Strategic Review of Retail Planning Policy

Transcription

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Strategic Review of Retail Planning Policy
Prepared on behalf of
City and County of Swansea
August 2013
DTZ, a UGL company
One Curzon Street
London
W1J 5HD
www.dtz.com
Contents
1
Introduction
2
2
Out-of-Centre Retailing
3
3
Qualitative Assessment of Retail Hierarchy
21
4
Foodstore Development
39
5
Conclusions and Recommendations
45
Appendices
1
Swansea Enterprise Park: Key Planning History
52
2
Parc Tawe: Key Planning History
57
3
Fforestfach Retail Park: Key Planning History
59
4
Parc Cwmdu: Key Planning History
62
5
Morfa Retail Park: Key Planning History
64
6
Pontardulais Road Retail Park: Key Planning History
68
7
Map of Existing Foodstore Operators
71
8
Existing Foodstore 15 Minute Catchment Drive Time Maps
72
City & County of Swansea:
Strategic Review of Retail
Planning Policy
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1
Introduction
1.1
DTZ has been appointed by The City and County of Swansea Council (the Council) to provide a review
of their current retail planning policy and strategy and to provide recommendations for retail
planning for the administrative area going forward. This includes an assessment of the retail
hierarchy, the impact of out of centre retailing and the importance of prioritising suitable locations
for future retail investment.
1.2
This report follows work previously undertaken by DTZ for the Council, including a Property Analysis
and Development Strategy that underpins the adopted Swansea City Centre Strategic Framework
(SCCSF) Supplementary Planning Guidance (2007). Since publication of the SCCSF, DTZ has been an
advisor to the Council on the changes to the retail and property markets, which have both been
subject to significant fluctuation in recent years. In the retail context, this advice has been clear that
the impact of out-of-town retailing will collectively continue to erode the in-town offer and that it is
only where the quality and quantity of the latter, and associated issues (other uses, accessibility,
parking, environment and the like) are strong, will this not be the case.
1.3
This report has been prepared by DTZ who were commissioned by the Council as part of a consultant
team to review its retail strategy, which also includes retail specialists FSP and consumer insight
specialists Emotional Logic. The analysis provides a detailed evidence base to underpin the Swansea
City Centre regeneration agenda and future policy development. In this respect, one of the main
priorities for the City and County of Swansea is to focus investment in retail and leisure development
in the most sequentially preferable locations. This is in order to significantly improve the vitality and
viability of the City Centre, and to support the complementary regeneration of district centres. The
Council recognise the importance of strengthening their planning policy position to facilitate major
City Centre development, and deterring further out-of-centre retail development and the erosion of
the City Centre and district centre retailing.
1.4
This report reviews the impact of out-of-centre retailing in the City and County of Swansea, the role
and purpose of the identified retail centres and the strategy for managing foodstore planning
applications. In the context of the Council’s adopted planning policy framework and previous
decisions on retail planning applications, the purpose of this analysis is to identify the key issues in
the retail locations across the administrative area and the impact of out-of-centre retailing upon the
Council’s priority to regenerate and strengthen the City Centre as its retail core.
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Out-of-Centre Retailing
Introduction
2.1
This Chapter considers the impact of retailing at locations outside of the City Centre and the
designated district centres within the City and County of Swansea.
2.2
The Chapter comprises a review of the existing planning policy framework for retailing within the
administrative area of Swansea, a review of the available planning history information for out-ofcentre retail parks and consideration of the lawful use of retail premises at Swansea Enterprise Park.
2.3
Conclusions are drawn upon the extent to which out-of-centre retailing is controlled in the current
planning policy context to ensure the prevention of harm to retailing in the City Centre and district
centre locations.
2.4
The extent to which historic planning permissions restrict and set precedents for retail development
at out-of-centre retail parks is also identified. This is in order to understand the context for
development control decisions for such applications in these locations. Conclusions are drawn upon
the extent to which previous planning permissions impact upon the amount and type of out-ofcentre retail park development in the City and County of Swansea.
Planning Policy Context
2.5
Planning policy for retail development in the City and County of Swansea comprises policy at the
national and local level.
2.6
Planning Policy Wales (“PPW”) (Edition 5, 2012) contains national planning policies which set the
framework for land use planning across Wales. It is supplemented by Technical Advice Notes (TANs)
including TAN 4: Retailing and Town Centres (1996) which sets out the detailed national planning
policy for retail development in Wales.
2.7
Strategic planning policies and proposals for the unitary authority area are contained in the adopted
City and County of Swansea Unitary Development Plan (UDP) (2008).
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2.8
Relevant adopted Supplementary Planning Guidance (SPG) is contained within pre-UDP SPGs,
published prior to the adoption of the UDP, and post-UDP SPGs, published after the adoption of the
UDP. The UDP takes precedence over the former, which include the Swansea Enterprise Park
Planning Policies SPG (1996). The latter include the District Centres, Local Centres and Community
Facilities SPG (2010) and the Swansea City Centre Strategic Framework SPG (2007), which was
formally adopted as SPG in 2009.
2.9
In terms of emerging planning policy, the Council are at the initial stages in the preparation of the
City and County of Swansea Local Development Plan (“LDP”), which will replace the UDP when
adopted.
2.10 The Council consulted on the LDP Strategic Options Consultation Draft (2012) and LDP Vision and
Objectives Consultation Draft (2012) documents from July to October 2012. These documents
respectively comprise potential strategic development options upon which the LDP could focus and
potential overarching aims of the LDP to underpin the strategic options.
2.11 The Draft LDP has not yet been published for consultation by the Council. The forthcoming stages of
the LDP will include the publication of the LDP Preferred Strategy in 2013, followed by the LDP
Deposit Plan. The Preferred Strategy will identify the Council’s proposed way forward in strategic
planning terms by identifying the proposed scale of population and household growth and key
drivers for the plan, including aspirations for economic growth. It will set out the overall spatial
development strategy for Swansea, the key strategic development areas and the broad strategic
policies.
2.12 The LDP Deposit Plan will identify the Council’s proposed land allocations and build upon the
strategic policies of the LDP Preferred Strategy to set out detailed policies and proposals for the
future development and protection of land within Swansea. The Deposit Plan is not anticipated to be
published until 2015.
2.13 This report reviews adopted planning policy and makes recommendations for which elements need
to be changed to ensure an appropriate and sustainable balance of retail development across the
City and County of Swansea in locations outside of the City Centre. This is in order to ensure the
establishment of a successful retail hierarchy in Swansea, which cascades down from the City Centre
as the priority location for high street A1 retailing. These recommendations feed into the suggested
new planning policies for inclusion in the LDP to form a new retail strategy for the City and County of
Swansea set out in Chapter 5 of this report.
National Planning Policy
2.14 Chapter 10 of Planning Policy Wales (“PPW”) contains national planning policy for retailing and town
centres.
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2.15 Key objectives of PPW are to promote established town and district centres as the most appropriate
locations for retail, leisure and complimentary uses, including enhancing their vitality, attractiveness
and viability. In this respect, PPW promotes the restoration of redundant buildings and public realm
improvements in existing town and district centres (para. 10.2.5).
2.16 The accessibility of town and district centres by public transport, walking and cycling is a central and
“essential” objective of PPW (para. 10.1.1 and 10.2.6). It further states that “access by car and shortterm parking can also help centres to compete with existing out-of-centre locations, but they should
be managed to minimise congestion, pollution and parking problems which would otherwise reduce
the convenience, attractiveness or competitiveness of these centres” (para. 10.2.6).
2.17 PPW seeks for “development plans to identify changing pressures and opportunities and devise
appropriate responses to them” and to “identify measures to reinvigorate centres, or to manage
decline in the relative importance of a centre as other centres expand” (para. 10.2.1).
2.18 With regard to the allocation of sites for retail development, PPW seeks for retail and leisure uses
which need to be accessible to a large number of people to be located in town centres and for
“smaller scale retail provision, including appropriately sized supermarkets, [and] leisure facilities” to
be located in district and town centres (para. 10.2.9).
2.19
A key consideration in the allocation of sites for retail development is whether there is a need for
additional provision. Quantitative need should be given precedence before qualitative need is
considered, and “where the current provision appears to be adequate in quantity, the need for further
allocations must be fully justified in the plan”. Such justification could include where: the proposal
supports the strategy and objectives of PPW and the LDP; the site is in a highly accessible location
which would contribute to a reduction in car journeys; the proposal would contribute to the colocation of facilities in and vitality of existing town and district centres; and where the scheme would
alleviate a lack of convenience provision in a disadvantaged area (para. 10.2.10).
2.20 Where there is an identifiable need for new retail development, local planning authorities are
required to adopt a sequential approach, with a preference for town centre locations, then edge-ofcentre sites, then district centre sites and only then out-of-centre sites which are accessible by a
range of transport choices.
2.21 Floorspace, convenience, attractiveness, quality and traffic should all be taken into account when
allocating sites for retail development (para. 10.2.12).
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2.22 With regard to planning applications for retail and leisure schemes best located in a town centre,
PPW seeks that the following matters are taken into account: compatibility with the up to date
development plan strategy; need for the scheme (unless the application is in relation to a site in a
defined centre or site allocation); the sequential approach; impact upon existing centres; “net gains
in floorspace where redevelopment is involved, and whether or not it is like-for-like in terms of
comparison or convenience”; the take-up rate of allocated sites; accessibility by a range of transport
modes; impact upon travel patterns; and the “best use of land close to any transport hub, in terms of
density and mixed use” (para. 10.3.1).
2.23
Where need is a consideration for planning applications for retail development, PPW requires
precedence to be accorded to establishing quantitative need. It further states that the decision
maker must justify the weight given to any qualitative assessment. Moreover, “regeneration and
additional employment benefits are not considered qualitative need factors in retail policy terms,
though they may be a material consideration in making a decision on a planning application” (para.
10.3.3).
2.24
PPW requires that local planning authorities retain an adequate level of food shopping provision in
existing town and district centres and states that out-of-centre food supermarkets is not permissible
if this would lead to the loss of general food retailing in the centre of smaller towns (para. 10.3.8).
2.25 Where appropriate edge-of-centre or out-of-centre retail developments are approved, local planning
authorities are required to place conditions on the initial permission and on any subsequent variation
allowed. This is to control any future aspirations that retailers might have “to change the range of
goods they sell or the nature of the sales area, for example by subdivision to a mix of smaller units, or
to a single ‘department’ store” or to redevelop, extend or add mezzanine floors to the retail unit”.
Furthermore, “applications to remove or vary such conditions should be considered in accordance
with” (para. 10.3.11).
2.26
Where suitable sites for bulky goods retail uses are not available in town centres, PPW seeks for
these to be located at edge-of-centre sites, or where these are not available, at locations accessible
by a range of transport modes. Retail parks are only considered to be appropriate where they are
accessible to public and private transport (para. 10.3.12).
2.27 With regard to applications to renew planning permission for retail, leisure and other uses best
located in town centres, PPW seeks that these are determined in accordance with the up-to-date
development plan, PPW and the sequential approach (para. 10.3.16).
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2.28 TAN4 reflects the need for a sequential approach and requires that all applications for retail
developments of over 2,500 sq m are accompanied by a Retail Impact Assessment. It also requires
car parking standards to achieve an adequate level of town centre parking to reflect the range of
town centre uses the range and level of public transport alternatives.
Unitary Development Plan
2.29 Adopted UDP planning policy defines locations outside the City Centre as being those set out in the
first three columns of Table 2.1 below:
Traditional District
Centre
Modern District
Centre
Employment Location
with a ‘Retail Zone’
Other Retail
Locations Not
Identified in Planning
Policy*
• Parc Cwmdu
• Parc Morfa
• Pontardulais Road
Retail Park
• Clydach
• Parc Fforestfach
• Swansea Enterprise
Park
• Gorseinon
• Killay
• Morriston
• Mumbles
• Pontarddulais
• Sketty
• Uplands
Table 2.1: Retail Locations outside the City Centre Identified in Adopted Planning Policy
(Source: Swansea UDP (2008) and the Swansea City Centre Strategic Framework SPG (2007))
* Whilst retailing also occurs at other out-of-centre locations other than those listed in column 4 of Table 2.1,
only the above locations are considered to have sufficient critical mass and cohesiveness to warrant
classification as specific retail destinations going forward.
2.30 In addition, retailing in the City and County of Swansea takes place at Parc Tawe, which is defined
within adopted planning policy as forming part of the City Centre, however in practice this acts as an
edge-of-centre retail park. These locations are reviewed in detail in Chapter 3.
2.31 The UDP Spatial Strategy promotes as its primary focus the reinvigoration of the City Centre and
waterfront, and also seeks to ensure appropriate levels of growth at urban settlements across the
County to stimulate the regeneration of old industrial communities. A core element of this strategy
is “to develop a modern, attractive and vibrant waterfront area integrated with a revitalised City
Centre. Delivering a significant enhancement to retail facilities that reinforces Swansea’s role as a
regional centre will be central to the City Centre revitalisation”.
2.32 Key objectives of the UDP which are relevant to this study are:
•
Objective 2.d: to reinforce and improve the City Centre as a vibrant regional focus for business
and administration, shopping, culture and leisure;
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•
•
Objective 2.e: to improve the range, choice and quality of shopping opportunities accessible for
all sections of the community and visitors to the area; and
Objective 2.f: to resist further out of centre/town retail development.
2.33 Strategic Policy SP6 states that the City Centre will be the primary focus for new retail development
and that the improvement and enhancement of District Shopping Centres will be supported. These
are considered to be the best locations for new retail development and such development will not
generally be supported at out-of-centre sites. Additional edge-of-centre shopping will only be
permissible where it would not prejudice established shopping centres.
2.34 Improving accessibility across the Swansea administrative area is a key strand running through the
UDP. Strategic Policy SP14 favours the location of new development in areas that are highly
accessible by public transport, walking and cycling and which will minimise dependency on the
private car. Sympathetically designed proposals which facilitate sustainable travel choices and
promote accessibility by a range of transport modes are encouraged.
2.35 Need and accessibility are key requirements for new retail development set out in Policy EC4. This
policy states that all new retail development proposals will be assessed against the need for
development and will only be permitted where the site is the most sequentially preferable option.
“There would be no material adverse impact upon the attractiveness, vitality and viability of the City
Centre and other established shopping centres, the proposal is compatible with the function, scale
and character of the centre within or adjacent to which the site is located”. The site is required to be
in a location which is accessible by foot, bicycle, public transport and car and the scheme must
satisfactorily address design, environmental and highway considerations.
