Brecon Beacons National Park Authority Retail Paper

Home , Abercraf, Bernard de Neufmarche, Brecknock Wildlife Trust

Contents

1. Introduction

2. Aims of this paper

3. Policy Context

4. The role, function and vitality of Identified Retail Centres

5. Survey Areas

6. Hierarchy of BBNPA Centres

7. Town centre Retail Health and Vitality

8. Accommodating Growth in retail

9. Accessibility

10. Visitors Survey

11. Place Plans and Retail Centres

12. Conclusions

13. References

Brecon Beacons National Park Authority Retail Paper

1. Introduction

Purpose of the document

Welsh Government’s Local Development Plan Manual Edition 2 (2015) states the following: ‘Section 69 of the 2004 Act requires a Local Planning Authority to undertake a review of an LDP and report to the Welsh Government at such times as prescribed. To ensure that there is a regular and comprehensive assessment of whether plans remain up-to-date or whether changes are needed an authority should commence a S69 full review of its LDP at intervals not longer than every 4 years from initial adoption and then from the date of the last adoption following a review under S69 (Regulation 41). A plan review should draw upon published AMRs, evidence gathered through updated survey evidence and pertinent contextual indicators, including relevant changes to national policy’.

This document has been prepared to provide an evidence base and to examine retail in the Brecon Beacons National Park’s retail centres to inform policy for the replacement Local Development Plan. Evidence gathering information on past and existing circumstances to inform any changes to the retail strategy. This has been done through the analysis of time series data to help identify changes over recent years and any emerging patterns.

The Brecon Beacons National Park Authority Local Development Plan (adopted 17th December 2013) sets out the current local planning policy on retail and retail centres, which includes Brecon, Hay-on-Wye, Crickhowell and Talgarth.

This background paper has been prepared to consider whether the existing LDP policy position is still appropriate and whether any changes should be made.

Retail and Town Centres

Change has been an important feature of retail in the UK since the 1960s. This has included:

- Alternative, out of town, shopping centres - Larger shopping outlets, superstores, retail warehouses and retail parks - Shift towards a consumer society with retail as a leisurely activity - Increase use of online shopping and click and collect services.

More specifically to the National Park, there are 4 town centres which have been designated and retail centres. These include Brecon, Hay-on-Wye, Crickhowell and Talgarth.

Summary of issues relating to retail

- Whether the identified Retail Centres should be protected - Whether a retail hierarchy should provide a framework for retail development within the Park - The need for additional retail space - Location of retail stores in key settlements only - Ensuring the vitality and viability of Town Centres

Brecon Beacons National Park Authority Retail Paper

Identifying centres for analysis

Following the analysis of previous policy documents it is evident that they support the Brecon Beacons Management Plan’s identifying four towns as the main retail centres within the National Park. The four centres that warranted extensive analysis given their importance within the Park were Brecon, Hay-on- Wye, Crickhowell and Talgarth. Although these centres serve the daily needs of the local residents, they would also be construed as destination shopping centres given the importance of the tourist sector within the park, which ultimately can result in these centres specialising in certain types of retail or services in order to attract visitors.

Current possible issues

Given the uniqueness of the National Park and existing transport networks it is evident that a large number of residents look to strategic centres on the periphery to meet their retail needs in areas such as Cardiff, Swansea, Merthyr Tydfil, Llandeilo, Ystradgynlais, Abergavenny or Pontypool. Also, a key retail park outside the boundary of the park is the Cyfartha Retail Park in Merthyr Tydfil, which a lot of the National Park’s residents commute to.

Given the amount of people who travel from more remote areas to larger settlements or retail parks in order to meet their retail needs, this emphasizes the issue of over reliance on the private car which has to be viewed as a growing concern, thus increasing the need for local centres to provide for its residents.

2. Aims of this paper

 To establish an understanding of the Policy Context underpinning retail  To understand the success of the existing policy through providing sufficient evidence relating to the current retail provision and the function of local centers within the National Park  To set out the current situation in the Brecon Beacons National Park through the analysis of available baseline data,  To assist in identifying objectives, issues, options and necessary policy to ensure a vital and viable future for our retail sector

3. Policy Context

In order to meet the requirements of National Policy it was important to establish an understanding of the Policy Context underpinning National Parks and retail as is shown below:

Environment Act 1995

A National Park, in pursuing its first and second purposes, has a duty to seek to foster the economic and social well-being of local communities within its area.

Brecon Beacons National Park Authority Retail Paper

National Policy Context

Planning Policy Wales (Edition 10, December 2018)

Theme 2 – People and Places

This theme encourages the creation of sustainable places which are attractive, social, accessible, active, secure, welcoming, healthy and friendly. Development proposals should create the conditions to bring people together, making them want to live, work and play in areas qith a sense of place and well-being, creating prosperity for all (paragraph 2.3).

Theme 3 – Strategic and Spatial Choices

This theme supports planning authorities to locate major generators of travel demand, such as housing, employment, retailing, leisure and recreation, and community facilities within urban areas or areas which are, or can be, easily reached by walking or cycling and are well served by public transport (paragraph 3.46)

Theme 4 - Active and Social Places

One of the goals in Planning Policy Wales is for Wales to become more ‘Globally Responsible’ and one of the objectives for this is to locate housing development within existing settlements so that this enables the public to take advantage of the local facilities including retail services and to diversity and capitalise retail and commercial centres so that can adapt to future retail trends, such as the continued rise in internet shopping, so that Wales can continue to meet the needs of its local communities.

The theme supports and enables the provision of a range of well-designed and located homes which are well connected to existing retail and commercial centres situated at the heart of communities and job opportunities. It promotes retail and commercial centres as hubs, for a range of activities, recognising their social, cultural and economic importance (paragraph 4.02).

‘Development plans should:  Promote viable urban and rural retail and commercial centres as the most sustainable locations to live, work, shop, socialise and conduct business;  Sustain and enhance retail and commercial centres’ vibrancy, viability and attractiveness; and  Improve access to, and within, retail and commercial centres by all modes of transport, prioritising walking, cycling and public transport;  Establish through their development plan a clear strategy for retail development, supported by policies, to achieve vibrant, attractive and viable retail and commercial centres;  Establish a hierarchy of retail and commercial centres in their development plan strategy, identifying boundaries on the proposals map;  Identify and categorise retail and commercial centres by the functions they fulfill, consider their future roles, and recognise opportunities to support Welsh Government retail and commercial centre objectives;  Adopt a sequential approach to the selection of new sites in their development plan and when determining planning applications for retail and other complementary uses;

Brecon Beacons National Park Authority Retail Paper

 Take a positive approach, in partnership with the private sector, in identifying sites which accord with the sequential approach and are in line with the development plan retail strategy in terms of the size, scale and format of new developments needed;  Include policies in their plans to protect existing retail sites from inappropriate development;  May wish to consider extending the list of uses controlled in out-of-centre retail developments if the location of such uses are likely to lead to the loss of existing provision in retail and commercial centres;  Assess retail and commercial centre performance and the effectiveness of development plan policies by monitoring their health;  Adopt a positive approach to applications for conversion of suitable village properties to shops and for extensions to village shops designed to improve their viability.

Technical Advice Note 4: ‘Retailing and Town Centres’ (2016)

Technical Advice Note 4 should be read in conjunction with Planning Policy Wales (PPW). This advice note takes a ‘town centres first’ approach to the location of retail and commercial centres, and focuses on promoting established town, district, local and village centres as the most appropriate locations for retailing, leisure and for other functions complementary to it.

TAN 4 breaks down the objectives set within Planning Policy Wales. This chapter does recognize that retail and commercial centres are the focal point for shopping, leisure and tourism, local services and business/employment opportunities. This ‘town centres first’ approach ensures, through policy and decision making, that retail and commercial centres should be the first choice location in assessing the most appropriate places for a wide variety of developments.

