonable timescale, for new retail and commercial leisure developments within town centres, and, if appropriate, at the edge-of-centre;
• include criteria based policies to provide guidance to developers who may propose new developments outwith the framework of preferred sites in the development plan, and indicate how such developments will be assessed; and
• include related policies for transport, car parking and for improving the environmental quality of town centres, retail and commercial leisure developments, and specify design criteria and standards against which proposals will be judged, including those in out-of-centre locations.

90. Local plans may also distinguish between primary and secondary frontages in town centres, when different policy approaches are being applied. In each case the plan should set out clear policies for development control decisions on retailing and related development. Plans should also show any areas for special initiatives to improve accessibility for people with disabilities, and for shoppers with prams or pushchairs.

Monitoring of Retail Developments

91. Plans should be soundly based on up-to-date information. Retailing policies and proposals in development plans should therefore be based on a factual assessment of retail developments and trends. Data on the quality, quantity and convenience of retailing in the area and the potential capacity for growth or change in the shopping centres will be important to ensure plan policies and proposals are properly informed. Where appropriate, authorities should maintain time series data on shopping patterns set up by former authorities. The private sector should also be encouraged to help provide information. A useful source of data is the publication Retail Inquiry (Central Statistical Office); Scottish results are produced biennially, and are reported in the Scottish Economic Bulletin (available from The Stationery Office).

92. The validity of any assessment will depend particularly on the quality, quantity and relevance of the information obtained. It is therefore important for an authority to ensure that data are as comprehensive, accurate, and up-to-date as possible. Relevant data might include population change, economic growth or decline, retail floorspace, shop counts, expenditure patterns, car parking, accessibility, pedestrian flows and consumer attitudes.

Notification Arrangements

93. Planning authorities are required by the Town and Country Planning (Notification of Applications) (Scotland) Direction 1997, as amended by the Town and Country Planning (Notification of Applications) (Scotland) Amendment Direction 1998, to notify the Secretary of State when they intend to grant planning permission for:

• development for the purpose of retail shopping comprising an area of 10,000 square metres or more of gross retail floorspace;
• development involving retail sales which is such that the goods for sale are likely to be purchased to a significant extent by persons resident within the area of a local authority area other than that in which the proposed development is to be situated, where the council of the other area, having been consulted, has made representations to the effect that planning permission should not be granted;
• development which the planning authority considers to be a significant departure from an approved structure plan or a local plan approved by the Secretary of State.

94. In addition, the Town and Country Planning (Consultation on Retail Applications) (Scotland) Direction 1996 requires planning authorities to consult other local authorities in respect of any development where the goods and services are likely to be purchased to a significant extent by residents within a local authority area, other than that which the proposed development is to be situated. Further information is set out in SODD Circulars 4/1997 and 15/1998.

95. These Directions are designed to reinforce policy by providing the Secretary of State with the opportunity to call-in applications for his own decision, although the general policy remains that applications will be called-in selectively and normally only where the proposals are of more than local importance.

Environmental Assessment

96. SDD Circular 13/88 advises that the need for an environmental assessment, under the Environmental Assessment (Scotland) Regulations 1988, should be considered in respect of major shopping proposals in the light of the sensitivity of the particular location. For out-of-town schemes an interior floor area threshold of about 20,000 square metres (gross) provides an indication of significance and the need for environmental assessment. This supersedes the threshold in paragraph 18 of Annex C of SDD circular 13/1988. For new retail proposals in urban areas on land that has not been previously intensively developed, a development of more than 10,000 square metres (gross) may require environmental assessment.

97. The Scottish Office has consulted on proposed modifications to the way in which the need for environmental assessment is determined, having regard to the proposed implementation of EC Directive 97/11/EC. Revised indicative thresholds have been proposed and if confirmed, environmental assessment may be required:-

• for new schemes on sites which have not previously been intensively developed where the development would provide a total of more than 10,000 sq. metres of commercial floorspace;
• for the redevelopment of previously developed land for projects such as shopping centres, car parks, multiplex cinemas, where the project is on a scale significantly greater than the previous use of the land; or
• for major non-residential out-of-town developments, such as shopping schemes or leisure developments including multiplex cinemas with a floor area of 10,000 sq. metres gross or more.