2.36 The UDP designates two types of district centres, ‘Traditional’ and ‘Modern’. Traditional District
Centres comprise Clydach, Gorseinon, Killay, Morriston, Mumbles, Pontarddulais, Sketty and
Uplands. Parc Fforestfach Retail Park is designated as a “modern superstore-based district shopping
centre that caters primarily for car borne shoppers”. In practice, it operates as an out-of-centre retail
park which is distinct from and has different characteristics to the other district centres in the
Swansea administrative area.
2.37 With regard to designated district centres, Policy EC5 seeks for development to be of an appropriate
type and scale to maintain or improve the range and quality of shopping facilities within the district
centres, along with improvements to the physical environment and accessibility of such centres for
public transport users, cyclists and pedestrians.
2.38 Policy EC6 seeks for appropriate small-scale local shopping and neighbourhood facilities to be
encouraged in areas of acknowledged deficiency to meet local need.
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2.39 The UDP Strategy Map designates Swansea Enterprise Park as an Employment Location. Within this,
the UDP Proposals Map designates an area as the Enterprise Park ‘Retail Zone’. In the Enterprise
Park Retail Zone, Policy EC7 states that retail development is sought to be restricted to the sale of
“bulky goods items that do not pose a threat to the vitality, attractiveness and viability of the City
Centre and surrounding town [and] district ... centres”. It further states that proposals for new retail
development outside the retail zone will not be permitted. Therefore, at the Enterprise Park, only
bulky goods retailing is permissible within the designated ‘Retail Zone’ and no retailing is to be
allowed outside of the ‘Retail Zone’.
2.40 The UDP seeks for retail warehouses (i.e. bulky goods) to be directed to suitable locations within
existing retail centres first, then to the edge of existing retail centres. Only where such sites are not
available, suitable locations at established retail parks will be considered (Policy EC8).
2.41 Policy EC9 resists retail development in out-of-centre locations, with the exception of: “small scale
local shopping facilities required to meet local needs”, “retail warehouses engaged in the sale of bulky
goods that do not pose a threat to the vitality, attractiveness and viability of the City Centre and
surrounding town and district shopping centres”, units requiring large showrooms and factory outlets
in connection with manufacturing centres on industrial estates.
2.42 Policy CC2 places the highest priority upon enhancing shopping facilities through the refurbishment
and redevelopment of the City Centre retail core. It resists proposals for retail development which
would be detrimental to objectives for the enhancement of this retail core.
2.43 Policy CC3 defines the St. David’s/ Quadrant area as the highest priority for redevelopment in the
City Centre. Proposals that would put its comprehensive retail-led regeneration at risk, or which
would adversely affect the enhancement and redevelopment of shopping facilities elsewhere in the
retail core, will not be supported.
2.44 Parc Tawe comprises two phases, Parc Tawe Phase 1 which lies to the south of the Parc Tawe Link
Road and Parc Tawe Phase 2 which lies to the north of the Parc Tawe Link Road. A wide range of
uses are considered to be appropriate in Parc Tawe Phase 1 by Policy CC4, including retail (A1 and
A3), leisure (D2), hotel (C1), residential (C3), education (D1), office (A2 and B1) and car parking. The
amount of retail (A1 and A3) and leisure (D2) must not exceed 19,000 sq m combined (gross),
however this threshold has already been reached. Opportunities to promote the wider integration of
Parc Tawe with the City Centre are sought. The supporting text to this Policy states that Parc Tawe
Phase 1 is a very important gateway to the City Centre. It further states that “development and
physical improvements will specifically be sought on the Strand/ Quay Parade Frontages whilst
respecting the regeneration initiatives arising from the rest of the City Centre. This will help generate
the activity and viability between Parc Tawe (Phase 1) and the rest of the City Centre”.
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2.45 Policy CC4 refers to Parc Tawe Phase 1 only, however the text supporting this policy recognises that
proposals could come forward for the Parc Tawe Phase 2 site in the longer term and states that such
proposals will be considered on their planning merits in accordance with the UDP and Swansea City
Centre Framework principles (see below). Any scheme at Parc Tawe Phase 2 is required to be
compatible with the proposed comprehensive development for Parc Tawe Phase 1 set out in Policy
CC4 in the short to medium term.
2.46 Improvements to the accessibility of the City Centre are sought by Policy CC6, through:
• Completion of the strategic road network around the City Centre;
• Introduction of further park and ride facilities;
• Improved public transport and bus and rail interchange;
• Improved facilities for taxis;
• Redevelopment of the Quadrant Bus Station;
• Introduction of bus priority measures;
• Introduction of City Centre circular bus route;
• “Broadly maintaining the existing level of car parking to serve the City Centre, whilst
promoting the better management of both on-street and off-street car parking”;
• Improved pedestrian routes through the City Centre and connections with the waterfront;
and
• Provision of facilities to encourage cycling.
2.47 In addition, improvements to car parking provision serving the city centre are sought by Policy CC7.
Supplementary Planning Guidance
2.48 The Swansea City Centre Strategic Framework SPG (2007) shows that the boundary of the City Centre
extends along the River Tawe to the east, Swansea Rail Station marks the northernmost point,
Alexandra Road forms the north western boundary, West Way and County Hall mark its western
edge and Swansea Bay forms the southern boundary. The SPG promotes the creation of a vibrant
mixed-use heart to the City Centre including the St. David’s/ Quadrant area, the Oxford Street/Castle
Square area, Oxford Street West/ West Way area and the Wind Street/ Salubrious Place/ Lower
Princess Way area. In the rest of the City Centre, the SPG promotes the creation of a high quality
“European Boulevard” along Oystermouth Road, Victoria Road and Quay Parade. A key objective is
to connect the City to the waterfront via Paxton Street, the Sailbridge and the Maritime Quarter. The
SPG also promotes developing the identities and complementary roles of all districts including the
Mansel Street/ Alexandra Road area, Kingsway/ Orchard Street area, the High Street and Parc Tawe.
Parc Tawe is identified as a “more recently developed bulky goods retail and leisure area”.
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2.49 The District Centres, Local Centres and Community Facilities SPG (2010) identifies eight district
centres in the City and County of Swansea, including Clydach, Gorseinon, Killay, Morriston,
Mumbles, Pontarddulais, Sketty and Uplands.
2.50 The SPG identifies the primary frontages of core retail activity and secondary frontages of more
mixed commercial character in each District Centre. It promotes the safeguarding of A1 shop units to
ensure that retailing underpins District Centres and promotes sufficient vehicle parking provision.
Where appropriate, A3 food and drink, A2 financial professional services and a complementary mix
of non-retail uses, including B1 offices and D2 leisure facilities are also permitted.
2.51 Significantly, whilst the UDP designates Parc Fforestfach as a ‘modern district centre’, this SPG states
that “this area comprises only 15 units in mainly large format, warehouse style buildings that are
typical of out-of-centre retail parks, together with a large foodstore. It is also supported by a large
area of adjacent free car parking that caters to the needs of the car borne shopper. In view of the
markedly different character and form of Parc Fforestfach as compared to the traditional district
centres identified above, this area has been excluded from the scope of this document”.
2.52 The Swansea Enterprise Park Planning Policies SPG (1996) was prepared prior to the UDP but remains
adopted. The SPG states that Swansea Enterprise Park was originally set up as an Enterprise Zone in
1981 to restore private sector activity to the Lower Swansea Valley by introducing tax benefits and
relaxing or speeding up a number of statutory planning controls. This was to establish an area for
businesses to develop and to create jobs. The Enterprise Zone status came to an end in 1991, leaving
most of the area subject to “normal planning control”.
Planning History
Swansea Enterprise Park
2.53 On 28 December 1978 planning permission was granted for the development of an ‘industrial park’
on ‘land to the south of the A48’ (ref. 2/1/78/1464/03).
2.54 On 21 May 1979, outline planning permission was granted to ‘build industry and ancillary distribution
and warehousing (Use Class III, IV, X)’ on ‘land north of A48, Llansamlet, Swansea’ (ref.
2/1/79/0000/11). For clarification, under the Town and Country Planning General Development
Order 1973, Use Class III related to light industrial uses (now Class B1(c)), Use Class IV related to
general industrial use (now Class B2) and Use Class X related to storage and distribution (now Class
B8). It is not clear whether planning conditions are attached to this permission to restrict the type of
Class B1(c), B2 or B8 development on the site.
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2.55 Swansea Enterprise Park was set up as an Enterprise Zone where relaxed planning controls applied
from 1981 to 1991. The available planning history does not provide clarity on what, if any,
restrictions are placed upon retail warehouse buildings constructed at Swansea Enterprise Park from
1981 to 1991. As the retail units were built as part of the Enterprise Zone, planning permission was
not required and therefore no planning conditions were imposed. As these units have therefore
been established for more than 10 years, we consider that they constitute unrestricted lawful retail
(A1) units, where any type of retailer falling within the A1 use class could occupy these buildings
without applying for planning permission (and thus without consulting the adopted development
plan), should there be no physical alteration of the building occupied.
2.56 Many of the retail warehouses in Swansea Enterprise Park are reaching the end of their operational
life. Planning permission would be required for the construction of a replacement building of the
same or different size and for any alteration to or the extension of the existing building.
2.57 The UDP promotes bulky goods retail in part of the Enterprise Park and resists high street retail at
this location. However if an application were to be submitted to demolish a retail warehouse on the
Enterprise Park and replace it with a new building of the same size to accommodate a high street
retail use, there will need to be a detailed appraisal of the specifics of the application to ascertain
whether it is appropriate for the Council to refuse it on land use terms. Any refusal would need to be
carefully considered due to the lawful unrestricted retail (A1) use on the site. The Council would be
able to consider the application on material grounds such as in design terms, however the extent to
which a redevelopment proposal could be considered entirely afresh would be largely dependent
upon what could be argued is a reasonable ‘fall back’ position for use of the existing building for the
same proposed use. This could vary depending on the nature, siting and location of the building or
buildings in question. Developers are likely to argue that it is indeed unreasonable to refuse an
application on land use grounds when that use is already established and no increase in floorspace is
being proposed.
2.58 The above analysis also applies to proposals for external alterations to (such as to re-clad) an existing
retail unit on the Enterprise Park.
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2.59 If a planning application were to be submitted to replace a retail warehouse on the Enterprise Park
with a building with a larger retail sales area, the issues raised above would again apply for the area
covered by the existing building, however in this situation it is more clear that the Council would
need to assess the retail impact of the additional sales floorspace and must carefully consider this
element of the application in land use terms. The applicant’s submission of a retail impact
assessment is likely to be necessary to assess the impact of the additional element proposed in
comparison to the existing building, although planning policy may only require this if the proposal
exceeds 2,500 sq m. The same applies for an application to extend an existing retail warehouse on
the Enterprise Park. However, the Council’s refusal of any such application on land use grounds is
again problematic for the reasons identified above relating to the long established lawful use
covering the existing retail building. Notwithstanding these problems there are considered to be
very good planning reasons to prevent proliferation of unrestricted A1 retail space as this location in
units that could become attractive to high street occupiers, as described below.
2.60 Due to the former Enterprise Zone status of the area, no planning history exists in the period
between 1981 and 1991. A summary of the planning history relating to retail uses in the Enterprise
Park since 1991 is provided at Appendix 1.
2.61 The extent of unrestricted retail floorspace developed within the former Enterprise Zone and the
implications of this going forward is an important factor in formulating a robust new retail
investment and planning strategy that prioritises the City Centre. The particular area of concern is
the potential for the unregulated occupation of lawful retail units by high street (i.e. non-bulky)
retailers at the Enterprise Park, which is contrary to the prioritisation of the City Centre for such uses
in the UDP.
2.62 The Council own the freehold of the Enterprise Park and therefore as a landowner, have a degree of
control over who they let their retail buildings to.
Parc Tawe
2.63 On 9 June 1987 planning permission was granted for ‘leisure and retail development: multiplex
cinema, public toilets and fast food units’ at North Dock, now known as Parc Tawe Phase 1 (ref.
2/1/87/0656/03). Condition (g) states that ‘the permission now granted for the retail units ... shall
only be used for Class I activity as defined by the Town and Country Planning (Use Classes) Order 1972
and notwithstanding the contents of that Order specifically excludes food and DIY retailing from the
scheme’. Under this Order Class I refers to Class A1, therefore this translates as a Class A1 use
excluding DIY and food retail use (under the current Town and Country Planning (Use Classes) Order
1987 (as amended) in use today) at Parc Tawe Phase 1.
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2.64 In 1996 planning permission was granted for ‘the development of 12,586 sq m of retail (A1) and
restaurant (A3) use plus associated car parking and landscaping’ at Parc Tawe Phase 2 (ref. 95/1363).
On 4 October 1996, planning permission was granted for the ‘development of 12,513 sq m of retail
(class A1) plus associated car parking and servicing (amendment to planning permission 95/1363
approved 17 May 1996)’ at Parc Tawe Phase 2 (ref. 96/0764). The planning conditions attached to
this consent do not include restrictions to the type of Class A1 retail development on the site.
Planning permission 95/1363 was however granted subject to a Section 106 Agreement which
included a floorspace restriction. Clause 3 of the Third Schedule reads: “No unit of accommodation
for use falling within Class A1 of the Town and Country Planning (Use Classes) Order 1987 forming
part of the development shall have or be subdivided such that it has a gross floorspace which is less
than 700 sqm (7,500 sq ft) without the specific consent of the Council”.
2.65 The A1 planning permission (excluding food and DIY) at Parc Tawe Phase 1 and the unrestricted A1
planning permission for Parc Tawe Phase 2 have the same implications as outlined above in relation
to the Retail Zone within the Enterprise Park. In this respect, there are similar concerns with regard
to the risk of high street (i.e. non-bulky) A1 retailers locating at Parc Tawe without the need for
planning consent. This is contrary to the aims of the adopted UDP for Parc Tawe, which although in
the City Centre boundary is sought to be a bulky goods location, with high street retail to be focussed
in the City Centre ‘Retail Core’. There is however some control that can be imposed through the
Section 106 agreement at Parc Tawe Phase 2.
2.66 Key elements of the planning history for Parc Tawe are summarised at Appendix 2.
2.67 The Council own the freehold of Parc Tawe Phase 1 and have a degree of control over leasehold
issues.
Out-of-Centre Retail Parks
2.68 To understand the potential impact of retail parks upon the success of high street A1 retailing in
Swansea City Centre, the key elements of available planning history in relation to key out of centre
retail locations both within and outside the administrative area of the City and County of Swansea
have been reviewed. Summary schedules are attached at Appendices 3 - 6.