TAN 4 stipulates that a wide range of uses are located in retail and commercial centres including retail, office, residential, leisure, tourism and community functions. These centres are traditionally characterized by having higher densities which increases scope for different uses, including residential, to be accommodated above retail and commercial floor space. Encouraging people to live and work in existing centres reinforces local demand and provides additional vibrancy during the day and in the evening. This diversity of uses, whilst benefiting the wider economy, will need to be carefully planning and managed to ensure that no conflicts arise, particularly with regards to amenity.

Paragraph 2.6 states that the planning system’s role in creating vibrant, viable and attractive retail and commercial centres is twofold: firstly in creating a positive and flexible policy environment for retail and commercial centres which recognizes the individual needs and potential of each centre and planning for their futures in a coordinated way and; secondly, taking other policy and development management decisions which do not undermine the importance of retail and commercial centres and the sustainable locations they offer for businesses and the community.

Through development plan policies and supplementary guidance, local planning authorities should develop their retail evidence base and plan positively to protect and enhance the vibrancy, viability and attractiveness of their retail and commercial centres.

Brecon Beacons National Park Authority Retail Paper

Technical Advice Note 6: ‘Planning for Sustainable Rural Communities’ (2010)

‘The planning system has a key role to play in supporting the delivery of sustainable rural communities. It can help to ensure that appropriate development takes place in the right place at the right time by making sufficient land available to provide homes and employment opportunities for local people, helping sustain rural services’ (TAN 6 2010, para 3.1.2).

Technical Advice Note 6 refers to Farm Shops. Paragraph 3.8.2 states that ‘Planning authorities, when considering planning applications for farm shops, should only limit the broad types of produce sold where an unrestricted retail use would result in a significant adverse effect on a village shop. Where there are no other shops in the locality, planning authorities should support a diversity of retail services, for example a sub post office, to help to meet essential needs of the community’ (TAN 6 2010, para 3.8.2).

Technical Advice Note 7: ‘Outdoor Advertisement Control’ (1996)

This advice note provides guidance for Local Planning Authorities and applicants on considering applications for advertisements.

Technical Advice Note 12: ‘Design’ (2016)

Technical Advice Note 12 provides advice and information on a number of related areas including the definition and principles of good design. In relation to retail development, paragraph 5.6.2 acknowledges that ‘in areas recognized for their landscape, townscape, architectural, archaeological and/or historic value, such as National Parks, Areas of Outstanding Natural Beauty, World Heritage Sites and conservation areas, the objective of sustaining character is particularly important and context appraisals should reflect this. The general aspects of the “character” objective of good design should be pursued but more detailed information may be needed in relation to key issues such as: in relation areas distinctive design and proportions of shopfronts, signs and lettering’ (TAN 12 2016, para 5.6.2).

The Wales Spatial Plan

The key points which are most relevant from the Wales Spatial Plan for retailing include:  The importance of locating new development in areas that are highly accessible to public transport (page 29)  Setting out a clear hierarchy for the location of public facilities so that everyday services are provided locally, whilst less frequently accessed services are provided at major centres, that can be accessed by a choice of means of transport (page 29)  Ensure decisions on the location pf major retail development take account of the opportunities provided by integrated transport in the urban networks and consider the impact on neighbouring centres (page 30)

Brecon Beacons National Park Authority Retail Paper

People, Places, futures: The Wales Spatial Plan 2008

The Wales Spatial Plan update is intended to provide a standalone document, without repeating the detail of the parent document, which provides the basis and context for the update. The update document is to:  Reflect new drivers of change, including One Wales and its key policies  Give status to the Area work which has been developed over the past two years

With regard to retail development, the Wales Spatial Plan update provides the following:

 Realising the full potential of the Area’s diverse environment and its unique cultural identity as a means of maintaining the region’s rural and natural integrity, to build higher value sustainable tourism and to enhance its role in responding to the effects of climate change  The diversity of Central Wales’ environment also offers unrealised economic potential if developed sensitively and knowledge-based industries, new environmental technologies and sustainable forms of high quality tourism, both inland and at the coast, can be encouraged.  The rich mosaic of towns and villages is important for employment, social and recreational activity and to access a wide range of services. In such a diverse area, it is important to recognise the interaction between places of varying sizes and their mutually supporting roles in providing access to services.  The hub and cluster approach seeks to encourage communities to work collaboratively, not competitively, to support their own needs and those of the smaller settlements and hinterlands which gravitate towards them, balancing the needs and aspirations of communities with appropriate plan-led growth and service provision. This approach will enable flexibility, entrepreneurship and community involvement in the determination of the future growth of communities and will be further explored through the community strategy and local development plan process.”

Within the Wales Spatial Plan Area Strategies, Brecon is marked as a Primary Key Settlement to be developed in Central Wales. With Crickhowell, Hay-on-Wye and Talgarth being Key Settlements.

Local Development Plan Manual Edition 2 (August 2015)

The Local Development Plan Manual provides practical and technical advice on how to prepare or revise a Local Development Plan. It provides an integrated approach incorporating the sustainability appraisal to emphasise the need to demonstrate the LDP is sound by ensuring it meets sustainable development objectives.

Wellbeing of Future Generations (Wales) Act 2015

The Well-being of Future Generations Act wants to make Wales a better place to live in now and for people in the future. This Act has been established to impose a ‘well-being duty’ on all public bodies in order to achieve ‘economic, social, environmental and cultural well-being for Wales’. The 7 well-being goals are as follows:

1. A globally responsible Wales 2. A prosperous Wales

Brecon Beacons National Park Authority Retail Paper

3. A resilient Wales 4. A healthier Wales 5. A more equal Wales 6. A Wales of cohesive communities 7. A Wales of vibrant culture and thriving Welsh language

This act ensures that public bodies, including the National Park Authorities have to think about long term ways to achieve a sustainable Wales and to ensure that the needs of the present are met without compromising the ability of future generations to meet their own needs. The National Park Authority must work to improve the economic, social, environmental and cultural well-being of Wales by setting objectives and identifying future trends.

Local Policy Context

Brecon Beacons National Park Management Plan 2015 – 2020

The National Park Management Plan is the single most important document for the National Park. This document coordinates and integrates other plans, strategies, and actions in the National Park that affect the two National Park purposes and its duty. No major decisions should be taken affecting the future of the National Park without reference to the National Park Management Plan. The management plan identifies Brecon, Hay-on-Wye, Crickhowell and Talgarth amongst the main settlements and highlights the importance of sustainable communities. (page 45).

The management plan also discusses sustainable economic development within the National Park:

‘Economic activity within the national park is predominantly made up of farming, land management, manufacturing, accommodation and retail sectors and much of the employment within the park is in the public sector. Tourism helps people appreciate the special qualities of the Park and is a major contributor to the economy. The Sustainable Tourism team of the National Park Authority and partner organisations in the tourism sector will continue to work together to improve the understanding of tourism trends and market behavior’ (2015 pp 53).

Brecon Beacons National Park Local Development Plan (December 2013)

The LDP Spatial Strategy recognises that supporting a strong and vibrant Retail Centre within the Primary Key Settlement and Key Settlements (Brecon, Crickhowell, Hay-on-Wye and Talgarth) is integral to the future viability of historic market towns and their surrounding communities.

The following policies are included within the retail strategy of the Local Development Plan:

- Policy 42 Development in Retail Centres - Policy 43 Neighbourhood, Village and Rural Shops - Policy 44 Change of Use of Public Houses

SP13 is the retail strategy for the Local Development Plan (2013). This strategy aims to maintain and enhance the vitality and viability of the identified retail centres and to support proposals which contribute to the regeneration of the Town Centres by;

Brecon Beacons National Park Authority Retail Paper

a) Safeguarding existing retail uses in the Retails Centres; b) Maintaining and enhancing the diversity of uses in the identified Retail Centres.

Policy 42 (Development in Retail Centres) details appropriate development within Retail Centres in the National Park. This policy aims to prevent changes of use which would result in the loss of existing retail uses. Such applications would only be permitted where the applicant is able to demonstrate either that the proposed change of use does not impact on the Retail Centre, or that there is no longer a need for a retail use. The policy also encourages a diversity of uses within town centres by ensuring that all new developments within the Retail Centre are for the following uses:

- A1: Shops - A2: Financial and Professional Services - A3: Restaurants and Cafes - B1: Business - C1: Hotels - D1: Non-Residential Institutions - D2: Assembly and Leisure

Policy 42 also ensures that all changes of use that occur within the retail centre are for use classes A2, A3, B1, C1, D1 or D2.