In any event a proposal which is listed in Annex II to the Directive and which is likely to have a significant effect on the environment, will require an environmental assessment to be carried out. Further guidance on the implementation of EC Directive 97/11/EC will be issued early in 1999.

notes

98. This NPPG replaces the National Planning Policy Guideline 8 : Retailing published in 1996, which is now withdrawn. Enquiries about the content of this guideline should be addressed to Ken Jobling (tel. 0131-244 7548) / Alan Denham (tel. 0131 244 7528).

99. Further paper copies may be obtained by telephoning 0131-244 7066. A copy of this NPPG is also included on The Scottish Office web site at www.scotland.gov.uk

glossary of terms

This glossary covers both particular forms of retail development and types of retail location. Because retailing is dynamic, it should be noted that new forms of retailing may evolve which are inadequately described by current terminology.

Amusement centres - Buildings used for such activities as bingo halls and clubs, prize bingo centres, amusement-with-prizes machines (for example, fruit machines) and amusement-only machines (pin tables and video games).

Bulky goods - Goods generally sold from retail warehouses where the goods are of such a size that they would normally be taken away by car and not be manageable by customers travelling by foot, cycle or bus (flatpack), or that large, flat areas would be required to display them eg furniture in room sets, or not large individually, but part of a collective purchase which would be bulky eg wallpaper, paint.

Commercial leisure developments - Developments which need to be accessible to a large number of people, such as multi-screen cinemas and bowling alleys.

Comparison shopping - Other shopping not classified as convenience shopping, which the purchaser will compare on the basis of price, quality and quality before a purchase is made eg clothes, fashion, gift merchandise, electrical goods, furniture.

Convenience shopping - Broadly defined as food shopping, drinks, tobacco, newspapers, magazines, and confectionery, purchased regularly for relatively immediate consumption.

Cumulative impact - Combined effect of all out-of-centre developments, developed and proposed, on the town centre, or the effect of such developments on all strategic centres, including the town centre.

District centres - Shopping centres or groups of shops, separate from the town centre, usually containing at least one food supermarket or superstore and non-retail services, such as banks, building societies and restaurants serving suburban areas or smaller settlements.

Edge-of-centre - A location within easy walking distance of the town centre, and usually adjacent to the town centre, and providing parking facilities that serve the centre as well as the store, thus enabling one trip to serve several purposes.

Factory shop - A shop adjacent to the production unit and specialising in the sale of manufacturers' products direct to the public.

Factory outlet centres - Group of shops, usually in out-of-centre locations, specialising in selling seconds and end-of-line goods at discounted prices.

Multi-screen / mulitplex cinemas - A development of a minimum of 5 screens.

Neighbourhood centres - Small groups of shops, typically comprising a newsagent, small supermarket/general grocery store, sub-post office and other small shops of a local nature.

Out-of-centre - A location that is clearly separate from a town centre but within the urban area, including programmed extensions to the urban area in approved or adopted development plans.

Out-of-town - An out-of-centre development on a green field site, or on land not clearly within the current urban boundary.

Regional shopping centres - Out-of-town centres generally of 50,000 square metres gross retail area and larger, typically enclosing a wide range of clothing and other comparison goods.

Retail parks - A single development of at least 3 retail warehouses with associated car parking.

Retail warehouse - A large single-level store specialising in the sale of household goods such as carpets, furniture and electrical goods, and bulky DIY items, catering mainly for car-borne customers and often in out-of-centre locations.

Retail warehouse clubs (or discount clubs) - Generally out-of-centre retailers specialising in bulk sales of reduced price, quality goods in unsophisticated buildings with dedicated car parks. The operator may limit access to businesses, organisations or classes of individual, through membership restrictions.

Supermarkets - Single level, self-service stores selling mainly food, with a trading floorspace of between about 500 and 2,500 square metres, often with their own car parks.

Superstores - Single level, self-service stores selling mainly food, or food and non-food goods, usually with at least 2,500 square metres trading floorspace with dedicated car parks at surface level.

Town centre - In this guideline, the term "town centre" is used to cover city, town and district centres which provide a broad range of facilities and services and which fulfil a function as a focus for both the community and public transport. It excludes retail parks, neighbourhood centres and small parades of shops of purely local significance.

Vitality and viability of town centres - Vitality is a reflection of how busy a centre is at different times and in different parts. Viability is a measure of its capacity to attract ongoing investment, for maintenance, improvement and adaption to changing needs.