Modern District Centre
Other Retail Locations Not Identified in
Planning Policy
• Parc Fforestfach
• Parc Morfa
• Pontardulais Road Retail Park
• Parc Cwmdu
Table 2.2: Out-of-Centre Retail Parks in the City and County of Swansea
(Source: Swansea Unitary Development Plan (2008))
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2.69 Whilst in practice the following retail locations subject to this planning history review have the
characteristics of out-of-centre retail parks (that is, they are located on out-of-centre sites with large
retail warehouse units with a largely A1 retail offer), they are not specifically defined as being such
within current adopted planning policy. As Table 2.2 shows, the UDP identifies Parc Fforestfach as a
‘Modern District Centre’ and the other four locations are not specifically identified as retail locations
in the UDP.
2.70 At Parc Fforestfach, the available planning history shows that on 22 March 1995 outline planning
permission was granted for the ‘erection of retail park, petrol filling station and fast food outlet’ (ref.
94/1331). On 2 August 2000 planning permission was granted for the ‘redevelopment of existing
district shopping centre comprising new Tesco superstore (10,000 square metres gross floor space),
petrol filling station and 8 no linked retail units (11,670 square metres gross floor space), petrol filling
station and 8 service yards and staff car parking areas, alterations to existing access off Pontardulais
Road, closure of existing access off Carmarthen Road, construction of two new accesses of Ffordd
Cynore, off site highway works to Ffordd Cynore and the Pontardulais Road Junction, provision of
1,275 space customer car park, site landscaping and accommodation works (subject to S106
agreement)’ (ref. A00/0366).
2.71 No conditions are attached to either of these decision notices to restrict the type of retail
development. This has the same potential implications as the Retail Zone within the Enterprise Park,
the A1 planning permission (excluding food and DIY) at Parc Tawe Phase 1 and the unrestricted A1
planning permissions for Parc Tawe Phase 2.
2.72 A number of planning applications for new retail units, the extension of retail units, sub-division of
retail units and construction of mezzanine levels within retail units have since been approved. This
regular flow of planning permissions from 2001 to present is summarised in Appendix 3 and indicates
that the expansion of retailing and restaurant/leisure uses at Parc Fforestfach continues to be a
threat to the City Centre, largely due to its designation in the UDP as a Modern District Centre.
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2.73 At Parc Cwmdu, the available planning history shows that planning permission was granted in 1989
for mixed industrial (B1, B2, B8) and retail floorspace, with a limit placed on net retail floorspace of
70,000sq ft (6,500 sq m) (ref 89/0053). Subsequently a proposal for a 23,000 sq ft (2,100 sq m) retail
unit was granted permission and occupied by a low cost foodstore (ref 92/1037). On 22 June 1994
permission was granted for ‘general and light industry (Class B1 and B2) warehousing (Class B8) and
retailing (Class A1 retail floorspace limited to a maximum of 47,000 sq ft)’ (ref. 94/0177). Permission
was granted for the renewal of this planning permission on appeal in 1998 (ref. 98/0042) (see
Appendix 4). The appeal allowed a variation in the outline planning permission by deleting Condition
11, which stated ‘the retail element of the scheme shall be limited to a maximum of 47,000 sq ft gross
retail floorspace. Any A3 uses developed on the site under this or any other permission shall count
against this 47,000 sq ft allocation’. This was substituted with the following wording for Condition
11: ‘the retail element of the scheme shall be limited to a maximum of 4366.3 square metres [47,000
sq ft] gross retail floorspace’ (appeal ref. JWKD/DMW/98/088). Individual planning permissions for
additional retail units followed in 2000 for floorspace of 40,000 sq ft (A00/0377), 10,000 sq ft
(A00/1439) and 11,250 (A00/1578).
2.74 Since the original outline permission for the Cwmdu estate, subsequent planning permissions have
granted in excess of 80,000 sq ft (7,400 sq m) of retail floorspace. The conditions attached to the
various decision notices vary in their ability to restrict the type of retail development. Again,
depending on the conditions attached to each consent, there are potentially similar implications in
relation to the existing units as those within the Enterprise Park Retail Zone, the A1 planning
permission (excluding food and DIY) at Parc Tawe Phase 1 and the unrestricted A1 planning
permissions for Parc Tawe Phase 2 and Parc Fforestfach. It is significant however that the retail
floorspace permitted by the original consent for the site has now been exceeded by subsequent
permissions, which provides the opportunity to restrict any further additional A1 retail floorspace.
2.75 The planning history indicates that there are likely to be further applications to try and further
expand retailing and restaurant/leisure uses at Parc Cwmdu. New retail floorspace at this location
would be a potential threat to the vitality and viability of the City Centre, which is recognised in the
site’s recent planning history records which include a dismissed appeal for a proposed Class A1 retail
unit on a vacant site within the estate. The inspector found that the proposal would be at variance
with national policies and the Council’s policy framework that resists out of centre retailing where
this would compromise efforts to regenerate the city centre.
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2.76 At Parc Morfa, the available planning history shows that planning permission was granted on 28 June
2002 for the ‘construction of sports stadium, leisure facilities (including health club, multi-screen
cinema, ten pin bowling centre, alterations to existing tennis centre, hotel and restaurants) and
provision of enabling retail development, petrol filling station and necessary infrastructure’ (ref.
A00/1410).
2.77 A number of planning conditions are attached to this permission to restrict the type of retailing at
the buildings permitted at Parc Morfa “in order to minimise any adverse impact upon surrounding
shopping centres”. These are:
•
•
•
•
Condition 17, which restricts the following items from being sold at the permitted DIY/
garden centre premises: items of clothing, food and drink, audio and video goods/
equipment, computers, mobile telecommunications equipment, furniture other than selfassembly, flat-pack or garden furniture, sports goods and keep fit equipment;
Condition 18, which states that “the use of Unit 2 (sport retail) is restricted solely to the sale
of sports equipment, sports clothing and footwear, and other sports related goods, and for
the provision of ancillary sports training accommodation. The premises are to be used for no
other retail purpose than that specified (including any other purpose in Class A1 of the
Schedule of the Town and Country Planning (Use Classes) Order 1987)”;
Condition 19, which states that “the use of the non-food retail building will be restricted to
the sale of the following bulky goods: carpets and floor coverings, furniture and ancillary soft
furnishings; gas and electrical goods; DIY/hardware and garden products items; motor
accessories; office furniture; and the sale of goods ancillary thereto. The premises are to be
used for no other retail purpose (including any other purpose in Class A1 of the Schedule of
the Town and Country Planning (Use Classes) Order 1987”; and
Condition 20, which states that “none of the non-food retail units shall be subdivided so that
the gross retail floorspace of a single user is less than 1,000 sq m”.
2.78 In terms of restrictions upon leisure uses, Condition 21 states that “the proposed health and fitness
premises shall be used as a health and fitness club and for no other purpose (including any other
purpose in Class D2 of the Schedule to the Town and Country Planning (Use Classes) Order 1987 ...
without the prior approval in writing of the Local Planning Authority”.
2.79 A number of planning applications for new Use Class A3 restaurant units, the extension of retail
units, subdivision of retail units and relaxation of planning conditions to increase the permissible
floorspace of retail units have been approved since the initial planning permission for Parc Morfa
(ref. A00/1410). This regular flow of approvals from 2002 to present is summarised in Appendix 5
and indicates that the expansion of retailing and restaurant/ leisure uses at Parc Morfa continues to
be a threat to the City Centre.
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2.80 The permitted multi-screen cinema and ten pin bowling centre have not been implemented at Parc
Morfa and the permitted timescale for their delivery under planning permission ref. A00/1410 has
lapsed. There is the risk that this might be viewed as setting a precedent for the development of
leisure uses in this location, however this would pose a threat to the Council’s aspirations for the City
Centre to be the focus for retail and leisure uses. This includes A3 leisure uses that would serve to
significantly enhance the location’s appeal for ‘destination dining’ in preference to the City Centre.
Current levels of A3 appear largely incidental to the retail use but, similar to concerns at other retail
park locations in Swansea, future development that would deliver a greater critical mass of dining
experiences at the retail park could threaten the viability of the City Centre going forward.
2.81 Parc Morfa is not identified as a retail location with the UDP. Any retail application that comes
forward at Parc Morfa in the context of adopted planning policy will therefore be considered against
the general planning policies which resist retail development outside defined retail centres. Any such
application will also be subject to the sequential test and will largely be considered on the basis of
retail need. This is in accordance with national planning policy contained in Planning Policy Wales
(“PPW”) (2012) and Technical Advice Note 4 (“TAN4”).
2.82 The available planning history for Pontardulais Road Retail Park shows that a number of planning
applications have been approved for the construction of mezzanine floors and to increase the range
of goods sold at retail units at Pontardulais Road Retail Park. These are summarised in Appendix 6
and indicate that the expansion of certain forms of retailing at this location continues to be a threat
to the City Centre.
2.83 There are other out of centre locations across Swansea where a retail presence has been established
but they do not necessarily take the form of an established retail park. This includes industrial
locations such as at Garngoch where the further proliferation of retailing could have an adverse
effect on efforts to direct retail investment into the City Centre.
2.84 Parc Trostre and Parc Pemberton are large out-of-centre retail parks, which lie on the edge of
Llanelli, which comprise a mix of non-bulky and bulky A1 and A3 units. These are located outside of
the administrative area of the City and County of Swansea and fall within the remit of
Carmarthenshire County Council, however their catchment extends into the former. Parc Trostre
and Parc Pemberton have experienced significant expansion, including alterations and enhancements
to the retail units in recent years. Continued expansion of these retail parks is a key threat to the
vitality and viability of Swansea City Centre, particularly as they lie outside of the control of the City
and County of Swansea as a local planning authority.
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Reflection
2.85 This section provides a reflection upon the above analysis of adopted planning policy and previous
planning decisions.
2.86 In terms of national planning policy and adopted local planning policy, overall it is clear that the
overarching goal is to prioritise the City Centre, particularly the Retail Core, as the focus for retail
development, followed by district centres then out-of-centre locations.
Complementary
City Centre
District within
City Centre
• Parc Tawe
Traditional
District Centre
•
•
•
•
•
•
•
•
Clydach
Gorseinon
Killay
Morriston
Mumbles
Pontarddulais
Sketty
Uplands
Modern District
Centre
Employment
Location with a
‘Retail Zone’
• Parc
Fforestfach
• Swansea
Enterprise Park
Other Retail
Locations Not
Identified in
Planning Policy
• Parc Cwmdu
• Parc Morfa
• Pontardulais
Road Retail
Park
Table 2.3: Current Definitions of Retail Locations in the City and County of Swansea
(Source: Swansea Unitary Development Plan (2008) and the Swansea City Centre Strategic Framework
Supplementary Planning Guidance (2007))
2.87 Aside from the ‘Retail Core’, the classification of retail locations within adopted planning policy
(shown in the first four columns of Table 2.3) is unclear, particularly terms such as ‘Traditional District
Centres’ and ‘Modern District Centres'.
2.88 Moreover, three established retail locations (shown in the fifth column of Table 2.3) are not
identified within planning policy. Planning applications in these locations are therefore judged upon
their own merits on the basis of general retail planning policies set out in the UDP, rather than more
stringent location-specific policies.
2.89 The current retail hierarchy in the City and County of Swansea is therefore unclear, making the
interpretation and implementation of the overarching policy goals for retailing set out in PPW and
the UDP more difficult. Chapter 5 makes recommendations to redefine the shopping locations in the
administrative area in order to clarify the retail hierarchy and to ensure the achievement of these
goals.
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2.90 Further proliferation of unrestricted A1 retail space at the out of centre locations described above
(including Parc Fforestfach) poses a threat to the future vitality, viability and attractiveness of
Swansea City Centre. The emergence of significant new leisure floorspace (including A3) at these
locations would pose a further threat through the creation of multi-use leisure and dining
destinations which would be more appropriately delivered in the City Centre.
2.91 The existing retail units at Swansea Enterprise Park, Parc Tawe Phase 2, and Parc Fforestfach pose a
particular high risk to the Council’s prioritisation for A1 high street retailers to locate in the City
Centre ‘Retail Core’. These sites do not appear to be restricted to bulky goods by means of extant
planning permissions and are considered attractive locations for high street retailers going forward.
This is a difficult issue for the emerging LDP to address due to the limits of influence for new policies
having regard to permitted development rights.
2.92 The available planning history information for out-of-centre retail parks is a concern as it indicates
planning applications for the expansion of retailing at these locations have continued to be approved
from the date of the original planning permissions to the present date. This includes at Parc
Fforestfach, Pontardulais Road Retail Park, Parc Morfa and Parc Cwmdu. This is therefore a key
threat to retailing (and leisure uses due to those at Parc Morfa) in the City Centre.
2.93 It is clear that all possible measures need to be taken to address these issues at Swansea Enterprise
Park, Parc Tawe and the out-of-centre retail parks to ensure that emphasis is placed upon the
strengthening of retailing in the City Centre supported by the remainder of the (redefined) retail
hierarchy within the administrative area.
2.94 The City and County of Swansea have no planning powers over the out-of-centre retail parks at Parc
Trostre and Parc Pemberton, which fall within the administrative area of Carmarthenshire County
Council. It would be beneficial for the Council to explore avenues of collaborative working and cross
partnership agreements with Carmarthenshire County Council in conjunction with the Welsh
Assembly, particularly in view of Swansea’s proposed role as the driver for the City Region.
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3
Qualitative Assessment of Retail Hierarchy
Introduction
3.1
This section of the report considers Swansea’s retail hierarchy and assesses the role and specific
retail functions of locations outside the City Centre ‘Retail Core’. The assessment covers the retail
locations identified in Table 3.1.
Complementary
City Centre
District within
City Centre
• Parc Tawe
Traditional
District Centre
Modern District
Centre
Employment
Location with a
‘Retail Zone’
Other Retail
Locations Not
Identified in
Planning Policy
• Parc Cwmdu
• Parc Morfa
• Pontardulais
Road Retail
Park
• Clydach
• Parc
• Swansea
Fforestfach
Enterprise Park
• Gorseinon
• Killay
• Morriston
• Mumbles
• Pontarddulais
• Sketty
• Uplands
Table 3.1: Current Definitions of Retail Locations in the City and County of Swansea
(Source: Swansea Unitary Development Plan (2008) and the Swansea City Centre Strategic Framework
Supplementary Planning Guidance (2007))
3.2
In addition to the above locations, retailing within the administrative area of Swansea experiences
significant competition from Parc Trostre Retail Park and Parc Pemberton Retail Park in Llanelli,
which lie outside of the administrative boundary within the remit of Carmarthenshire County
Council. This is a strong pull for shoppers residing in western Swansea. The retail function of Parc
Trostre Retail Park and Parc Pemberton Retail Park is therefore included in this analysis.