Brecon Beacons National Park Local Development Plan Proposals Maps

In order to identify the retail area that was to be surveyed for this paper existing LDP proposals maps displaying the retail core of each settlement were considered. Existing retail policy is shown on the maps (shaded blue) and this was used as a starting point for the survey areas:

Brecon

Brecon Beacons National Park Authority Retail Paper

Hay-on-Wye

Crickhowell

Brecon Beacons National Park Authority Retail Paper

Talgarth

4. The role and function, vitality of Identified Retail Centres

The Local Development Plan identifies that Brecon, Hay and Crickhowell, whilst operating on different scales, are all vibrant market towns, which provide essential services to local and surrounding areas while also serving as a destination centre for tourists. Below is an analysis of the role and function of the centres within the National Park.

The retail strategy for this plan is therefore to maintain the level of retail provision available in each town while also allowing for appropriate growth that will increase the retail vitality and viability of each centre. The desired outcome is to improve the ability of these centres to remain attractive places to live and visit, while also allowing them to provide a valuable role in meeting the needs of local communities and visitors. The NPA will also support proposals which seek to attract niche retail opportunities.

Local Development Plan monitoring of retail

To ensure that the policy meets its strategic aims, the LDP Monitoring framework examines the vacancy rates within town centres year on year. Where vacancy rates rise above an acceptable level the NPA is committed to reviewing the effectiveness of Policy 42, and where necessary facilitating an early review of the Local Development Plan. The table below sets out the policy target, indicator, monitoring target and assessment triggers:

Brecon Beacons National Park Authority Retail Paper

Policy Target Indicator Annual/Interim Assessment Trigger Monitoring Target To ensure vacancy rates Annual vacancy rates of Vacancy rate in the town centre Vacancy rate in the town within the town centres of the town centres of the of Brecon remains at or below centre of Brecon surpasses the National Park do not National Park. 10%, Hay-on-Wye and 15%, Hay-on-Wye surpasses increase so as to adversely Crickhowell remain below 5% 6%, Crickhowell surpasses impact on the vitality of and the vacancy rate in Talgarth 6% and Talgarth surpasses those centres. is reduced to 25%. 40%.

Monitor vacancy rate of retail units up to 2018 and review Policy 42 if considered necessary.

Brecon

Historic context

Brecon was established as a military town, which it remains to this day following Bernard de Neufmarche, the half-brother of William the Conqueror establishing a castle and a priory of which the remains stand in the grounds of the Castle Hotel. A walled town grew up around Bernard de Neufmarche’s Castle and Priory. During the Napeoleonic wars, French prisoners were incarcerated in the town. The battle of Rourke’s Drift (1879) which was one of the most heroic battles of all time involving 140 soldiers facing more than 4,000 Zulu warriors is commemorated in the South Wales Borderers Museum at Brecon Barracks. The old county hall built in 1842 contains the Brecknock museum with its wealth of local history exhibits. Brecon is also considered to be a historic cathedral town as it includes the Priory of St John the abandoned evangelist which was built in the 13th and 14th centuries on the site of a Norman Church (which became Brecon Cathedral in 1923).

Population

The town of Brecon has a population of approximately 8,250 residents.

Vibrancy of town

The town of Brecon is a vibrant town which includes a wide range of independent and national retailers which meets some of the need of the local residents, tourists and residents from the surrounding areas.

Brecon can be considered a market town as there is a retail market on every Tuesday & Friday, a farmers market which takes place on the second Saturday of each month as well as a craft market which occurs every third Saturday of each month between March and December. There is also an antique and collectors fair which is held on the last Saturday of each month.

The town has quite a vibrant community with clubs and societies including Brecknock Careers Centre Brecknock Rural Skill Centre, Brecknock Wildlife Trust, Brecknock Young Farmers Club, Brecknockshire Agricultural Society, Brecon and District Disabled Club, Brecon Corinthians AFC Social Club, Brecon District Citizen Advocacy, Brecon District Contact Association, Brecon Football Club, Brecon & Radnor Labour

Brecon Beacons National Park Authority Retail Paper

Party, Brecon Rugby Football Club, Brecon Unemployed Self Help Group, Brecon Wheelers cycling Club, Welsh Food Promotions Development Office.

Hay on Wye

Historic context

Hay on Wye has a history of coaching inns and pubs, and the tradition of offering food and lodging to travelers continues to this day with accommodation and cuisine.

Arguably due to its location the town has seen many battles through the ages. The castle has been attacked several times in its history from both sides of the border. It was destroyed by the English King John in 1216, and soon after the Welsh Prince Llywelyn set fire to it. The most recent fire, which destroyed a great part of the castle, occurred in 1977. Its history of being tussled over by Welsh and English has given Hay a unique duality.

King Offa of Mercia built an enormous earth wall in the second half of the eight century to protect himself from the Welsh. This now forms the line of the Offa's Dyke Footpath, which runs from South to North Wales along the border. The town also has a second and older castle hidden away and unmarked, next to the church.

Hay on Wye was the world’s first book town and appeals to many authors, writers and historians. It was Richard Booth, self-proclaimed King of Hay and owner of Hay castle, who opened his first second hand bookshop in 1961 and pursued his dream to create the largest second hand and antiquarian book selling centre in the world.

Population

The resident population of Hay on Wye stands at around 1,500.

Vibrancy of town

Hay on Wye is famed for being a book town which explains why one of the major events of the year is the Hay Festival of Literature for which an estimated 80,000 people attend it during the month of May.

As well as the tens of books stores there is also a traditional market which is held within the town on Thursdays in the Memorial Square, the Butter Market and around the Town Clock, from 8am to mid- afternoon which offers products ranging from antiques and flowers to fresh produce such as dairy or baked goods.

Hay on Wye has a vibrant community with a lot of local leisure activities available for tourists and locals such as Clay Shooting Wales, fishing or Hay outdoor canoe training while there are numerous local clubs and societies such as Hay St Mary's Football Club.

Brecon Beacons National Park Authority Retail Paper

Crickhowell

Historic context

Crickhowell's industry has historically been mostly agriculture. Sheep farming in the surrounding hills has played a part for hundreds of years. The town does include a castle although the robbing of the stone by locals to build most of the surrounding properties has left only the remains of two towers, one circular and one rectangular. The grounds in which the remains of the castle lie, were a camp for the Indian Army during the Second World War.

The tower that stands in Tower Street was one time thought to be a drum tower that belonged to the castle's curtain wail, but research has found that it is a folly. Also the stone window mullions and the tower were reputedly taken from Llanfair Chapel and built into its structure.

Population

The population of Crickhowell currently stands at around 2,000.

Vibrancy of town

Crickhowell is a thriving market town which includes numerous small independent retailers. The town includes primary and secondary schools, a myriad of businesses and organisations, hotels, bunkhouses and guest houses.

There are also numerous diverse businesses within Crickhowell of which some are located at modern units within two small industrial parks. Rural craft workshops are hidden away within the town, and latest technology enables many people to enjoy running their businesses from homes in idyllic settings.

There are many clubs and societies within Crickhowell including a tennis club, rotary club, choral, horticultural, historical, sports and athletics as well as Crickhowell weavers, spinners and dyers.

Talgarth

Historic Context

A key feature of the historic context of Talgarth includes the story of effectively the founder of the Presbyterian church of Wales, Hywel Harris (1714-1773). Born in Talgarth in 1714, Harris’ life involved tired less work on behalf of his new found faith and converting others, thus he has been given the title of ‘father of Methodism in Wales.’ When he died in 1773, Hywel Harris was buried in his home town of Talgarth where twenty thousand people are said to have attended his funeral.

Talgarth has a rich history including that the town was the royal residence of Brychan, King of Brycheiniog during the 5th Century. St Gwendoline is buried at the church in Talgarth, as is Howell Harris, founding father of Methodism, whose ministry was at nearby Trefecca. 12th Century Bronllys Castle is a Scheduled Ancient Monument at the eastern entrance to the town, which also forms the gateway into the Brecon Beacons National Park.

Brecon Beacons National Park Authority Retail Paper

Population

The town of Talgarth has a population of approximately 1,724 residents.

Vibrancy of the town

The decommissioning of the Hereford-Brecon line in the 1960s under the Beeching Review had a severe negative impact on the economic vibrancy of the town. Nevertheless, the former Mid Wales Hospital with its Nursing School continued to play a vital role locally, as the major employer in the area. However, the wind down of the Mid Wales Hospital, which commenced in the early 1990s, and its eventual closure in 1999, had a major impact on the town. Over four hundred NHS staff were transferred to other sites and some took early retirement. There is currently an evident need in Talgarth to stimulate regeneration and foster economic vibrancy given that the former Mid Wales Hospital was a major employer in the area until its closure in 1999.

However, given the downturn that Talgarth may have experienced over recent years it still posses’ a lot of potential given its rich historical background and its good level of transport routes such as the Talgarth Relief Road. There is also a lot of development potential in the site of the Former Mid Wales Hospital (which is currently in administration) given its location and scale, while Talgarth as a whole offers an abundant of environmental and sustainable assets.

The town also has quite a vibrant community which includes many different societies and clubs, including the Gwernyfed Rugby Club, Gwernyfed Football Club, Talgarth Cricket Club and the Bowling Club. This as well as its potential as a tourist attraction given its a popularity for walking, mountain biking and pony trekking, and is the home of the Black Mountains Gliding Club makes Talgarth a town full of potential for improvement.

5. Survey areas

On site surveys were conducted in each town. The purpose of the survey was to establish the amount and distribution of different forms of retailing to “provide a useful profile of the industry and assist in identifying the shopping hierarchy” as quoted from TAN 4. The following maps display the areas surveyed as well as the use classes which each building within the survey area falls under:

Brecon Beacons National Park Authority Retail Paper

Brecon

Hay-on-Wye

Brecon Beacons National Park Authority Retail Paper

Crickhowell

Talgarth

Brecon Beacons National Park Authority Retail Paper

6. Hierarchy of BBNPA Centres

As well as the role and function of the centres, the determination of the hierarchy of centres in the park should be based in part on retail provision available in each town. To quote TAN 4 “the amount and distribution of different forms of retailing across a local authority area can provide a useful profile of the industry and assist in identifying the shopping hierarchy.” The following tables provide a summary of the retail provision for the National Park centres:

Brecon 2018

Summary No of Units % Total commercial Total A Use Class 157 100% Total Convenience 10 6% Total Comparison 65 41.5% Total Services 65 41.5% Total vacant 17 11%

Hay on Wye 2018

Summary No of Units % Total commercial Total A Use Class 127 100% Total Convenience 7 5% Total Comparison 81 64% Total Services 35 28% Total vacant 4 3%

Crickhowell 2018

Summary No of Units % Total commercial Total A Use Class 42 100% Total Convenience 7 16.7% Total Comparison 13 31% Total Services 19 45.2% Total vacant 3 7.1%

Talgarth 2018

Summary No of Units % Total commercial Total A Use Class 18 100% 19

Brecon Beacons National Park Authority Retail Paper

Total Convenience 3 17% Total Comparison 5 28% Total Services 9 50% Total vacant 1 5%

Establishing the hierarchy

As defined by Technical Advice Note 4 the retail centres analysed should be ranked in the following hierarchy:

Hierarchy Description (TAN4)

Higher order These centres need to be accessible to a large number of people, and the scale centres and diverse range of uses present will reflect the needs of a population that is normally greater than the local community. Higher order centres are typically characterized by combinations of shops, offices, financial and professional services, food and drink establishments, hotels, education facilities, entertainment and leisure, non-residential institutions as well as residential.

Lower order These areas are characterized by smaller scale provision and fewer uses with the centres intention of primarily serving the needs of a local community. Lower order centres will typically include shops, financial and professional services, food and drink, and non-residential institutions of an appropriate scale, but depending on the centre may include other uses.

Although the background work needed in order to establish a retail hierarchy has been undertaken, it was felt that having analysed the town centres, their retail provision and functioning purposes do not fall within the definitions of the above hierarchy. Also given that there are only four centres considered to be of considerable retail significance, to group these would be restrictive as there is an opportunity to formulate unique policies for each centre to deal with their current issues in a more detailed manner. Therefore for the purposes of this paper it has been decided not to rank the centres within the TAN 4 retail hierarchy.

Retail provision

Comparison goods Comparison goods are products which consumers purchase relatively infrequently and so they usually research and compare prices, quality and other features prior to purchasing. This type can include furniture, electronics, cars etc. Convenience goods Convenience goods are relatively inexpensive goods which are purchased easily and frequently such as groceries, petrol, toiletries etc.

Brecon Beacons National Park Authority Retail Paper

Services Services are other uses you would expect to find in a retail centre that offer a range of professional, financial or personal services such as estate agents, solicitors, hairdressers etc. Services also includes food and drink establishments. The following tables display a detailed representation of the provision available in each town centre following retail surveys conducted during April 2018:

Brecon

Summary No of Units % % of total floor 2 area (m ) Total commercial Total A Use Class 157 100% 78% Total Convenience 10 6% 15% Total Comparison 65 41.5% 33% Total Services 65 41.5% 25% Total vacant 17 11% 6%

Convenience Stores

Bakers 2 20% Butchers 2 20% Confectionary 1 10% Off license 2 20% Supermarket 2 20% Himalayan Food 1 10% Total 10 100%

Comparison Stores Footwear 2 3% General (mixed clothing) 9 14% Furniture, Carpets textiles 4 6% Booksellers 3 5% DIY, Hardware 2 3% Chemist 2 3% Charity shop 5 8% Electrical 3 5% Gift Shop 3 5% Outdoor equipment 2 3% Jewelers & Antiques shop 2 3%

Brecon Beacons National Park Authority Retail Paper

Toy Shop 3 5% Flower Shop 2 3% Garden Goods 1 1.5% Card shop, stationary, art & craft 6 9% Art gallery 2 3% Mobile Phones Shop 2 3% Fancy Dress Shop 1 1.5% Sports Shop 2 3% Stoves 1 1.5% Bike Shop 1 1.5% Other 7 10% Total 65 100%

Services (A Class) Restaurant/café 14 21.6% Hot Food takeaway 9 13.8% Hairdressers 8 12.3% Banks/Building Society 7 10.8% Estate Agents/Valuers 5 7.7% Other professional services 10 15.4% Public Houses 8 12.3% Opticians 3 4.6% Travel Agents 1 1.5% Total 65 100%

Other Service Hotel & Guest House 1 4.8% Non-residential institutions 8 38.1% Assembly & leisure 2 9.5% Sui Generis 6 28.6% Business 4 19% Total 21 100%

Hay-on-Wye

Summary % of total floor 2 No of Units % area (m ) Total commercial Total A Use Class 127 100% 75% Total Convenience 7 5% 4%

Brecon Beacons National Park Authority Retail Paper

Total Comparison 81 64% 48% Total Services 35 28% 24% Total vacant 4 3% 4%

Convenience Stores Deli 1 14.3% Butchers 2 28.55% General convenience (Spar, Londis) 2 28.55% Greengrocer 1 14.3% Newsagents 1 14.3% Total 7 100%

Comparison Stores General (mixed clothing) 10 12.3% Furniture, Carpets textiles 2 2.5% Booksellers 14 17.2% DIY, Hard wear 2 2.5% Chemist 1 1.2% Charity shop 5 6.2% Electrical 2 2.5% Gift Shop 5 6.2% Outdoor equipment 2 2.5% Jewellery & Antiques shop 17 21% Flower Shop 1 1.2% Mobile Phones Shop 1 1.2% Home accessories 4 5% Pottery Shop 1 1.2% Art shop/gallery 9 11.1% Other 5 6.2% Total 81 100%