3.3
First, the position of the centres within the NSLSP 2011 UK retail location rank is reviewed. Second,
a high level qualitative assessment of the role and purpose of the retail locations is provided in
proforma format, identifying the mix of retail uses in each location and areas of visible deficiency in
convenience goods retail provision and deficiency. This is informed by desk research and a number
of site visits.
3.4
This section concludes by identifying the key issues in each of the identified retail centres and
recommendations to improve retailing at each.
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UK Retail Centre Ranking
3.5
The National Survey of Local Shopping Patterns (NSLSP) is the largest continuous household survey of
consumer shopping destination preferences undertaken in Great Britain. Established in 1995, the
survey has compiled almost 20m responses, creating the largest single database of consumer
shopping destination preferences in the industry, with a further 3m records added annually. The
survey provides a detailed, robust insight into resident and shopping catchments across Great Britain
and allows individual locations to be ranked in a like for like manner.
3.6
By way of a regional comparison, the following table shows that Swansea City Centre is ranked 45.
This compares to Cardiff, Bristol, Carmarthen, Newport and Llanelli city/ town centres, which are
ranked 9, 12, 142, 144 and 237. In this context, Swansea City Centre is therefore a relatively strong
performer at present, though its drop in the rankings show that it is being overtaken by other cities
elsewhere within Great Britain. Cardiff and Bristol, having both experienced significant retail
development in the last 5 years, possess robust positions at the top of the retail rankings. Whilst
providing a strong attraction to their catchment residents, Newport, Carmarthen and Llanelli town
centres do not pose as great a threat to retailing in Swansea City Centre. Development in
Carmarthen has improved its ranking by just 16 places whilst Newport and Llanelli continue to be
overtaken in the retail rankings.
Rank
Rank
City Centre
2009
2011
Cardiff
9
9
Bristol
12
12
Swansea
42
45
Carmarthen
158
142
Newport
136
144
Llanelli
219
237
Table 3.2: Regional Comparison of Retail Rankings
(Source: NSLSP 2009 and 2011)
3.7
In terms of the retail locations outside of the City Centre in the Swansea administrative area and at
Parc Trostre Retail Park in Llanelli, they are ranked as follows:
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Rank
2009
371
531
729
824
1,545
1,609
1,787
Retail Location
Parc Trostre
Parc Fforestfach
Parc Morfa
Morriston
Parc Tawe
Gorseinon
Parc Cwmdu
Rank
2011
261
509
667
No data
1,243
1,715
1,868
Table 3.3: Local Comparison of Retail Rankings
(Source: NSLSP 2009 and 2011)
3.8
The data indicates that locally, Swansea City Centre’s main competitors are the three large out-ofcentre retail parks; Trostre (which improved from 371 to 261 in the 2009-11 period), Parc
Fforestfach, defined as a Modern District Centre in the UDP (which increased from 531 to 509 in the
2009-11 period) and Parc Morfa (which increased from 729 to 667 between 2009 and 2011). Whilst
Parc Tawe currently presents less of a threat this is subject to redevelopment proposals for the site
and restricting high street A1 retail becoming further established at the park. As the NSLSP
historically underweights the role of out-of-centre retail parks generally, the threat these centres
pose to retailing across the City and County of Swansea should not be underestimated. In addition,
as Parc Trostre is located within the administrative area of Carmarthenshire County Council, the
amount of control available to Swansea City Council is likely to be reduced.
3.9
Smaller out-of-centre retail locations and other smaller district centres achieve very low rankings due
to the size of their shopping populations.
Site Appraisals
3.10 The following tables provide a standardised, high level appraisal of the role, function and
performance of each retail location and highlight the key issues pertinent to each.
Parc Tawe
Description of Location
•
•
•
Parc Tawe (Phase 1 & 2) is defined as falling within the City Centre
in current planning policy, in practice it acts as an edge-of-centre
retail park located immediately east of Swansea City Centre.
Comprises a surface car park surrounded by large retail units,
Plantasia (indoor visitor destination, displaying tropical plants) and
a restaurant unit.
Parc Tawe Phase 1 largely acts as an indoor through route for
shoppers who park their cars at Parc Tawe’s public car park and
walk to the City Centre
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•
•
Sainsbury’s supermarket is located to the east
Highly prominent location at a gateway location
UDP Spatial Strategy Map
•
•
Shopping location
Located within the urban waterfront area
UDP Written Statement/
Proposals Map
•
•
•
Located within the City Centre
Located to the east of the designated Retail Core
The Swansea City Centre Strategic Framework SPG (2007)
designates Parc Tawe as being located within the wider City Centre
boundary but as a Complimentary City Centre District where bulky
goods retail and mixed use development would be appropriate. It
states that high street retailing should not be supported at this
location.
Currently no convenience goods retailing at Parc Tawe (although
Sainsbury’s is to the east).
Relevant Supplementary
Planning Guidance (SPG)
Convenience Retail
Shopping
(provision and deficiency)
Comparison Retail
Shopping
•
Food and Drink
•
•
•
Key multiple retailers typically found at retail park locations:
Staples, Mothercare World, Harveys, Toys ‘R’ Us.
Retail units are spread out, with long walking distances between
each.
•
•
•
•
•
Limited take-away units including Joes Ice Cream and ‘Fresh
Donuts’.
Fast food restaurant contained within Ten Pin bowling venue
Odeon Cinema
Ten Pin Bowling Alley
Both are very tired venues, but are popular leisure destinations
Some
Accessibility and Car
Parking
•
Large public car park
Conclusions
•
Declining, ageing and tired retail location acting as a retail park on
the edge of the City Centre.
Would benefit from investment and regeneration to improve the
gateway approach to Swansea City Centre
Planning policy seeks bulky goods retailing only at this location to
avoid negative impacts upon the City Centre Retail Core.
Entertainment, Leisure
and Community Facilities
Vacancies
•
•
Clydach
•
•
•
District centre
Located in north east Swansea
Small retail parade surrounded by residential uses
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•
•
Tired looking retail parade
Would benefit from regeneration
•
N/A
Proposals Map
Convenience Retail
Shopping
Comparison Retail
Shopping
•
Designated Traditional District Centre
•
Key multiple retailers: Co-operative (1,026 sqm/ 11,048 sq ft) and
Spar (floorspace data unavailable)
•
Essential retailing provided by independent retailers.
Food and Drink
•
Independent take-away retailers.
•
Local library.
Vacancies
•
Some.
Parking
•
On street.
Conclusions
•
Would benefit from investment to enhance local retail provision to
benefit the local community and deliver regeneration benefits.
•
•
•
District centre
Located in north west Swansea
It comprises a small retail parade surrounded by residential uses
•
•
Regeneration initiatives promoted
Shopping location
UDP Proposals Map
•
Designated District Shopping Centre
Convenience Retail
Shopping
•
Key multiple retailers: Asda (5,734 sqm/ 61,723 sq ft), Farm Foods
(572 sqm/ 6,157 sq ft) and Sainsbury’s (880 sqm/ 9,400 sq ft)
A small Spar is also located in the middle of the High Street.
Substantial proportion of the convenience retail offer is attributed
to butchers, green grocers, bakers and newsagents, mainly
comprising independent retailers, and one national brand
(Greggs), which serve to complement the area’s comparison retail
offer.
Gorseinon
•
•
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Comparison Retail
Shopping
Food and Drink
•
Range of independent retailers providing essential services.
•
Key multiple retailers: Greggs.
•
None
Vacancies
•
A number of vacant units were evident during the site visit on 5
December 2012.
Vacant units comprise a mix of small ground floor retail units and
the large former Somerfield supermarket.
Given the small and peripheral nature of retailing in Gorseinon,
and its very local catchment, the current proportion of vacant units
is not surprising, particularly given the relatively close proximity
and road and bus links to Parc Fforestfach Retail Park.
Limited off street car parking
On-street
•
•
Parking
•
•
Conclusions
•
•
•
•
•
•
•
District Centre
Located in west Swansea
Tired looking retail parade.
Would benefit from regeneration.
N/A
UDP Written Statement
•
Convenience Retail
Shopping
Comparison Retail
Shopping
•
Key multiple retailers: Co-operative (652 sqm/ 7,027 sq ft) and Cooperative (450 sqm/ 4,800 sq ft)
•
Essential independent retailers.
Food and Drink
•
Independent take-away retailers
Killay
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Vacancies
•
None.
•
Some.
Parking
•
On street and car park to rear of Centre.
Conclusions
•
•
•
•
District Centre
Located in north Swansea
Retail parade of essential local services with poor fascias
surrounded by declining residential area
•
Shopping location
UDP Proposals Map
•
•
•
Morriston
Comparison Retail
Shopping
•
•
Partially falls within Morriston Conservation Area
Key multiple retailers: Asda (9,720 sqm/ 105,000 sq ft), Iceland
(1,627 sqm/ 17,517 sq ft) and Lidl (1,119 sqm/ 12,045 sq ft)
Substantial proportion of the convenience retail offer is attributed
to butchers, green grocers, bakers and newsagents, mainly
comprising independent retailers, and one national brand
(Greggs), which serve to complement the area’s comparison retail
offer.
Key multiple retailer: New Look, Boots, Shoe Zone, Peacocks,
Poundstretcher and Wilkinson.
A number of independent comparison goods retailers
Food and Drink
•
•
Key multiple retailer: Dominos Pizza
A number of independent take-away units and restaurants
•
None
Vacancies
•
•
High proportion of vacancies
The current proportion of vacant units is not surprising, given the
relatively close proximity and road and bus links to Swansea
Enterprise Park.
Convenience Retail
Shopping
•
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Parking
•
•
•
•
Served by a number of bus routes
On-street parking available
Three public car parks
•
•
•
•
District Centre
Retail parade surrounded by residential uses occupied by affluent
local community
Shopping location
UDP Proposals Map
•
•
•
Convenience Retail
Shopping
•
Comparison Retail
Shopping
•
•
Key multiple retailers: Boots
A number of retail boutiques.
Food and Drink
•
•
Key multiple retailers: Costa
A number of boutique comparison retail units
Vacancies
•
Independendent amusement arcade.
•
Some.
Parking
•
•
•
•
•
Served by a number of bus routes
On-street parking available
A number of public car parks
Popular and successful retail location benefiting from tourism.
Would benefit from small scale investment to further enhance the
vibrancy and vitality of retailing.
Conclusions
Mumbles
Conclusions
Mumbles Conservation Area
East Mumbles falls within an Area of Outstanding Natural Beauty
Tennis courts, children’s play area and paddling pool are
designated recreation areas
Key multiple retailers: Co-operative (766 sqm/ 8,254 sq ft) and Cooperative 486 sqm/ 5,234 sq ft)
Planning Policy
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Pontarddulais
•
•
•
•
•
•
•
District Centre
Located in north Swansea
Shopping location
Employment centre
New housing sites promoted
•
Key multiple retailers: Co-operative (640 sqm/ 6,889 sq ft) and
Tesco (4,433 sqm/ 47,725 sq ft)
•
Essential retailing provided by independent retailers.
•
Independent take-away retailers
•
None
Vacancies
•
Some
Parking
•
On street
Conclusions
•
•
•
•
•
District Centre
Shopping location
UDP Proposals Map
•
Convenience Retail
Shopping
•
Key multiple retailers: Sainsbury’s (285 sqm/ 3,077 sq ft) and Tesco
(635 sqm/ 6,835 sq ft).
Proposals Map
Convenience Retail
Shopping
Comparison Retail
Shopping
Food and Drink
Sketty
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Comparison Retail
Shopping
•
Range of essential services provided by independent retailers.
Food and Drink
•
Some local restaurants and takeaways.
•
None
Vacancies
•
Some vacant units
Parking
•
•
•
On a number of bus routes
Public car park
On-street car parking
Conclusions
•
•
•
•
•
District Centre
Shopping location
UDP Proposals Map
•
Convenience Retail
Shopping
Comparison Retail
Shopping
Food and Drink
Vacancies
Parking
•
Key multiple retailers: Sainsbury’s (593 sqm/ 6,387 sq ft) and Tesco
Express (285 sqm/ 4,152 sq ft).
•
•
Key multiple retailers: Boots.
A number of independent comparison retailers.
•
Range of local independent cafes
•
None
•
Some vacant units
•
•
•
•
On a number of bus routes
Limited parking available
On-street car parking
Uplands
Conclusions
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Parc Cwmdu (Retail Park)
•
•
Out-of-centre retail park
Located in east Swansea
Retail warehouses next to a dual carriageway surrounded by
residential uses
Total retail floorspace: 16,440 sqm (source: Goad)
N/A
UDP Proposals Map
•
No designation
Convenience Retail
Shopping
•
Key multiple retailers: Aldi (1,400 sqm/ 15,065 sq ft)
Comparison Retail
Shopping
•
Key multiple retailers include: Home Bargains, Matalan, Pound
Stretcher Extra, Wickes Extra, B&Q,
Food and Drink
•
McDonalds
•
Mecca Bingo
Vacancies
•
Unknown
Parking
Conclusions
•
Free public car parks outside individual stores.
•
•
Tired and aging retail warehouses.
Further investment could create a more attractive retail location
which could be a threat to the future success of the City Centre
and district centres.
•
•
•
Retail warehouse units and large supermarket with large public car
park
Total retail floorspace: 33,680 sq m (source: Goad)
Surrounded by residential uses
Located on a dual carriageway
•
•
•
Parc Fforestfach (Retail Park)
•
•
•
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•
Shopping location
UDP Proposals Map
•
Designated Modern District Shopping Centre
Convenience Retail
Shopping
•
Key multiple retailers: Tesco Extra (11,866 sqm/ 128,000 sq ft)
Comparison Retail
Shopping
•
Key multiple retailers: Marks & Spencer, Next, Home Sense,
Mamas & Papas, Outfit, River Island, Costa, Clarks, Carphone
Warehouse, H&M, Thompson, New Look and Boots.
Food and Drink
•
Pizza Hut
•
•
None
Risk/ threat to Swansea City Centre if leisure uses (such as a
cinema) locate at Parc Fforestfach Retail Park
Vacancies
•
None
Parking
•
Public car park
Conclusions
•
•
Successful and vibrant retail park.