Services (A Class) Restaurant/café 11 31.4% Hot Food takeaway 2 5.7% Hairdressers 4 11.4% Banks/Building soc 2 5.7% Estate Agents/Valuers 3 8.6% Other professional services 9 25.7% Public Houses 3 8.6% Post Office 1 2.9% Total 35 100% 23

Brecon Beacons National Park Authority Retail Paper

Other Service Hotel & Guest House 3 33.33% Non-residential institutions 3 33.33% Sui Generis 3 33.33% Business 0 0% Total 9 100%

Crickhowell

Summary % of total floor 2 No of Units % area (m ) Total commercial Total A Use Class 42 100% 61% Total Convenience 7 16.7% 5% Total Comparison 13 31% 33% Total Services 19 45.2% 22% Total vacant 3 7.1% 3%

Convenience Stores Butchers 1 14.3% General convenience 1 14.3% Off license 1 14.3% Newsagents 1 14.3% Grocers 2 28.5% Bakery 1 14.3% Total 7 100%

Comparison Stores General (mixed clothing) 2 15.3% Furniture, Carpets textiles 3 23.1% Chemist 1 7.7% Charity shop 2 15.4% Book shop 1 7.7% Flower Shop 1 7.7% Other 3 23.1% Total 13 100%

Brecon Beacons National Park Authority Retail Paper

Services (A Class) Restaurant/café 2 10.5% Hot Food takeaway 2 10.5% Hairdressers 3 15.8% Banks/Building Society 2 10.5% Estate Agents/Valuers 3 15.8% Other professional services 3 15.8% Public Houses 3 15.8% Post Office 1 5.3% Total 19 100%

Other Service Hotel & Guest House 1 16.66% Non-residential institutions 1 16.66% Sui Generis 1 16.66% Business 3 50% Total 6 100%

Talgarth

Summary % of total floor No of Units % area (m2) Total commercial Total A Use Class 18 100% 41% Total Convenience 3 17% 10% Total Comparison 5 28% 7% 27% Total Services 9 50% Total vacant 1 5% 1.5%

Convenience Stores Newsagents 1 33.3% Butchers 1 33.3% General Convenience 1 33.3% Total 3 100%

Comparison Stores Gift Shop 2 40% Chemist 1 20% Antique Shop 1 20%

Brecon Beacons National Park Authority Retail Paper

Furniture/DIY 1 20% Total 5 100%

Services (A Class) Restaurant/café 2 22.2% Hairdressers 2 22.2% Estate Agents/Valuers 1 11.1% Public Houses 3 33.3% Hot Food Takeaway 1 11.1% Total 9 100%

Other Service Non-residential institutions 4 100% Total 4 100%

Local Markets Local retail markets and farmers markets make an important contribution to the social and economic well- being of our communities. Such markets provide additional retail opportunities in the town centres. Examples of existing retail market venues in the National Park include Brecon Market Hall, Crickhowell Market Hall and in the Cheese Market and Butter Market in Hay. Many of these markets have become part of the social and cultural fabric of the community and can be a source of tourism.

7. Town centre Retail Health and Vitality

To sustain and enhance the vibrancy, viability and attractiveness of retail and commercial centres is an objective set by Welsh Government. ‘Vibrancy is reflected in how busy and diverse a retail and commercial centre is at different times and in different parts, and in the attractiveness of the facilities and character which draw in trade. Viability, on the other hand, refers to the ability of the centre to attract and retain investment, not only to maintain the fabric, but also to allow for improvement and adaption to changing needs’ (Planning Policy Wales, 9th Edition 2016).

Technical Advice Note 4 provides the indicators of vitality and viability, and encourages regular ‘health checks’ of retail and commercial centres. This allows the data to be monitored, allowing any evident trends to be studied. Any changes can also inform plan review and development management decisions to ensure that retail centres remain vibrant and attractive. The Brecon Beacons National Park Authority undertake a retail study annually to inform the Annual Monitoring Report and ensure that any changes are recorded.

The following analysis was structured in line with the TAN 4 indicators. Due to financial constraints it is not possible to fulfill each information requirement, however the available data does strengthen this paper.

The following analysis was structured in line with the TAN 4 indicators.

Brecon Beacons National Park Authority Retail Paper

Commercial yield on non-domestic property Shopping centre yield data is normally available from the district valuation office. Unfortunately data is not available for the National Park. Shopping rents This information is normally supplied by the Valuation Agency, but hasn’t been obtained by the authority. The diversity of uses (number of units) A time series of data has been incorporated into this paper to illustrate any past and future trends. The following pie charts display the percentage of the different use classes seen in Brecon, Talgarth, Crickhowell and Hay-on-Wye in 2015, 2016, 2017 and 2018. Brecon

Use Classes 2014 - 2015 Sui Generis A2 Non-opertational Vacant C3 3% 8% 2% 8% D1 C1 5% 5% 1% A3 D2 14% 1% D3/D1 1% B1 5%

A1 47% Use Classes 2015 - 2016 Non-operational Vacant 2% Sui Generis 8% D2 D3/D1 3% 1% 1% A1 D1 45% C3 5% 5% C1 1% B1 5%

A3 16% A2 8%

Brecon Beacons National Park Authority Retail Paper

Use Classes 2016 - 2017 C3 Non-operational Sui Generis D3/D1 Vacant 6% 2% 1% 3% 7% D1 D2 5% 1% A1 C1 45% 0% B1 2%

A3 16%

A2 12%

Use Classes 2017-2018 A2 11% A1/A3 Vacant 1% 10% SG 3% A1 45% non-operational 2%

D2 1% D1 5% C3 6% C1 0% B1 1% A3 15%

Although none of the use classes have experienced any dramatic changes over the past four years, the changes that are most relevant to this study are the 2% increase in vacant units and the 3% decrease seen in the A1 use class from 2014/2015 to 2017/2018. When considering current circumstances elsewhere in the country these figures are discouraging given the continuing decline of retail centres on high streets. The slight increase in vacant units within the town is not alarming however it does indicate that the town needs to address the number of vacant units in order to improve the vitality of the centre. Retail remains the most dominant use class (45%), while the vacancy rate is increased at 2%.

Brecon Beacons National Park Authority Retail Paper

There has been a 1% increase in the number of A3 units within the retail centre between 2014/2015 and 2017/2018 and a 1% increase in the number of C3 units within the retail centre. The findings of the retail surveys undertaken as monitoring for the Local Development Plan (2013) from 2014 – 2018 have determined that the vacancy rates in Brecon have remained within the acceptable levels and that Policy 42 of the Local Development Plan has been successful in delivering the retail strategy. The table below illustrates the floor space associated with each use in Brecon as recorded in April 2018:

Use Class Approximate floor area in Brecon (m²) A1 16,941.8 m² A2 2,566.5 m² A3 4,602.3 m² B1 318.5 m² C1 679.2 m² C3 1,434.2 m² D1 3,584 m² D2 479.4 m² A1/A3 146.5 m² Sui Generis 378 m² Non-operational 283.8 m²

Hay-on-Wye

Use Classes 2014 - 2015 Sui Generis Vacant A3 2% 2% C3 11% B1 17% 4%

D1 A2 2% 4% C1 2%

A1 56%

Brecon Beacons National Park Authority Retail Paper

Use Classes 2015 - 2016 D1 Sui Generis Vacant C3 1% 2% 1% 16% C1 2% B1 4%

A1 A3 57% 13%

A2 4% A1/A3 0%

Use Classes 2016 - 2017 Sui Generis Vacant C1 D1 2% 1% 2% C3 1% 16%

B1 4%

A3 A1 13% 57%

A2 4% A1/A3 0%

Brecon Beacons National Park Authority Retail Paper

Use Classes 2017 -2018 C1 SG Vacant D1 1% 2% 4% 1%

C3 18%

B1 0%

A1 A3 54% 10%

A2 7% A1/A3 3%

The most significant change experienced over the past four years was the 2% decrease in the A1 (Retail) use class. The vacancy rate has increased by 2% between 2014/2015 and 2017/2018. The number of A3 units has decreased by 1% between these periods. Most use classes have seen slight changes however no use classes have experienced any significant gains or losses. The most dominant use class remains as retail (A1) which is at 54%. The findings of the retail surveys undertaken as monitoring for the Local Development Plan (2013) from 2014 – 2018 have determined that the vacancy rates in Hay-on-Wye have remained within the acceptable levels and that Policy 42 of the Local Development Plan has been successful in delivering the retail strategy. The table below illustrates the floor space associated with each use in Hay-on-Wye as recorded in April 2018: Use Class Approximate floor area in Hay-on-Wye (m²) A1 7,976.2 m² A1/A3 912 m² A2 1,011.5 m² A3 2,070.8 m² B1 0 m² C1 178.6 m² D1 432.6 m² D2 0 m² D3 0 m² C3 2,308.3 m² Sui Generis 174.4 m² Non-operational 0 m²

Brecon Beacons National Park Authority Retail Paper

Crickhowell

Use Classes 2014 - 2015 Vacant A3 4% 8% B1 C3 8% 30% A2 7%

C1 4% D1 4%

Sui Generis 1% A1 34%

Use Classes 2015 - 2016 Vacant A3 4% 10%

C3 B1 33% 8%

A2 7%

C1 3%

SG 1%

A1 34%

Brecon Beacons National Park Authority Retail Paper

Use Classes 2016 - 2017

Vacant A3 3% 10% B1 C3 5% 35% A2 10%

C1 3%

Sui Generis 1%

D1 0%

A1 33%

Use Classes 2017-2018

C3 SG A1 A2 29% 1% 36% 7%

B1 6%

A3 11%

Vacant 4%

C3 34%

The most significant changes experienced over the past four years is the continuous prominence of the C3 use class within the retail centre. The decrease in retail units illustrates that retail shops have changed use into other classes because rather

Brecon Beacons National Park Authority Retail Paper encouragingly the level of vacant units has remained the same at 4% since 2014/2015. Most use classes have seen slight changes whereas the D1 (Non-residential institutions) use class has experienced a significant decrease of 4% since 2014/2015. The most dominant use class is now A1 (36%) however closely followed by use class C3 (34%) due to the boundary of the retail centre including a residential street. The findings of the retail surveys undertaken as monitoring for the Local Development Plan (2013) from 2014 – 2018 have determined that the vacancy rates in Crickhowell have remained within the acceptable levels and that Policy 42 of the Local Development Plan has been successful in delivering the retail strategy. The table below illustrates the floor space associated with each use in Crickhowell as recorded in April 2018: Use Class Approximate floor area in Crickhowell (m²) A1 4,682.6 m² A2 286.1 m² A3 1,277.2 m² B1 538.6 m² C1 833.7 m² D1 0 m² D2 0 m² D3 0 m² C3 2,103 m² Sui Generis 269.6 m² Non-operational 0 m²

Talgarth Use Classes 2014 - 2015 Vacant A3 6% 11%

B1 11% A1 49%

A2 9%

C1 6% SG D1 2% 6%

Brecon Beacons National Park Authority Retail Paper

Use Classes 2015 - 2016

Vacant A1 D1 11% 16% 4% A2 2%

A3 11%

B1 2%

C1 0%

C3 54%

Use Classes 2016 - 2017 Vacant D1 9% A1 4% 18%

A2 2%

A3 11%

B1 2%

C1 0%

C3 54%

Brecon Beacons National Park Authority Retail Paper

Use Classes 2017-2018

Vacant SG D1 A1 4% 2% 4% 19%

A2 2%

A3 11%

C3 C1 B1 56% 0% 2%

The most significant changes experienced over the past four years is the prominence of the C3 use class within the retail centre which has increased to 56% since the 2015/2016 retail study. There has been a 5% decrease in the number of vacant units in the town which currently resides as 4%. The most dominant use class is now C3 (56%), this is due to the boundary of the retail centre including a predominantly residential street. The vacancy rate is low at 3%. The findings of the retail surveys undertaken as monitoring for the Local Development Plan (2013) from 2015 – 2018 have determined that the vacancy rates in Talgarth have remained within the acceptable levels and that Policy 42 of the Local Development Plan has been successful in delivering the retail strategy. The table below illustrates the floor space associated with each use in Talgarth as recorded in April 2018:

Use Class Approximate floor area in Talgarth (m²) A1 1,279.1 m² A2 21.4 m² A3 1,072.1 m² B1 90.2 m² C1 0 m² D1 486.9 m² D2 0 m² D3 0 m² C3 2,537.8 m² Sui Generis 182.6 m² Non-operational 0 m²

Brecon Beacons National Park Authority Retail Paper

Vacant Units The current vacant floor space within the defined retail centres as recorded in April 2018 are as follows:

Retail Centre Vacant floor space

Crickhowell 316.9 m²

Brecon 1,951.9 m²

Talgarth 87.7 m²

Hay-on-Wye 562.1 m²

The Independent Retail Report for Wales (2017) undertaken by the NFRN Federation of Independent Retailers states that ‘town centres in Wales continue to have the highest vacancy rate, with 14.6% of retail premises in Welsh town centre currently vacant, down from 15.1% in 2015’.

8. Accommodating Growth in retail Chapter 6 of TAN 4 relates to the assessment of Retail Need. This is the starting point for planning for new retail development in the review of the Local Development Plan. Paragraph 6.1 states that the quantitative needs test is based on forecasting of expenditure on a certain type of retail goods over a period of time, which is then assessed against the current level of provision. Any shortfall in the provision is then expressed, using expenditure per square metre calculations, as the level of new retail provision required. TAN 4 details the information required for an assessment of the retail need as the following:  ‘Existing and forecasted population levels and distribution.  Forecast expenditure for specific classes of goods to be sold, within the broad categories of comparison and convenience goods, which are provided at the lowest geographical area possible to reflect local circumstances.  Sales density data for both existing and future retail provision which is realistic and benchmarked against similar retail developments in the area; and  Catchment areas for centres and individual stores which reflect the size and scale of the development and the likely draw of a particular scheme’. Welsh Government’s Statistics for Wales report on the Population projections for National Parks in Wales (2014 based) show the population in 2014 as 33,580. This is projected to increase to 34,220 by 2029 which is a 1.9% increase. Through annual monitoring of the retail centres within the Brecon Beacons National Park it is evident that there is are yearly changes and movement, with the percentage of vacancy rate varying for each study. The vacancy rates within all four retail centres since the 2014 – 2015 study have remained under the trigger figure set within the current LDP however have fluctuated.

Brecon Beacons National Park Authority Retail Paper

Retail Centre Vacancy Vacancy Rate Vacancy Rate Vacancy Rate Implications for Rate 2014 - 2015 - 2016 2016 - 2017 2017-2018 monitoring 2015 Brecon 8% 8% 7% 10% The vacancy level is within target levels being under 10% Crickhowell 4% 4% 3% 4% The vacancy level is within target levels being under 5% Hay 2% 1% 3% 4% The vacancy level is within target levels being under 5% Talgarth 6% 11% 9% 4% The vacancy level is within target levels being under 25%

The level of vacant floor space within each of the retail centres as of April 2018 can be seen within the table below:

Retail Centre Vacant floor space

Crickhowell 316.9 m²

Brecon 1,951.9 m²

Talgarth 87.7 m²

Hay-on-Wye 562.1 m²

The fluctuations within the vacancy levels, ensures that retail floor-space is available for additional and new businesses, with a continuous turnover of existing businesses and uses within the defined centres. The existing retail centres (Brecon, Hay-on-Wye, Crickhowell and Talgarth) have tight boundaries which surround the primary retail core within the particular town. Within these boundaries are a number of streets which have lost their business uses and are now residential in nature. This is illustrated by the increase in or high percentage of C3 units in each of the centres on an annual basis. The table below illustrates that Brecon has a relatively low number of C3 dwellings within the retail centre, remaining between 5% - 6%. The number of C3 units was not measured in the retail centre of Talgarth in the 2014 – 2015 study, however was measured in the subsequent years as 56%.