Character is of an out of centre retail park not a district centre as
currently designated
Further investment could create an even more attractive retail
location which could be a threat to the future success of the City
Centre and district centres.
•
Parc Morfa (Retail Park)
•
park
Adjacent to the Liberty Football and Rugby Stadium and residential
uses
•
Sport/ leisure location
UDP Proposals Map
•
No designation
•
•
•
•
•
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Convenience Retail
Shopping
Comparison Retail
Shopping
•
Key multiple retailers: Morrisons (4,600 sqm/ 49,514 sq ft)
•
Key multiple retailers: B&Q, TK Maxx, Next, Boots, Argos, Outfit,
Brantano Shoes, Bensons Beds, New Look, Sports Direct, Game,
Carphone Warehouse.
Risk/ threat to Swansea City Centre if comparison retailing at Parc
Morfa expands further.
•
Food and Drink
•
•
Fast food restaurants: Frankie & Bennies, KFC and Pizza Hut
Coffee shops: Starbucks
•
•
None
cinema) locate at Parc Morfa
Vacancies
•
None.
Parking
•
Free public car park
Conclusions
•
•
•
•
•
•
•
park
Surrounded by residential uses
•
Shopping location
UDP Proposals Map
•
No designation
Convenience Retail
Shopping
•
Marks & Spencer Simply Food (1,115 sq m/ 12,000 sq ft)
Comparison Retail
Shopping
•
Key multiple retailers: Currys, Argos, Laura Ashley, Hooby Craft,
Pound Land, Pets at Home, Carpet Right, Dreams.
Pontardulais Road Retail Park
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Food and Drink
•
•
None.
Risk/ threat to Swansea City Centre if food and drink uses locate at
Pontardulais Road Retail Park.
•
•
None.
cinema) locate at Pontardulais Road Retail Park
Vacancies
•
None.
Parking
•
Conclusions
•
•
•
•
•
•
•
•
Out-of-centre Enterprise Park
Mix of employment and retail warehouse uses
Floorspace in Enterprise Park Retail Zone: 50,000 sqm (gross)
(source: RTM, 2005)
Residential uses located immediately north at LLansamlet
Employment location
UDP Proposals Map
•
Partially designated as Enterprise Park ‘Retail Zone’
Convenience Retail
Shopping
•
Key multiple retailers: Tesco Extra (10,340 sqm/ 111,300 sq ft),
Farm Foods (486 sqm/5,231 sq ft) and Iceland (552 sqm/ 5,945 sq
ft).
Comparison Retail
Shopping
Food and Drink
•
Key multiple retailers include SCS, Home Bargains, Pound World,
Iceland, Farmfoods, Smyths (toy store), Maplin.
•
•
None
Risk/ threat to Swansea City Centre if food and drink uses (such as
a cinema) locate at Swansea Enterprise Park
•
•
Vacancies
•
Simply Gym
cinema) locate at Swansea Enterprise Park
A number of large vacant retail warehouses reaching the end or
their operational use.
Swansea Enterprise Park
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•
Their redevelopment for new retail uses is a risk/ threat to the City
Centre.
Parking
•
•
Individual free public car parks associated with each retail unit.
Some bus links.
Conclusions
•
•
Tired and aging retail warehouses.
Further investment could create a more attractive retail location
which could be a threat to the future success of the City Centre
and district centres.
•
•
•
•
Out-of-centre Retail Park
Mostly high street brands
Acting like a town centre high street – lots of small units in a row
Located in east Llanelli within the administrative area of
Carmarthenshire County Council
Retail warehouse uses with fascias of good quality and 10,789 sqm
supermarket with poor fascia
Located adjacent to Parc Pemberton Retail Park and Parc y Scarlets
Football and Rugby Stadium
Parc Trostre (Retail Park)
•
•
•
•
N/A – located outside of the Swansea administrative area
UDP Proposals Map
•
Convenience Retail
Shopping
•
Key multiple retailers: Tesco Extra (10,789 sqm/ 116,132 sq ft)
Comparison Retail
Shopping
•
Key multiple retailers include: Clarks, New Look, Lakeland, Dreams,
Pets at Home, Outfit, Asda Living, Quicksilver, Debenhams, BHS,
Next, Animal, TK Maxx, Boots, Accessorize, Poundworld, WH
Smith, River Island, Laura Ashley, Poundstretcher, Monsoon,
Marks & Spencer (including a mezzanine), B&Q.
Trostre expands further
Range of fast food restaurants, including: KFC, Pizza Hut and
McDonalds
Cafe: inside Tesco Extra
Coffee shops: Starbucks and Marks & Spencer coffee shop.
•
Food and Drink
•
•
•
•
•
No leisure provision
cinema) locate at Parc Trostre
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Vacancies
•
Unknown
Parking
•
Conclusions
•
•
•
Successful retail park.
Some dated and tired units.
•
•
Parc Pemberton
•
Out-of-centre Retail Park
Located in east Llanelli within the administrative area of
Carmarthenshire County Council
Retail warehouse uses and supermarket
Located adjacent to Parc Trostre Retail Park and Parc y Scarlets
Football and Rugby Stadium
UDP Proposals Map
•
Convenience Retail
Shopping
Comparison Retail
Shopping
•
Key multiple retailers: Morrisons (tired fascia) (7,440 sqm/ 80,083
sq ft)
•
Food and Drink
•
Key multiple retailers: Halfords, Dunelm Mill, Homebase, Bensons
Beds.
Pemberton expands further
None.
•
None.
Vacancies
•
Former Allied Carpets and former Comet units are vacant.
Parking
•
•
Individual public car parks associated with each retail unit.
Some bus links.
Conclusions
•
•
•
Successful retail park.
Some dated and tired units.
•
•
•
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Reflection
3.11 This section reflects upon the above analysis to identify the key issues in retailing outside of the City
Centre ‘Retail Core’ across the City and County of Swansea and beyond.
3.12 Whilst currently falling within the designated City Centre, the character and function of Parc Tawe is
more like an edge-of-centre retail park than a City Centre non-bulky retail location. Despite these
characteristics, in sequential testing terms it is therefore at the top of the retail hierarchy in the
context of current planning policy. Parc Tawe is currently experiencing significant decline and has
largely reached the end of its operational life in its current form. This is therefore a prime site for
redevelopment. The unrestricted A1 (except food and DIY) lawful use at Parc Tawe Phase 1 and the
unrestricted A1 lawful use at Phase 2 indicates that there is significant scope for non-bulky retail to
locate at Parc Tawe at present, which is a key risk to the Council’s aspirations to prioritise investment
in the City Centre Retail Core. All possible measures to address this concern should be pursued,
including planning and legal avenues available.
3.13 In terms of the designated Traditional District Centres, Clydach, Gorseinon, Killay, Morriston and
Pontarddulais all appear visually tired to varying extents and would benefit from investment to
enhance their attractiveness as retail locations. High vacancies were particularly evident at
Morriston and Gorseinon where the public realm shop facades were in the greatest need of
enhancement. All of these locations have some car parking (although some a better served than
others), are generally well served by bus and within walking distance of their respective local resident
population. These Traditional District Centres are therefore highly accessible to non-car owning, less
affluent shoppers, which is indicative of less spending power, which is reflected in the decline of
these centres, particularly given competition from out-of-centre retail parks. These locations would
all benefit from investment and regeneration. Mumbles has a more affluent catchment, greater car
parking provision and benefits from tourism trade, it is therefore less in need of regeneration. Sketty
and Uplands are small centres with limited car parking and serve a particularly localised catchment.
3.14 With regard to out-of-centre retail parks, although designated within the UDP as a Modern District
Centre, Parc Fforestfach acts very differently to the other ‘Traditional District Centres’ in the City and
County of Swansea. Parc Fforestfach, Parc Morfa, Parc Cwmdu, Pontardulais Road Retail Park and
Swansea Enterprise Park ‘Retail Zone’ all play a similar role within the hierarchy, however the
Enterprise Park is a much less cohesive retail destination, comprising a sprawl of retail on a industrial
and business park layout.
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3.15 Whilst not currently designated in this respect, all of these retail locations act as out-of-centre retail
parks and operate with a format of large scale retail warehouses selling high street (i.e. non-bulky)
A1 goods (at Parc Fforestfach and Parc Morfa) and/ or bulky or household retail goods (at Parc
Morfa, Parc Cwmdu, Pontardulais Road Retail Park and Swansea Enterprise Park ‘Retail Core’). They
are all predominantly car dependent with large free car parks, thus mainly attracting more affluent,
car owning shoppers with greater spending power. Parc Trostre and Parc Pemberton, located in the
administrative boundary of Carmarthenshire County Council, perform the same role.
3.16 Whilst public transport links from Traditional District Centres to Swansea City Centre are good, bus
journeys to the retail parks are generally less straightforward, meaning that they are less accessible
to less affluent, non-car owning shoppers with less spending power.
3.17 Objective 2.e of the UDP, which seeks “to improve the range, choice and quality of shopping
opportunities accessible for all sections of the community and visitors to the area”, is therefore not
being met at present.
3.18 The extent of competition to the Traditional District Centres and the City Centre from retail park
format retailing is significantly high.
3.19 Parc Fforestfach, Pontardulais Road Retail Park, Parc Morfa and Parc Trostre appear to be performing
particularly well. The public realm and shop facades at Parc Cwmdu are looking more tired and in
need of upgrading however they still appear to be performing well.
3.20 Swansea Enterprise Park has significant vacancy rates, with a number of empty large retail
warehouse units which appear to be at the end of their operational life. Given that many of the
retail units were built when the area was designated as an Enterprise Zone (and therefore planning
permission was not required), there is the risk that these may become attractive redevelopment sites
for high street (i.e. non-bulky) A1 retailers, posing a significant threat to the health and success of
retailing in the City Centre, nearby Morriston District Centre and Parc Morfa.
3.21 In terms of other out of centre retail locations, Garngoch Retail Area is experiencing significant
physical decline with the retail warehouse units appearing to be reaching the end of their operational
life. They could therefore be attractive redevelopment sites for retailers.
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4
Existing Provision
4.1
Map 1 shows the location and size of existing foodstores within the City and County of Swansea
above a minimum floorspace threshold (280 sq m/ 3,000 sq ft gross). Also shown are selected
foodstores outside of the administrative boundary that have catchments within it. This information
and the floorspace data for each store is summarised in Tables 4.1 and 4.2 and the corresponding
foodstore operators are mapped at Appendix 7.
4.2
Existing foodstore provision within the City and County of Swansea, including some of the largest
foodstores, is concentrated in the north eastern part of the urban area to the south of the M4
motorway, where household incomes are lower.
4.3
A number of foodstores are also located in the City Centre. One large foodstore lies to the south
west of the St. David’s/ Quadrant site and forms part of the City Centre ‘Retail Core’ where high
street retail uses are promoted within planning policy.
4.4
There is currently no foodstore provision west of Dunvant in what is a predominantly rural area of
the City and County of Swansea, which includes the Gower Area of Outstanding Natural Beauty,
which is characterised by a lower population.
4.5
In the south western part of the urban area, beyond the City Centre, foodstore provision is lower,
comprising smaller, local stores, and no large foodstores. This part of the City and County of
Swansea is populated by the more affluent sector of the population. There is significant competition
among foodstore retailers to gain a presence in south west Swansea.
4.6
Maps showing the catchment drive times of the above foodstores are provided at Appendix 8. These
show basket and trolley-based foodstores with respective 5 and 10 minute catchment drive times,
reflecting the time and distance that shoppers realistically spend travelling to each. To aid visual
analysis, the administrative area is broken down into four sub-area maps (Swansea Central and East,
West, Greater North West and Greater North East).
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Map 1: Existing Foodstore Provision Within and Outside the City and County of Swansea with Catchments within the Administrative Area
(Source: MapInfo/ Bartholomew 2013)
Strategic Review of Retail Planning
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Operator
Location
Net sq m
Gross sq m
Net sq ft
Gross sq ft
Aldi
Asda
Asda
Co-Op
Co-Op
Co-Op
Co-Op
Co-Op
Co-Op
Co-Op
Co-Op
Co-Op
Parc Cwmdu
Morriston
Gorseinon
Brynhyfryd
City Centre
City Centre
Clydach
Killay
Mumbles
Pontarddulais
Killay
Mumbles
Enterprise
Park
Gorseinon
City Centre
Enterprise
Park
Morriston
Garngoch
City Centre
Garngoch
Morriston
Pentregethin
Road
Trallwn
No data
5,850
5,408
360
476
275
No data
371
336
534
320
282
1,400
9,720
5,734
493
989
407
1,026
652
766
640
450
486
No data
63,000
58,208
3,875
5,123
2,966
No data
4,103
3,947
5,757
3,400
3,043
15,065
105,000
61,723
5,310
10,646
4,385
11,048
7,027
8,254
6,889
4,800
5,234
No data
372
506
486
572
750
No data
4,004
5,446
5,231
6,157
8,082
No data
839
1,115
No data
730
No data
552
1,627
1,700
932
890
1,119
No data
9,036
12,000
No data
7,900
No data
5,945
17,517
18,300
10,032
9,600
12,045
890
1,068
950
1,115
9,600
11,496
10,200
12,002
City Centre
Parc
Fforestfach
Morfa
City Centre
Gorseinon
Uplands
Sketty
City Centre
No data
8,572
No data
92,268
712
3,000
3,720
870
303
273
3,620
1,115
4,600
5,830
880
593
285
6,040
7,700
32,292
40,000
9,400
3,265
2,942
39,000
12,000
49,514
62,800
9,400
6,387
3,077
65,000
Farm Foods
Farm Foods
Iceland
Iceland
Iceland
Julians
Lidl
Lidl
Lidl
Lidl
Lidl
Marks &
Spencer
Marks &
Spencer
Morrison's
Sainsbury's
Sainsbury's
Sainsbury's
Sainsbury's
Tesco
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Tesco Express
Tesco Express
Tesco Express
Tesco Express
Tesco Express
Tesco Express
Tesco Extra
Tesco Extra
Tesco
Superstore
City Centre De la Beche
Street
Gowerton
Sketty
St Helen's
Road
SA1
Uplands
Enterprise
Park
Parc
Fforestfach
Pontarddulais
No data
200
No data
395
293
635
No data
2,153
No data
4,252
3,154
6,835
357
No data
No data
361
450
285
4,038
No data
No data
3,894
4,851
4,152
6,700
10,340
72,119
111,300
8,844
11,866
95,196
128,000
4,169
4,433
44,879
47,725
Table 4.1: Foodstores within the Administrative Boundary of the City and County of Swansea
(Source: City and County of Swansea)
Operator
Location
Net m2
Gross m2
Net ft2
Gross ft2
Tesco Parc
Trostre
Parc Trostre
9,832
10,789
105,830
116,132
5,968
7,952
64,239
85,595
6,611
7,440
71,160
80,083
Adsa
Morrison's
Llanelli City
Centre
Pemberton
Retail Park
Tesco
Ammanford
5,301
5,833
57,059
62,786
Tesco
Pontardawe
No data
4,449
No data
47,889
Lidl
Pontardawe
No data
1,646
No data
17,717
Morrison's
Neath
No data
4,833
No data
52,022
Tesco
Neath
No data
5,175
No data
55,703
Lidl
Neath
No data
1,644
No data
17,696
Table 4.2: Foodstores Outside the Administrative Boundary but with Catchments within the City
and County of Swansea
(Source: City and County of Swansea)
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4.7
The maps at Appendix 8 show that a mix of trolley and basket-based stores are located in the Central
and East sub-area and in the West sub-area. Swansea Greater North West and Greater North East
are characterised by largely trolley based stores only, which have catchments extending beyond the
administrative boundary into the Carmarthenshire County Council area and the Neath and Port
Talbot County Borough Council area.