Brecon Beacons National Park Authority Retail Paper

Retail Centre C3 units 2014 - C3 units 2015 - C3 units 2016 - C3 units 2017 - 2015 2016 2017 2018

Brecon 5% 5% 6% 6% Crickhowell 30% 33% 35% 34% Hay 17% 16% 16% 18% Talgarth 0% 54% 54% 56%

Using the retail centre of Talgarth as an example, due to the high percentage of C3 dwellings, there is a particular street (Bell Street) which historically was made up of retail shops, public houses and cafes. This street is now predominantly residential in use.

9. Accessibility Below is a table which illustrates the direct public bus links into the retail centre, the main public highways which provide access to the centres and the level of car parking available at the location:

Retail Centre Direct Public Bus links Train Main highway Access Car Parking

Brecon Swansea, Neath, N/A A40, A470, B4520, 12 Long stay public car Ystradgynlais, Abercraf, B4601, B4602 parks Ynyswen, Pen-y-Cae, 3 Short stay public car Crai, Defynnog, parks Sennybridge, Llanspyddid, Cardiff, 2 Supermarket Car Parks Pontypridd, Merthyr Tydfil, Storey Arms, Libanus, Felin Facg, Bronllys, Talgarth, Three Cocks, Llyswen, Boughrood, Erwood, Builth Wells, Llandrindod, Crossgates, Newtown

Hay-on-Wye Builth, Erwood, N/A B4351, B4350, B4348 1 Long stay public car Boughrood, Glasbury, park Clyro, Whitney-on- 1 Short stay public car Wye, Hereford, Letton, park Brecon, Bronllys, Talgarth

Brecon Beacons National Park Authority Retail Paper

Crickhowell Brecon, Cefn Brynich, N/A A40, A4077 1 Long stay public car Llanfrynach, Talybont- park on-Usk, Bwlch, Glangrwyney, Abergavenny, Llangattock, Llangynidr

Talgarth Brecon, Hay-on-Wye, N/A A479, A4078, B4560 1 long stay public car Hereford, Builth Wells, park Newtown, Bronllys, Felinfach, Three Cocks, Glasbury, Clyro, Llandrindod Wells, Llyswen, Libanus, Merthyr Tydfil

Due to the nature of the National Park, the four retail centres are located within relatively rural locations to the middle and east of the Park boundary. There is good direct bus links to surrounding villages, towns and cities. With links from the main transport hubs (Cardiff, Hereford, Merthyr Tydfil, Abergavenny, and Newtown) to further bus and rail services.

10. Visitors survey For the TAN 4 indicators the most relevant information at the disposal of the Authority is the research undertaken by the Brecon Beacons National Park Tourist Department in partnership with other bodies which aimed to investigate the characteristics of visits and visitors to various tourist centres within the park. Their research included handing out self-completion questionnaires as well as face to face interviewing. The locations of survey interviews included Brecon, Crickhowell, Hay-on-Wye and Talgarth. 24% of visitors said they had visited a town or village, with 8% claiming to have gone shopping as an activity. As part of their stay in the area, 23% visited Brecon, 10% visited Hay-on-Wye, 8% visited Crickhowell and 9% visited Talgarth/Llangorse.

11. Place Plans and Retail Centres A Place Plan is a place-based action plan derived through comprehensive engagement by and with community groups. The plan is intended to ensure the future well-being of the community and on completion will become a statement of how a community sees itself working towards sustainable development; it has wider focus than land use planning alone. A plan could be wide ranging in its ambition, covering energy, local food growing, leisure and recreation, local biodiversity and landscape management, community facilities and/or transport. There is scope for Place Plans to have a significant impact on retail centres within the National Park. Hay-on-Wye and Crickhowell have adopted Town Plans which have been formed by the community with support from the Brecon Beacons National Park Authority. Brecon and Talgarth are currently working on their place plans.

Brecon Beacons National Park Authority Retail Paper

Hay-on-Wye Town Plan Hay-on-Wye’s Town Plan has been adopted by the Brecon Beacons National Park Authority as Supplementary Planning Guidance, which can be used in the determination of planning applications. Section 2 of the Town Plan relates to ‘Employment, Regeneration and Retail’. The 2017 Retail Study undertaken to monitor the Local Development Plan (2013) illustrates that Hay-on-Wye has a high level of retail outlets, which is a sign of a vibrant town centre. This place recognizes the balance which needs to be achieved between shops catering for everyday needs (of both visitors and residents) and the unique independent shops so attractive to the tourist trade. A table of actions has been produced to address any future issues in relation to retail, these actions vary from the short to long term goals and include the following: - Ensure that future planning applications for change of use maintain a balanced mix of retail outlets - Support an increase in the number and variety of market stalls and look at extending summer opening hours - Introduce a once per month ‘local’ market (farmers market style) with a mix of residents/allotment owners and local small scale producers - Provide support for businesses including help with business rates - Provide facilities for residents to order shopping online/phone from local shops and/or a larger supermarket and have deliveries to a central point.

Crickhowell Community Plan Crickhowell’s Community Plan has been adopted by the Brecon Beacons National Park Authority as Supplementary Planning Guidance, which can be used in the determination of planning applications. Section 2 of the Community Plan relates to Economic Development. This section relates predominantly to employment opportunities within the town, however this does link directly to maintaining and enhancing the retail centre. A table of actions has been included within the Community Plan to address any future issues in relation to retail, these actions vary from the short to long term goals and include the following: - Support the principle of economic development within the Town whilst resisting development which would result in its loss - Work with the existing business community to create a mentoring scheme for start-up/new businesses in their first three years - Communicate details of initiatives to local businesses that enable them to offer additional employment opportunities - a) Support the improvement of telecommunications infrastructure b) Encourage local businesses to work with Powys County Council and Business Wales for enterprise support opportunities and potential funding - Review employment need within the town and allocate additional land to meet the identified need - Investigate opportunities for supporting the development of Cwrt-y-Gollen as a high quality employment site

Brecon Beacons National Park Authority Retail Paper

12. Conclusions This paper provides and overview of the changes in the retail centres in the National Park since the adoption of the Local Development Plan. There have been a range of fluctuations and changes within all monitored settlements however the retail function has always remained at an acceptable level. Brecon After surveying Brecon it was apparent that there is a good range of comparison stores within the town with 23 different types. There is an acceptable level of convenience store provision while the provision of services is good as there are a large number of pubs, cafes and takeaways which cater for local need as well as the tourism industry. One surprising aspect is that there are very few hotel/guest houses in the survey area given the number of visitors that exist.

Nearly half (45%) of the total units surveyed in Brecon in the 2018 retail study were of A1 (retail use). This figure has dropped by 2% since the 2014/2015 study, with the number of A3 units raising from 14% to 16% between 2014 and 2017 but decreasing to 15% in 2018.

Since the 2014/2015 study the number of vacant units within the survey area has experienced a 2% increase.

These figures on retail and vacancy represent a healthy town centre which will need to be maintained and possibly improved where there is an opportunity to do so.

As Brecon can be construed as a tourist destination a survey conducted by the tourism department was analysed and incorporated into the paper. Most notable was that 23% of the respondents visited the town of Brecon while in the area. This is a highly encouraging fact which emphasizes that there aren’t any major issues in existence within Brecon town centre.

Hay on Wye Hay on Wye consists of a decent variety of comparison stores as there are 16 different types with the dominance of bookshops, clothing and jewellery/antiques stores apparent. The town specialises in book shops, and this type of shop commands 17.2% of the total number of comparison shops in the centre. The provision of convenience stores is also sufficient and there is a good variety of services which cater for local needs as well as tourists such as the eleven cafes and three pubs. In the town centre area the presence of retail is relatively healthy with 56% of the unit’s surveyed being in the A1 category. The quantity of vacant units is low as only 4% of the units surveyed were empty, this figure has increased by 2% since 2014/2015. Since 2014/2015 the centre has experienced a 2% decrease in the number of units considered to be of the A1 (retail) use class, a 2% increase in vacant units, a 1% decrease in A3 units and a 1% decrease in D1 (Non-residential institutions).