4.8
The City Centre and all locations within the City and County of Swansea to the east of Dunvant fall
within the catchment of a number of foodstores. The areas immediately west of Dunvant have less
choice, only falling within the catchment of one or two stores. Only the rural areas surrounding
Craig-Cefn-Parc in the north and at the Gower to the west do not fall within the catchment of a
foodstore.
4.9
Smaller, basket-based foodstores are clustered within and just outside the City Centre and in nearby
District Centres to the west, in Uplands, Sketty and Killay. These have overlapping 5 minute
catchment drive times, which span to the west towards Dunvant and Upper Killay.
4.10 The maps show significant potential leakage of convenience goods spending to the nine foodstores
outside of the administrative area. The 10 minute catchment drive times of a number of trolley
based foodstores outside of the City and County of Swansea area span into, and compete with,
foodstores within the north east and north west of the administrative area. These are located in Parc
Trostre, Parc Pemberton, Llanelli and Ammanford in the Carmarthenshire County Council area and at
Pontardawe and Neath in the Neath and Port Talbot County Borough Council area. As these stores
are outside of the remit of planning policy prepared by Swansea Council, the Council has no control
over their impact upon grocery retailing in the Swansea administrative area, although they may be a
consultee on applications in neighbouring local authority areas.
4.11 Overall, drive time data does not indicate that there is a significant deficiency in foodstore provision
in the City and County of Swansea. We recommend that this analysis is supported by an additional
quantitative assessment of foodstore provision and deficiency in the Swansea administrative area at
the appropriate time to inform LDP policy and/or guide decision making on individual planning
applications.
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Recommendations
4.12 This Chapter has demonstrated that there is significant existing provision of foodstore development
in the Swansea administrative area, as well as provision outside of this boundary that have
catchments which reach into it.
4.13 Despite the extent of existing provision, there is scope for small scale local foodstores, which meet
local needs, to be commercially attractive and appropriate windfall planning sites. This could be in
declining residential areas that would benefit from the regenerative effects that foodstores can
bring, or in large scale mixed use development areas where the facility would serve the new
development areas proposed. Foodstore developments that gives rise to major regeneration
benefits that accord with Council development strategies should be considered on their merits but
must clearly demonstrate they will not have any adverse impact upon the City Centre or nearby
district centres.
4.14 It is recommended that the emerging LDP stipulates that windfall planning applications (i.e. non
allocated sites) for foodstore development are accompanied by a Retail Assessment, in line with
national guidance. Such Assessments will also be necessary to support foodstore proposals that
come forward in advance of LDP adoption. This assessment should justify the proposal against
national and local planning policy. It should be required to demonstrate that the proposal will not
impact on the vitality and viability of the City Centre, meets the requirements of the sequential test,
meets a quantitative and qualitative need and will positively contribute to the Council’s regeneration
plans for the St. David’s/ Quadrant area. We also recommend that the LDP requires the applicant to
make a financial contribution to cover costs incurred by the local planning authority in undertaking
the necessary audit or analysis of any such Retail Assessment.
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5
Conclusions and Recommendations
Introduction
5.1
This report has identified that existing planning policy is clear in prioritising the City Centre for
significant retail investment and that the St. David’s/ Quadrant area is the key site for a retail-led
scheme. Current retail planning policy also serves to preclude certain forms of out-of-centre retail
development. However existing policy and strategy needs to be further refined to direct all forms of
new retail development to suitable sites within centres and in particular retail core areas. There is
also the risk of greater impacts from changing occupiers at unrestricted lawful A1 units in out-ofcentre locations, which could undermine the Council’s City Centre first priorities.
5.2
This Chapter draws upon the conclusions of Chapters 2, 3 and 4 to provide guidance on formulating
an up-to-date retail strategy for the emerging Swansea LDP, which will be key to securing the
Council’s strategic regeneration aims.
Recommendations
A New Retail Hierarchy
5.3
Chapters 3 and 4 highlighted that the terminology and classification of the City and County of
Swansea’s retail locations in adopted local planning policy needs revision and some clarification in
order to best meet the overall aims of national policy and the UDP with regard to retailing strategy.
5.4
The available planning history information reviewed in Chapter 3 shows that at present it is
problematic for the Council to successfully meet Objective 2 (f) of the UDP, which seeks to “resist
further out-of-centre retail development”, or furthermore to meet UDP Strategic Policy SP6 for the
City Centre to be the primary focus for new retail development and to support improvement and
enhancement of District Centres.
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5.5
To address these issues and to ensure clarity when undertaking the sequential approach to prioritise
the City Centre, followed by District Centres, then out-of-centre retailing in accordance with PPW, we
recommend retail centres are redefined across the administrative area. We recommend that the
City and County of Swansea’s retail locations therefore fall into four categories: ‘City Centre’, ‘District
Centres’, ‘edge-of-centre (Parc Tawe)’, and finally ‘out of centre retail parks’. Any other retail
location would fall under the category of out of centre retail where further development should be
restricted to very small scale provision that would serve local communities where these are shown to
have an unmet need.
5.6
We also recommend that the City Centre ‘Retail Core’ is redefined as the City Centre ‘Retail and
Leisure Core’ which will be the priority location for high street A1 and A3 retail and D2 leisure, which
should include a cinema as well as a wide range of dining opportunities that complement the leisure
experience. Delivering these complementary uses, and resisting proposals that would prejudice
their delivery, is critical to ensure that Swansea City Centre becomes a regional shopping and leisure
destination.
5.7
We advise that a new planning policy is formulated to clarify the roles of the key areas within the City
Centre that complement the City Centre ‘Retail and Leisure Core’.
5.8
A revised retail hierarchy will overcome the issue of Parc Fforestfach being classed as a (albeit
‘Modern’) District Centre, despite having very different characteristics to the other (‘Traditional’)
District Centres in the administrative area and being akin to a retail park. Removing Parc Fforestfach
from the District Centre definition will ensure that it is considered as an out-of-centre retail park in
the same way as Parc Morfa, Swansea Enterprise Park Retail Zone, Parc Cwmdu and Pontardulais
Road Retail Park. This will ensure that all of these locations are subject to the sequential approach as
per the retail hierarchy outlined in PPW and TAN4. This will place greater restrictions upon retailing
in these locations to better ensure that the City Centre is the priority for high street retailing.
5.9
In turn, we recommend that the ‘Traditional District Centres’ in the UDP are redefined as ‘District
Centres’ in the LDP. This will serve to better ensure the regeneration of the City Centre and declining
district centres.
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5.10 The UDP currently defines Parc Tawe as being part of the City Centre, despite its characteristics and
function as an edge-of-centre retail park in practice. We therefore recommend that Parc Tawe is
redefined in the LDP as an ‘Edge-of-Centre’ location where only bulky goods retailing and leisure
uses, which would complement those prioritised in the City Centre Retail and Leisure Core, are
permissible. As part of this, we recommend that the existing cinema use may be better located in
the City Centre Retail and Leisure Core. This policy approach is consistent with the SCCSF and will
help ensure that Parc Tawe serves to support, rather than compete with the City Centre.
5.11 There will be a certain amount of market demand for bulky goods retailing in out/edge-of-centre
locations, and we recommend the above approach is taken in order to focus such investment at the
most sequentially preferable location, particularly given the existence of empty units at Parc Tawe at
present, and the need to bring forward development that would complement traditional high street
retailing within the City Centre retail and leisure core.
Class A1 Retail at Out-of-Centre Locations
5.12 The Council’s priority moving forwards is for a City Centre first approach in accordance with national
planning policy set out in PPW. Further proliferation of unrestricted A1 retail space at out of centre
and edge of centre retail locations should be resisted as it poses a threat to the future vitality,
viability and attractiveness of Swansea City Centre. This includes at Parc Fforestfach, Pontarddulais
Road Retail Park, Parc Morfa, Parc Cwmdu, the Enterprise Park, and also Parc Tawe which is
erroneously currently identified as being in-centre in the existing UDP. This threat applies to more
than just proposed new buildings for new retail space and includes proposed change of use of
existing floorspace, subdivision of premises to create smaller ‘high street’ scale units, variation of
planning conditions/legal agreements and proposed additional floorspace by means of mezzanine
floors. This is already emphasised in UDP policy and can be strengthened even further in LDP policy.
However, this report has identified that a key threat to this aim, which cannot be addressed through
revised planning policy alone, is the proliferation of unrestricted lawful A1 consents at the Enterprise
Park, Parc Tawe Phase 1 (excluding food and DIY) and Phase 2, Parc Cwmdu and Parc Fforestfach.
5.13 We recommend that, in addition to revised planning policy, the Council seeks further advice
regarding how best it can negate the risks posed to the vitality of the District Centres and City Centre
by the existing unrestricted lawful retail units at Swansea Enterprise Park and the retail parks
referred to in this report
Bulky Goods Retailing
5.14 PPW and TAN4 seek to prioritise bulky goods retailing at sites within centres and at edge-of-centre
locations. In this context, proposals for new bulky goods retailing within the County should be
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directed in the first instance to in-centre locations, followed by appropriate edge of centre sites. This
may require developers to be flexible in their proposals for this form of retailing. Only in instances
where an applicant can demonstrate a clear need for further bulky goods floorspace, and where no
viable units or development sites are available at in-centre or edge-of-centre locations for bulky
goods investment, should the Council consider units or sites within out-of-centre retail locations (as
per the locations identified in Table 3.1). Where demand can be shown for further bulky goods
retailing, and where no sites are available at in centre or edge of centre locations, developers should
be directed towards existing premises at retail park locations in the interests of prioritising the re-use
and/or redevelopment of existing units.
5.15 With regard to foodstore retailing, PPW seeks to provide an adequate level of provision in existing
town and district centres and states that out-of-centre food supermarkets are not permissible if they
would lead to a loss of food retailing in the centre of smaller towns. This further highlights the
importance of introducing the redefined retail hierarchy in the LDP as outlined above.
Maintaining the Vitality, Viability and Attractiveness of Centres
5.16 Alongside efforts to prioritise the City Centre and District Centres as the most suitable locations for
appropriate new retail and leisure development, and resisting inappropriate out of centre proposals,
there is a need to ensure these destinations benefit from ongoing initiatives to maintain their
vitality, viability and attractiveness. Such initiatives are needed to ensure these locations provide for
the communities they serve and are best placed to receive future investment.
5.17 Safeguarding an appropriate percentage of A1 retail at ground floor level will be critical to ensuring
the future health and vitality of Centres. The Council has produced Supplementary Planning
Guidance that relates to non-retail uses within District Centres and the City Centre, as identified in
Chapter 2. These documents remain valid going forward and provide a framework for preventing
the unacceptable dilution of retail frontages.
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5.18 Some uses on the high street are perceived as having a detrimental effect on vitality and
attractiveness, particularly non A1 uses. The City and County of Swansea set up a ‘Task and Finish
Group’ led by elected Members on pay day loan uses. The group has identified what it regards as an
increasing dominance of payday loan companies on district and City Centre high streets, contributing
to a perceived degradation of the health of the poorer sections of the communities in which they
locate. It highlights that “in some instances they are able to move into established A1 units in prime
retail areas by arguing that they are predominantly a retail unit, operating for example as a jeweller
or pawnbroker shop, which would not require planning permission. Alternatively they are able to
persuade the Planning Inspectorate on appeal, of the economic benefits of allowing a financial use in
a retail unit on the grounds that it has the appearance of a shop and brings economic and visual
benefits to the town centre”. Businesses operating solely as payday loan companies are considered
to be financial services and thus treated as an A2 (financial and professional services) use,
which are not currently distinguished from other A2 uses under the Town & Country Planning Use
Classes Order. The Council has limited opportunities for intervention other than refusing planning
applications where permission is required to change the use of the premises. In this respect, these
are A2 (financial and professional services) uses, which are not currently distinguished from other A2
uses under the Town & Country Planning Use Classes Order. Whilst not ideal, payday loan companies
do however serve the purpose of occupying retail units in declining district centres, which might
otherwise lie vacant, and a balance clearly has to be struck between issues of long term vacancy and
resisting non-A1 uses.
5.19 The Welsh Assembly’s New Regeneration Framework, entitled Vibrant and Viable Places, was
launched in March 2013, which makes clear that regeneration investment should be targeted at
town centres as priority locations. This reinforces the need to prioritise Swansea City Centre, and
where appropriate the larger District Centres in the County, as the sequentially preferable sites for
significant new retail development. In terms of long term vacancy issues, so called ‘meanwhile uses’
are identified within the New Regeneration Framework as a potential mechanism to address this
problem. The Framework states that the Welsh Government: “have international evidence of the
success of ‘meanwhile uses’ in reversing town centre decline by facilitating diversification of the town
centre offer and bringing vibrancy to previously empty properties. The most successful programmes
have developed long-term and permanent uses from initial temporary occupation of retail and office
premises and have performed a critical business incubation role”. This should be explored as an
opportunity, alongside other initiatives, to prevent long term vacancy having a negative impact on
the high street.
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5.20 Finally, also considered important as part of a package of measures in maintaining vitality, viability
and attractiveness is ensuring that Centres benefit from environmental improvements wherever
possible, including building improvements, refurbishments and hard and soft landscaping
enhancements.
Interim Period
5.21 Whilst existing planning policy is fairly clear in prioritising the City Centre for significant retail
investment and precluding most forms of out of centre retailing, this report has demonstrated some
weaknesses in current adopted planning policy and has highlighted the associated risks to the
Council’s aspiration to deliver a strengthened retail hierarchy. The Council faces a minimum two
year period up to the anticipated adoption of the LDP, therefore in the interim period our advice to
the Council is as follows:
5.22
In terms of the Council’s strategy for managing future planning applications for retail development
prior to the adoption of the emerging LDP, these should be assessed on the basis of adopted
planning policy and the material considerations provided by this and similar up to date evidence. In
this respect, they must demonstrate that they are appropriate in sequential testing terms, that they
will meet a quantitative and qualitative need, that they are located on an accessible site, and would
not give rise to an unacceptable adverse impact on an existing centre.
5.23
We also recommend that the Council considers the preparation of interim planning guidance which
could take the form of Supplementary Planning Guidance. This could be prepared in a shorter
timeframe to the LDP and could seek to establish greater planning controls over retail and leisure
development than is currently provided by the UDP. Significantly however, any new Supplementary
Planning Guidance cannot contradict policies set out in the UDP.
5.24
It will be important that such interim planning guidance directs large Class A3 food and drink
developments to the City Centre and where such sites are unavailable to alternative sequentially
preferable sites. Large A3 uses have a critical role in supporting the retail and leisure led
regeneration of the City Centre, particularly the St. David’s and Quadrant site. Any mixed use
destinations, including large A3 uses, at out-of-centre locations would be a threat to the success of
the City Centre and should be resisted.
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APPENDICES
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1
Swansea Enterprise Park: Key Planning History
Ref. No.
Address
Description
Decision
Decision
Date
2/1/78/146
4/03
2/1/79/000
0/11
Land to the south of
the A48.
Land north of A48,
Llansamlet, Swansea
Industrial Park
Approved
28-12-1978
Approved
21-05-1979
93/0798
Unit 1 Park Pavilions
(Paramount) Valley
Way, Swansea
Enterprise Park
Approved
16-09-1993
93/1097
Unit 1 (Eric
Ashmole), Mona
Close, Swansea
Enterprise Park
Makro, Beaufort
Reach, Swansea
Enterprise Park
Build industry and ancillary
distribution and
warehousing (Use Class III,
IV, X1).
Change of use of existing
units (use classes B1, B2 and
B8)2 to motor vehicle
dealerships (2 no.
comprising car showrooms,
sales and repairs).
Erection of new car
showroom and valeting bay.
Approved
26-10-1993
Erection of single storey
building (9630 square
metres gross), car parking,
service areas and
outbuildings for use as a
cash and carry warehouse
and/or uses under class B8
(storage or distribution).
Change of use from
foodstores (class B8) to
general industry (class B2).
Change of use from
warehouse and offices to
retail (class A1).
Approved
16-02-1994
Approved
25-03-1994
Approved
02-08-1994
Erection of retail park
comprising: retail
superstore (class A1) with
Refused
23-05-1995
93/1501
94/0163
94/0738
95/0510
1
Unit 2/3 Cynon
Close, Swansea
Enterprise Park
Unit 1 Phoenix
Centre, Phoenix
Way, Swansea
Enterprise Park
Asda Store, Upper
Fforest Way,
Swansea Enterprise
Classes III, IV and X are now known as Class B1(c), B2 and B8.
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Park
96/0383
96/0530
97/1715
97/1717
97/1658
98/0153
petrol filling station, car
wash and approximately
700 car parking spaces;
seven non-food retail units
and ancillary car parking;
two detached.
Unit 4-7 (M&P
Extension to existing
warehouse/showroom to
Motorcycle
Accessories), Castell provide 3,045 sq metres of
additional showroom,
Close, Swansea
Enterprise Park
warehousing and offices.
Asda Store, Upper
Erection of retail superstore
Fforest Way,
(class A1) with petrol filling
Swansea Enterprise
station and car wash, 2
Park
detached restaurant
buildings approximately 700
car parking spaces and a
new traffic signal controlled
junction on Upper Fforest
Way.
Unit 1 (Eddershaws), Extension to coffee shop
Castell Close,
with sales area over,
Swansea Enterprise
extension to provide new
Park
entry and sales area
together with additional
office accommodation.
Unit K27, Ashmount Use of unit as a warehouse
Business Park, Upper for the storage and sale by
Fforest Way,
distribution of catering
Swansea Enterprise
equipment (amounting to
Park
557 sq m of the total
floorspace) with ancillary
retail showroom (amounting
to 93 sq m of the total .
Imperial Centre, Unit Change of use from retail
2, Lion Way,
shop (class A1) to children’s
Swansea Enterprise
play facility with ancillary
Park
nursery facilities (class D2)
or retail (class A1).
Asda Store, Upper
Variation of condition 14 of
Fforest Way,
planning permission
Swansea Enterprise
96/0530 granted on 1st
Park
August 1997 to allow for the
increase in food retail
floorspace from 8,892 sq
metres to 9,112 sq metre.
Approved
01-08-1996
Approved
12-08-1997
Approved
28-01-1998
Approved
08-01-1998
Approved
28-01-1998
Approved
1998
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98/0411
98/0917
98/0810
98/1469
99/1703
2002/1641
2003/2418
Gasworks Cottages,
Demolition of existing
Valley Way, Swansea cottages and construction of
Enterprise Park
single storey building for use
as a dry cleaners with
associated landscaping and
car parking (class A1).
Units 6/7 Castell
Erection of single storey
Close, Swansea
retail/wholesale warehouse.
Enterprise Park
Asda Store, Upper
Erection of retail superstore
Fforest Way,
(class A1) with petrol filling
Swansea Enterprise
station, car wash and 750
Park
space car park (reserved
matters submission
pursuant to condition 01 of
planning permission
96/0530 granted on 1st
August 1997 .
Site P10, Camffrwd
Erection of 83,500 sq ft cash
Way, Swansea
and carry warehouse (class
Enterprise Park
B8) with associated office
accommodation and car
parking (amendment to
planning permission
98/1151 granted on 28th
September 1998).
Site of Units 2 and 2 Redevelopment of site to
Nantyffin North,
provide 5 no. retail units
Swansea Enterprise
(class A1) with access
Park
roundabout, service yards
and associated car parking.
Phase 2 site off
Construction of 2 retail units
Nantyffin Road,
(class A1) with associated
Swansea Enterprise
car parking and service
Park
yards.
Tesco Stores Ltd,
Demolition of existing Tesco
Nantyffin Road,
superstore, MFI retail
Swansea Enterprise
warehouse and plumb
Park
centre and redevelopment
of site to provide new tesco
extra hypermarket (10,340
square metres gross floor
space), replacement petrol
filling station, car parking for
765 vehicles, revised access
arrangements and
Approved
24-07-1998
Approved
14-08-1998
Approved
02-09-1998
Approved
03-12-1998
Approved
25-05-2000
Approved
25-04-2003
Approved
30-03-2005
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landscaping.
2003/2538
16 Mannesman
Close, Swansea
Enterprise Park
2005/0132
F C Eddershaw &
Son Ltd, Phoenix
Way, Swansea
Enterprise Park
2005/1238
Units 1 & 2 Valley
Way, Swansea
Enterprise Park
2006/0736
Eddershaws,
Phoenix Way,
Swansea Enterprise
Park
Change of use from UPVC
window manufacturer (class
B2) to use classes A1, A2,
B1, B8 and car showroom
(sui generis).
Two storey side extension to
provide 755 sq. metres of
retail floor space, single
storey extension on south
elevation to provide coffee
shop and takeaway (class
A3), two single storey
extensions to provide office
accommodation, single
storey link extension to
retail floor space, new
highway access with
associated landscaping
works and car parking and
use of the former leather
leaders building for
associated warehousing
(B8).
Continuation of use as a
retail carpet sales outlet
(application for a certificate
of lawfulness).
Two storey side extension to
retail floor space, single
storey extension on south
elevation to provide coffee
shop and takeaway (class
A3), two single storey
extensions to provide office
accommodation, single
storey link extension to
provide 162 sq metres of
retail floor space, new
highway access with
associated landscaping
works and car parking and
use of the former leather
Approved
30-01-2004
Approved
14-09-2005
Lawful
16-11-2005
Approved
16-05-2006
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2006/2081
135 Samlet Road,
Swansea Enterprise
Park
2009/0472
Land at Phoenix Way
Retail Park, Swansea
Enterprise Park
2010/1873
Unit 7 St David’s
Road, Swansea
Enterprise Park
2011/0959
Unit 6B, Lion Way
Enterprise Park
leaders building for
associated warehousing (B8)
(alterations to roof and
fenestration details,
amendment to planning
permission 2005/0132
granted on 12th September
2005).
Change of use of ground
floor from residential (class
C3) to hairdressers (class
A1) with associated external
alterations and new access
ramp.
Reconfiguration of existing
retail park with demolition
of existing single detached
retail unit and part
demolition of further retail
unit, construction of 3 no.
attached retail units (class
A1) - 2,787 sq m gross
floorspace, (resulting in 7
retail units overall),
freestanding food and drink
unit (class A3) - 279 sq m
gross floorspace together
with new vehicular access
onto Fendrod Way, car
parking (299 spaces overall),
infrastructure and
landscaping works.
Change of use from former
tool hire shop (class A1) to
sports and leisure facility
(class D2), and replace
existing roller shutter door
with double door.
Creation of new retail unit
entrance within existing
roller shutter aperture to
facilitate future subdivision
of single unit into two
separate units.
Approved
09-03-2007
Refused
24-02-2010
Approved
09-02-2011
Approved
16-08-2011
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2
Parc Tawe: Key Planning History
Ref. No.
Address
2/1/87/0656 North Dock, Swansea
/03
(now known as Parc
Tawe Phase 1)
2/1/88/0834 Unit 8, Parc Tawe
/03
Phase 1
2/1/89/1251 Land at Parc Tawe
/03
Phase 1
Phase 1
2/1/89/1335 Former ‘Builda
/03
Center’, New Cut
Road, Swansea (now
known as Parc Tawe
Phase 1)
/01
Phase 1, Swansea
/01
Phase 1, Swansea
93/0089
Unit 7 (Staples Ltd),
Parc Tawe Phase 1
93/0484
The Piazza Parc Tawe
Phase 1, Swansea
Description
Decision
Decision Date
Leisure and retail
development: multiplex
cinema, public toilets and fast
food units.
Change of use to a freezer
centre for the retail sale of
frozen food, non-frozen food,
freezers, fridges, dishwashers,
microwaves etc.
High class food restaurant with
take away and drive through
facilities with incorporated car
park/ landscape alterations.
Fast food restaurant with take
away and drive through
facilities with incorporated car
park/ landscape alterations.
Superstore for the sale of
vehicle goods.
Approved
09-06-1987
Refused
05-05-1987
Refused
17-11-1989
Refused
17-11-1989
Refused
17-11-1989
High class fast food restaurant
with drive through facilities
and associated car parking
High class fast food restaurant
with drive through facilities
and associated car parking
Retention of new goods
delivery access on rear
elevation to serve new subdivided retail unit.
Removal of existing kiosk units,
provision of new, including
change of use of part of
circulation space to retail
space, and alterations to
Refused
06-02-1991
Refused
06-02-1991
Approved
26-03-1993
Approved
02-07-1993
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entrance.
94/0160
The Piazza (Unit 2)
Parc Tawe Phase 1
94/0174
Unit 8 (land north of)
Parc Tawe Phase 1
96/4063/S
Land north of Unit 8,
Parc Tawe Phase 1
Parc Tawe Complex
(Phase 2)
95/1018
95/1363
Parc Tawe Complex
(Phase 2)
96/4063/S
Unit 8 (land north of)
Parc Tawe Phase 1
96/0764
Parc Tawe complex
(phase 2)
2003/0112
2 The Piazza, Parc
Tawe Phase 1
2003/0122
N/K, Parc Tawe Phase
1
Unit 1 The Piazza, Parc
Tawe Phase 1
2009/1483
2011/0587
N/K, Parc Tawe Phase
1
Change of use from retail (class
A1) to sale of hot food and
drinks (class A3).
Erection of fast food
restaurant and video hire shop
(outline).
Retail unit with car parking and
service area
Development of 4 linked
buildings accommodating up
to 14,698 sq. metres of nonfood retail (class a1)
floorspace, together with a
garden centre; nightclub (class
d2); cafe/restaurant (class a3);
associated car parking.
Development of 12,586 sq
metres of retail (class A1) and
restaurant (class A3) use plus
associated car parking and
landscaping.
Erection of 1049 sq m. retail
unit with car parking and
service area.
Development of 12,513 sq
metres of retail (class A1) plus
associated car parking and
servicing. (amendment to
planning permission 95/1363
approved 17 May 1996)
Change of use from retail unit
(Class A1) to an amusement
arcade (Sui generis).
Side/rear extension
Change of use from retail
(Class A1) to take-away
patisserie (Class A3).
Change of use from retail
(Class A1) to fish tank
pedicure.
Approved
28-03-1994
Approved
04-05-1994
Approved
22-05-1996
Withdrawn
Withdrawn on
29-11-1995
Approved
17-05-1996
Approved
23-05-1996
Approved
04-10-1996
Refused
04-03-2003
Approved
08-04-2003
Approved
17-11-2009
Approved
11-06-2011
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3
Parc Fforestfach (Retail Park): Key Planning History
Ref. No.
Address
Description
Decision
Decision Date
94/1331
Fforest Park Estate,
Ffordd Cynore,
Fforestfach, Swansea
Fforestfach Shoppeing
Centre, Pontardulais
Road, Swansea
Erection of retail park, petrol
filling station and fast food
outlet.
Redevelopment of existing
district shopping centre
comprising new Tesco
superstore (10,000 square
metres gross floor space),
petrol filling station and 8 no
linked retail units (11,670
square metres gross floor
space), petrol filling station
and 8 service yards and staff
car parking areas, alterations
to existing access off
Pontardulais Road, closure of
existing access off Carmarthen
Road, construction of two new
accesses of Fordd Cynore, off
site highway works to Ffordd
Cynore and the Pontardulais
Road Junction, provision of
1,275 space customer car park,
site landscaping and
accommodation works (subject
to S106 agreement).
Erection of three linked nonfood retail units comprising of
2,900 sq m of floor space and
associated service area
(amendment to A00/0366
approved on 2nd August 2000
for a single retail unit with a
floor space of 3,692 sq m).