Brecon Beacons National Park Authority Retail Paper

Crickhowell Crickhowell doesn’t offer the same level of provision as Brecon or Hay as there are only 7 different types of convenience stores with nearly all of them comprising of just one shop, therefore clearly indicating that the town doesn’t specialize in any function. The town does however offer a good level of comparison stores which includes a market in the centre of town but this only opens on Thursdays. There are also 19 different types of services which sufficiently cater for local need.

Since 2014/2015 the most significant change experienced in Crickhowell is the continuous prominence of C3 dwellings within the retail centre. There has been a 2% increase in A1 retail units since 2014/2015 and the level of vacant unit has remained the same at 4% since 2014/2015. Most use classes have seen slight changes whereas the D1 (Non-residential institutions) use class has experienced a significant decrease of 4% since 2014/2015.

Given the size and scale of Crickhowell, it does represent a healthy market town which will also need to be supported by policy to ensure that the provision of retail remains in a healthy state.

Talgarth

Talgarth’s ability to just cater for local need is questionable given the high levels of vacancies and residential use within the town centre. The percentage of retail provision is low at 19% within the town centre indicating that this use will need to be encouraged.

This paper shows that Talgarth’s role as a retail centre has strengthened from 2017 to 2018 with a decrease of vacant units from 9% to 4% within the last year however there is still a high level of C3 use with an increase from 54% in 2016-2017 to 56% in 2017/2018 within the town centre.

Although Talgarth and its surrounding areas presents several opportunities for tourist activity, particularly hang gliding, walking and mountain biking, its weak retail position prevents it from capitalizing on any potential increase in tourism spend in the town itself.

The lack of facilities can convey a negative image of the Town which is not a true reflection of the many assets and opportunities which the Town presents.

Since 2015 the A1 use class within Talgarth experienced a 30% decrease while the quantity of vacant units has decreased by 2%. It appears that that high number of the units which were vacant approximately 10 years ago, predominantly on Bell Street, are now in C3 (residential use) and therefore do not contribute to the retail vitality of the town.

Brecon Beacons National Park Authority Retail Paper

Overall Conclusions

Growth in internet shopping and banking is likely to continue as superfast broadband becomes more widespread in more rural areas, this could impact further on comparison shops within the National Park.

The issues paper continues to identify Brecon as the main retail centre within the Brecon Beacons National Park, followed closely by Hay on Wye, then Crickhowell and Talgarth respectively. The paper also identifies that there is a continuing need to maintain and enhance their vitality and attractiveness not only for visitors but also the resident population.

In line with Planning Policy Wales Chapter 10, consideration should be given to retaining the policy which requires applicants to apply for planning permission to convert shops to non-retail uses, e.g. residential use, to demonstrate that it is not possible to maintain its use as a shop or that it has be advertised for sale as a shop for a specified period and that no serious offers have been forthcoming.

SP13 is the Retail Strategy for the current Local Development Plan (Adopted December 2013). The retail strategy of the LDP is to maintain and enhance the vitality and viability of the identified retail centres and to support proposals which contribute to the regeneration of the Town Centres by;

a) Safeguarding existing retail uses in the Retail Centres; b) Maintaining and enhancing the diversity of uses in the identified Retail Centres.

- A1: Shops - A2: Financial and Professional Services - A3: Restaurants and Cafes - B1: Business - C1: Hotels - D1: Non-Residential Institutions - D2: Assembly and Leisure

Policy 42 also ensures that all changes of use that occur within the retail centre are for use classes A1, A2, A3, B1, C1, D1 or D2.

The findings of the 2017 retail survey determined that the vacancy rates are within acceptable levels, and that Policy 42 of the Local Development Plan continues to be successful in delivering the current retail strategy. The findings can be seen in the table below:

Brecon Beacons National Park Authority Retail Paper

Retail Centre Vacancy Vacancy Rate Vacancy Rate Vacancy Rate Implications for Rate 2014 - 2015 - 2016 2016 - 2017 2017 - 2018 monitoring 2015 Brecon 8% 8% 7% 10% The vacancy level is within target levels being under 10% Crickhowell 4% 4% 3% 4% The vacancy level is within target levels being under 5% Hay 2% 1% 3% 4% The vacancy level is within target levels being under 5% Talgarth 6% 11% 9% 4% The vacancy level is within target levels being under 25%

13. Implications for the replacement Local Development Plan

The retail centres have been defined for the Primary Key Settlement and Key Settlements within the Local Development Plan. The purpose of the Retail Centre is to recognize that the protection of existing retail units is central to ensuring the continued vitality of the town centres. The National Park Authority also recognizes that variety and activity are essential elements of the vitality and viability of town centres. Towns, particularly those which attract visitors, can become oversubscribed with Class A3 uses such as take-aways, pubs and restaurants which make them less attractive for shoppers. Encouraging a diversity of uses such as recreational uses, restaurants, cafes, galleries and cinemas can help prevent this. This in turn can support the Retail Centre by reducing people’s need to travel to retail centres outside the National Park boundary.

The existing policy in relation to development in retail centres (Policy 42) details appropriate development which would be supported in the National Park. This policy restricts the changes of use from A1 at ground floor level, unless marketing and clear justification is provided. Some cases have been seen where A1 units have changed to either A3 or mixed use A1/A3. There is a balance within a retail centre on whether it is better to have occupied units (A2/A3) rather than vacant A1 units. The measure of dealing with this balance is included within policy 42 (c). This policy ensures that if a change of use of the ground floor of a premises in the identified Retail Centres from Class A1 (retail) to other uses is proposed, this can only be supported where the proposed change of use does not have an unacceptable impact on the vitality and viability of the retail centre.

National Planning Policy contains clear statements on the location of new retail development, the sequential approach to site selection, the impact on existing identified centres and on transport issues such as the accessibility by a variety of modes of travel and the impact of overall travel patterns.

Due to the rural nature of the National Park, it is recognised that outside of the Retail Centres identified in Policy 42, local retail facilities play an essential role in the sustainability of local communities. Policy 43 of the existing Local Development Plan seeks to ensure the retention of local retail facilities outside of level 1 and 2 settlements (excluding Sennybridge and Defynnog) where they provide an essential service

Brecon Beacons National Park Authority Retail Paper to the local community, and are economically viable. This is in line with National Planning Policy which sets out the national development control policy on the provision and protection of local shops, village shops and public houses and also on shops ancillary to other uses, such as farm shops and petrol stations.

When considering the evidence presented in this paper, along with the findings from recent Retail Centre Surveys, a list of aims has been produced in relation to retail and the retail need within the Brecon Beacons National Park. It is a consideration for the review of the Local Development Plan (2013) and to support the policies which relate to retail.

1. To maintain and encourage the vitality and viability of the town centres within the Brecon Beacons National Park. 2. Encourage development which contributes to the creation of sustainable places. 3. To be responsive to current issues and pro-active to any trends that seem to be appearing. 4. Be responsive to the vacancy rates within the retail centres. 5. Promote established town centres as the most appropriate locations for retailing, thus trying to combat growing dependency on the private car. 6. Be clear about the future roles of the existing centres, especially Hay-on-Wye given its specialist function as a book town. 7. Ensure that the change of use of A1 units to A3 units are robustly justified with the appropriate level of information. 8. Manage the number streets made up of predominantly C3 dwellings situated within the retail centre, particularly Bell Street in Talgarth and Tower Street in Crickhowell. 9. Protect the change of use of retail units into C3 Residential Dwellings. 10. Ensure the shops situated in level 3 and 4 settlements, along with countryside locations are protected by policy 43 to maintain the sustainability of the rural locations. 11. Extend Brecon Retail Centre to include and protect the retail function of Rich Way, The Watton.

References

Brecon Beacons National Park Authority (2013) Local Development Plan. Brecon: Brecon Beacons National Park Authority

NFRN Federation of Independent Retailers (2017) Independent Retail Report for Wales. London: NFRN

Welsh Government (2018) Planning Policy Wales: Edition 10. Wales: Welsh Government

Welsh Government (2016) Planning Policy Wales: Edition 9. Wales: Welsh Government

Welsh Government (2016) Technical Advice Note 4: Retail and Commercial Development. Wales: Welsh Government