Single storey extension to
retail Unit A to provide an
additional 232.7 sq m of A3
(food and drink) floorspace
Approved
22-03-1995
Approved
02-08-2000
Approved
29-01-2002
Approved
03-04-2002
A00/0366
2001/1985
Fforestfach District
Centre
2001/1848
Centre
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2001/1264
Phase 2 Fforestfach
District Centre,
Pontardulais Road,
Fforestfach Swansea
2001/1268
Phase 2 Fforestfach
District Centre,
Pontardulais Road,
Fforestfach Swansea
2002/0374
Unit J Fforestfach
District Centre,
Pontardulais Road,
Cadle, Swansea
2003/0095
Tesco Stores Ltd,
Shopping Centre,
Cadle, Swansea
2003/2119
Tesco Stores Ltd,
Pontardulais Road,
Cadle, Swansea
2004/0567
Tesco Stores Ltd,
Pontardulais Road,
Cadle, Swansea
2006/0108
Tesco Stores Ltd,
Pontardulais Road,
Cadle, Swansea
2008/0932
Unit 12 Parc
Fforestfach, Cadle,
Swansea
(amendment to planning
permission A00/0366 granted
on 2 August 2000)
Erection of single storey 189 sq
m detached retail unit
(amendment to Phase 2 of
A00/0366 granted 2nd August
2000)
Erection of alternative retail
unit to approved Unit G2
(increase from 929 sq m to
1,208 sq m gross floorspace,
amendment to A00/0366
approved 2nd August 2000)
Erection of a single storey 355
sq m detached Class A3 (food
and drink) retail unit
(amendment to Phase 2 of
A00/0366 granted 2nd August
2000)
Installation of mezzanine floor
comprising of 1,394 sq m
storage space and providing
internal links between floors
(application for a Certificate of
Proposed Lawful
Development).
Single storey rear extension
with canopy, a section of 4.5
metre high fencing and
provision of 3 home delivery
bays.
Installation of mezzanine floor
comprising of 1,394 sq m sales
area, 372 sq m storage space
and providing internal links
between floors (application for
a certificate of proposed lawful
development).
Single storey front extension,
alterations to existing shop
front and associated external
works.
Division of existing retail unit
into one retail unit (Class A1)
and one coffee shop.
Approved
16-10-2001
Approved
16-10-2001
Approved
14-05-2002
Approved
25-02-2003
Refused
10-02-2004
Approved
25-02-2003
Refused
21-03-2006
Approved
01-07-2008
Planning Policy
Page
60
www.dtz.com
2010/1356
2010/1123
2013/0066
Tesco Swansea Extra,
Pontardulais Road,
Cadle, Swansea
Tesco, Parc
Fforestfach, Cadle,
Swansea
Pizza Hut, Fforestfach
Retail Park, Cadle,
Swansea
Bulk store extension with
mezzanine floor
Approved
17-01-2011
One single storey retail pod
Refused
23-09-2010
External alterations to enable
subdivision of existing Pizza
Hut (Class A3) to create three
new units (Class A1/A2/A3)
with new refuse and recycle
stores both sides.
Approved
25-02-2013
Planning Policy
Page
61
www.dtz.com
4
Parc Cwmdu: Key Planning History
Ref. No.
Address
Description
Decision
Decision
Date
94/0177
Land between
Cwmdu Industrial
Estate and Cave
Street, Carmarthen
Road, Cwmdu,
Swansea
Land between
Cwmdu Industrial
Estate and Cave
Street, Carmarthen
Road, Cwmdu,
Swansea
General and light industry
(Class B1 and B2)
warehousing (Class B8) and
retailing (Class A1 retail
floorspace limited to a
maximum of 47,000 sq ft).
General and light industry
(Class B1 and B2)
warehousing (Class B8) and
retailing (Class A1 retail
maximum of 47,000 sq ft)
(renewal of planning
permission 94/0177 granted
on 22nd June 1994).
Appeal to vary the outline
planning permission no.
98/0042 for General and
Light Industry (Class B1 and
B2), warehousing (Class B8)
and retail (Class A1 retail
maximum of 47,000sq ft)
(renewal of planning
permission 94/0177 granted
on 22nd June 1994) on land
between the Cwmdu
Industrial Estate and Cave
Street, Carmarthen Road,
Cwmdu granted on 16
March 1998 by the City and
County of Swansea Council
by deleting condition No. 11
(‘the retail element of the
scheme shall be limited to a
maximum of 47,000 sq ft
gross retail floorspace. Any
A3 uses developed on the
Approved
22/06/1994
Approved
16/03/1998
Appeal
allowed
13/11/1998
98/0042
JWKD/DM
W/98/088
Land between
Cwmdu Industrial
Estate and Cave
Street, Carmarthen
Road, Cwmdu,
Swansea
Planning Policy
Page
62
www.dtz.com
site under this or any other
permission shall count
against this 47,000 sq ft
allocation’) and substituting
therefore the following
condition:- ‘11. The retail
element of the scheme shall
be limited to a maximum of
4366.3 square metres
[47,000 sq ft] gross retail
floorspace’.
Planning Policy
Page
63
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5
Parc Morfa: Key Planning History
Ref. No.
Address
Description
Decision
Decision
Date
98/0919
Morfa Stadium and
land to the west,
south and east,
Upper Bank,
Landore
Undetermined
and
superseded
by
A00/1410
Undetermined
and
superseded
by
A00/1410
98/0918
Land between Cross
Valley Link and
Nantong Way,
Upper Bank,
Landore, Swansea.
Resolution
to grant but
superseded
by
A00/1410
Resolution to
grant but
superseded
by A00/1410
A00/1410
Morfa Stadium and
land to the west,
south and east,
Upper Bank,
Swansea
Redevelopment of Morfa
Stadium to provide new
multi-purpose community
stadium with
complementary facilities,
associated car and coach
parking spaces and new
roundabout access and
junction improvement
works.
A mixed use development
comprising redevelopment
of Morfa Stadium to provide
a new multi-purpose
community stadium with
complementary facilities, a
leisure and retail centre
including a fast foodstore, a
multi screen cinema,
nightclub, commercial
leisure facilities, restaurant,
petrol filling station and
drive-thru fast food outlet, a
hotel, health and fitness
centre and restaurant, and
associated car parking,
servicing and access
(outline).
Construction of sports
stadium, leisure facilities
(including health club, multiscreen cinema, ten pin
bowling centre, alterations
to existing tennis centre,
hotel and restaurants) and
provision of enabling retail
development, petrol filling
station and necessary
Approved
28-06-2002
Planning Policy
Page
64
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infrastructure.
2002/1192
2002/1140
2003/0296
Land at Morfa Fields, Construction of two
Landore, Swansea
detached restaurants (Class
A3) with associated car
parking and landscaping
(outline).
Morfa Stadium and
Variation of Conditions
18,19 and 20 of planning
land to the west,
Upper Bank,
permission A00/ 1410 for
construction of sports
Landore, Swansea
stadium, leisure facilities
(including health club, multi
screen cinema, ten pin
bowling centre, alterations
to existing tennis centre,
hotel and restaurants) and
provision of enabling retail
infrastructure (outline) to
allow non-food retailing and
alternative unit subdivision.
(Section 106 agreement).
Morfa Stadium and
Application under Section
to the west, Upper
73 of the Act to carry out
Bank, Landore,
development permitted by
Swansea
the outline planning
permissionA00/1410
without complying with the
following conditions:
Condition 4 (siting to accord
with the parameters plan),
13 (external finishes to the
cinema building), 14
(external finishes to the
sports retail building), 17
(restriction of DIY goods to
be sold), 22 (storage of
goods in the open), 23, 24 &
25 (off-site highway works),
31 (car parking
management), 39 & 41
(ecology), (construction of
sports stadium, leisure
facilities (including health
Approved
29-08-2002
Approved
12-12-2002
Approved
10-04-2003
Planning Policy
Page
65
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2004/1038
Unit 3 Morfa Retail
Park
2004/2405
Unit 19, Morfa Retail
Park, Swansea
Unit 4 Morfa Retail
Park, Swansea
2004/1768
2004/0772
2005/1655
2005/1403
Site 17, Morfa Retail
Park, Landore,
Swansea
The Pod, Morfa
Retail Park, Morfa,
Swansea
Unit 14 Morfa Retail
Park, Swansea
club, multi screen cinema,
ten pin bowling centre,
alterations to existing tennis
centre, hotel and
restaurants) and provision
of enabling retail
infrastructure (section 106
agreement)).
Relaxation of Condition 20
of planning permission
April 2003 (which restricts
the minimum floor area of
any retail unit to 929 sq m)
in respect of Unit 3 to allow
a single retail unit of 465
metres.
Construction of 2 restaurant
units (Class A3)
of outline planning
granted on 1oth April 2003
to allow 5,000 sq ft retail in
Unit 4
Erection of two fast food
outlets, incorporating drive
through facility.
Construction of two storey
building to accommodate 4
no. ground floor retail units
(Class A1) with first floor
management office (Class
B1), coffee shop (Class A3)
and public toilets.
of outline planning
granted on 10th April 2003
(which restricts the
minimum floor area of any
retail unit to 929 sq m) to
allow the subdivision of the
existing unit into two
Approved
17-06-2004
Approved
11-01-2005
Approved
15-09-2004
Approved
17-06-2004
Approved
01-11-2005
Approved
19-12-2005
Planning Policy
Page
66
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2005/2637
The Pod, Morfa
2007/0204
Units 18A and 18B
Morfa Retail Park,
Landore, Swansea
2008/1694
Units 18A & 18B
Morfa Retail Park,
Landore, Swansea
2012/1284
N/K
separate units together with
external alterations.
Construction of two storey
building to accommodate 3/
4 no. ground floor retail
units (Class A1) with first
floor management office
(Class B1), coffee shop
(Class A3) and public toilets
(reserved matters approval
pursuant to outline planning
permission A00/1410 (as
varied by Section 73
application 2003/0296)
(amended to reserved
matters approval 2005/1655
granted on 1st November
2005).
Construction of two
(outline) variation of
Condition 02 of planning
permission 2002/1192 to all
for the submission of
reserved matters until 29th
August 2008.
Construction of two
(outline) Variation of
Condition 02 of planning
permission 2002/1192 to
allow for the submission of
reserved matters until 29th
August 2009.
Single storey detached
building to be used within
Use Classes A1 (retail)
and/or Class A3 (food and
drink)
Approved
31-01-2006
Approved
14-03-2007
Approved
25-05-2008
Pending
Pending
Planning Policy
Page
67
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6
Pontardulais Road Retail Park: Key Planning History
Ref. No.
Address
Description
Decision
Decision
Date
2/1/84/137
0/03
MFI Pontardulais
Road, Dunvant,
Swansea.
W.H.Smith Do It All,
Pontardulais Road,
Fforestfach,
Swansea
Texas Homecare Ltd,
Pontardulais Road
Retail Park,
Fforestfach
MFI/ Do It All,
Pontardulais Road,
Fforestfach,
Swansea
A single storey retail storage
unit, for the sale of MFI
products and DIY products
together with new service
road. (Section 52
agreement).
Approved
27-09-1984
Retail warehouse (subject to
Section 52 agreement).
Approved
19-12-1985
Modification of Section 52
Agreement to planning
permission 84/1370 dated
29/11/84 (varied 09/12/87)
to allow wider range of
goods to be sold from the
premises (resolved that
modification be agreed).
Refurbishment of existing
retail units to create 6
smaller units, including
recladding, installation of
canopies and partial raising
of roof.
Removal of Condition 2 of
planning permission
June 2003 to allow the floor
area of each of the two
central retail units, currently
forming the eastern section
of the MFI store, to be
extended through the
introduction of internal
mezzanine floors.
Approved
2/1/85/151
5/03
PA98/0002
2003/0754
MFI & Dunelm
Furnishings,
Pontardulais Road,
Cadle, Swansea
2003/1665
MFI & Dunelm
Furnishings,
Pontardulais Road,
Cadle, Swansea
15-03-1999
Approved
27-06-2003
Approved
16-10-2003
Planning Policy
Page
68
www.dtz.com
2004/2176
Unit 6, Pontardulais
Road Retail Park,
Fforestfach,
Swansea
2005/1876
Units 6, 7 & 8
Pontardulais Road
Retail Park,
Fforestfach
2006/1015
Road Retail Park,
Fforestfach
2007/0415
Pontardulais Road
Retail Park,
Fforestfach
2007/2819
Pontardulais Road
Retail Park,
Fforestfach
2010/0153
Currys, Unit 8,
Pontardulais Road
Retail Park,
Fforestfach
retail unit to create three
separate units, including
installation of new entrance
canopies and alterations to
car park layout to provide
access to each unit.
retail unit to create three
separate units, including
installation of new entrance
canopies and alterations to
car park layout to provide
access to each unit
(amendment to planning
dated 16th December 2004).
Installation of internal
steelwork to facilitate
mezzanine floor (application
for a Certificate of Existing
Lawful Development)
Agreements attached to
planning permission
November 1984 and
December 1985 to allow
sales of fashion accessories
and jewellery from a single
unit.
Agreement attached to
planning permission
November 1984 and
December 1985 to allow
ancillary sales of fashion
clothing from a single unit.
Mezzanine floor (application
for a Certificate of Proposed
Lawful Development)
Approved
16-12-2004
Approved
20-12-2005
Approved
25-07-2006
Approved
28-12-2007
Approved
04-11-2008
Approved
23-03-2010
Planning Policy
Page
69
www.dtz.com
2010/0257
Road Retail Park,
Fforestfach
Subdivision of Unit 5 into
two separate retail units
(Class A1) with associated
external alterations.
Approved
09-04-2010
Planning Policy
Page
70
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Planning Policy
Page
71
www.dtz.com
7
Map of Existing Foodstore Operators
Existing Foodstore Provision (Within and Outside the City and County of Swansea with Catchments within the Administrative Area
(Source: CACI)
Planning Policy
www.dtz.com
8
Catchment Drive Time Maps: Existing Foodstores
www.dtz.com
Planning Policy
Page
74
www.dtz.com
Planning Policy
Page
75
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Planning Policy
Page
76
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Disclaimer
This report should not be relied upon as a basis for entering into transactions without seeking
specific, qualified, professional advice. Whilst facts have been rigorously checked, DTZ can take no
responsibility for any damage or loss suffered as a result of any inadvertent inaccuracy within this
report. Information contained herein should not, in whole or in part, be published, reproduced or
referred to without prior approval. Any such reproduction should be credited to DTZ.

Strategic Review of Retail Planning Policy

Transcription

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