Town Centre Policies Background Report (2015)
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Town Centre Policies Background Report (2015) Contents Page Chapter 1: Introduction 4 Policy Context 4 Survey Method 5 Structure of the Report 5 Chapter 2: Review of Existing Town Centres 6 Major Centres 6 Kilburn 7 Wembley 11 District Centres 15 Burnt Oak 15 Colindale 18 Cricklewood 21 Ealing Road 25 Kenton 29 Kingsbury 33 Neasden 36 Preston Road 39 Wembley Park 45 Willesden Green 49 Local Centres 53 Kensal Rise 53 Queen’s Park 57 Sudbury 61 Chapter 3: Proposed New Local Centres 65 Church Lane 65 Chapter 4: Review of Frontage 70 Policy Context 70 Approach 70 Vacancy Levels 71 Primary Frontage 72 Secondary Frontage 74 Neighbourhood Centres 75 Conclusions 76 1 Monitoring 76 Appendix A 78 Figures 1. Change in Primary Frontage Kilburn 2. Retail Composition of Kilburn 3. Change in Primary Frontage in Wembley 4. Retail Composition of Wembley 5. Change in Primary Frontage in Burnt Oak 6. Retail Composition of Burnt Oak 7. Change in Primary Frontage in Colindale 8. Retail Composition of Colindale 9. Change in Primary Frontage in Cricklewood 10. Retail Composition of Cricklewood 11. Change in Primary Frontage in Ealing Road 12. Retail Composition of Ealing Road 13. Change in Primary Frontage in Harlesden 14. Retail Composition of Harlesden 15. Change in Primary Frontage in Kenton 16. Retail Composition of Kenton 17. Change in Primary Frontage in Kingsbury 18. Retail Composition of Kingsbury 19. Change in Primary Frontage in Neasden 20. Retail Composition of Neasden 21. Change in Primary Frontage in Preston Road 22. Retail Composition of Preston Road 23. Change in Primary Frontage in Wembley Park 24. Retail Composition of Wembley Park 25. Change in Primary Frontage in Willesden Green 26. Retail Composition of Willesden Green 27. Change in Primary Frontage in Kensal Rise 28. Retail Composition of Kensal Rise 29. Change in Primary Frontage in Queen’s Park 30. Retail Composition of Queen’s Park 31. Change in Primary Frontage in Sudbury 32. Retail Composition of Sudbury 33. Comparison of uses in local centres and Church End 34. Proportion of Vacant Frontage 35. Proportion of primary frontage in retail use 36. Proportion of Primary Frontage in non-retail use 37. Proportion of Primary Frontage in A1 and A2 use 38. Proportion of Primary Frontage in non-retail use (existing and with proposed changes) 39. Comparison of Primary and Secondary Frontage 40. Proportion of Uses within Neighbourhood Centres Maps 1. Brent’s Town Centres 2. Kilburn Town Centre 3. Wembley Town Centre 4. Burnt Oak Town Centre 2 5. Colindale Town Centre 6. Cricklewood Town Centre 7. Ealing Road Town Centre 8. Harlesden Town Centre 9. Kenton Town Centre 10. Kingsbury Town Centre 11. Neasden Town Centre 12. Preston Road Town Centre 13. Wembley Park Town Centre 14. Willesden Green Town Centre 15. Kensal Rise Town Centre 16. Queen’s Park Town Centre 17. Sudbury Town Centre 18. Church End Town Centre Tables 1. Size of Brent’s existing local centres and Church End 2. Vacancy levels in primary frontage by centre 3. Number of units in neighbourhood centres 4. Additional Frontage to be Designated 3 Chapter 1: Introduction The purpose of this report is to inform town centre policies in the Development Management Development Plan Document (DMDPD) and designations on the Policies Map, in keeping with the requirements of the National Planning Policy Framework (NPPF) (2012) and London Plan (2011). Policy Context The National Planning Policy Framework (2012) requires local planning authorities to define the extent of town centres and primary shopping areas, based on a clear definition of primary and secondary frontages in designated centres, and set policies that make clear which uses will be permitted in such locations. Similarly, London Plan policy 2.15 states boroughs should co-ordinate the development of London’s network of town centres so they provide convenient access to a competitive choice of goods and services, and identify primary and secondary shopping areas on Policies Maps. Policy 4.7 states in preparing Local Plans regular town centre health checks are to inform strategic and local policy implementation. Map 1: Brent’s Town Centres Brent’s Core Strategy Policy 16 establishes the town centre hierarchy for Brent’s 16 centres and sequential approach to maintaining the position of centres in the retail hierarchy. The town centre categories in Brent are major town centres, district centres and local centres. The location of Brent’s centres is shown on map 1. 4 Policies in the DMDPD will build on strategic policies within the Core Strategy by providing detailed policy on how the council will promote strong town centres, by ensuring a healthy diversity of uses to meet consumer needs. To fulfil the requirements of the NPPF and London Plan this report considers if the 35% upper limit on the proportion of primary frontage in non-retail use established in the UDP is still appropriate. In addition, this report includes a review of the town centre boundaries and designated primary and secondary frontage, and assesses if there has been any change in the town centre network. Survey Method To inform this review health checks were undertaken on all town centres in the borough and larger neighbourhood centres. A comparison was made to previous surveys undertaken since 2001. A total of 16 town centres were surveyed in April 2013. Surveys were carried out by officers who walked each town centres retail frontage, undertaking a photographic survey, and recording changes against the previous survey results. The survey recorded the use of units in the primary and secondary frontage including the name of the unit and its primary activity. Brent’s larger neighbourhood centres were surveyed to assess if they continued to serve a purely neighbourhood function or their role had changed to the extent they should be designated as local centres. Structure of the Report Chapter two of this report sets out detailed findings for each town centre and the implications for primary and secondary frontage and town centre boundaries. Chapter three summarises the findings of health check data for Church End neighbourhood centre and implications for Brent’s town centre network. Chapter four goes on to consider if the threshold for non-retail frontage established in the UDP is still appropriate. 5 Chapter 2: Review of Existing Town Centres The primary and secondary frontage of Brent’s town centres was last reviewed in 2004 to inform the UDP and accompanying Policies Map. Since this time considerable changes have taken place in town centres and Brent as a whole. Brent’s population has increased beyond projected levels. In 2004 the population of Brent was 263,000, at the time the GLA estimated a 14% growth in Brent’s households from 101,500 in 2001 to 112,000 in 2016. This figure has already been exceeded. The 2011 Census found Brent already has 110,300 households. The increased population has significant implications for Brent’s town centres and their capacity to meet retail needs. The Brent Retail Need and Capacity Study (Feb 2006) has recommended the likely borough-wide growth in demand for shopping floor space. The study reveals that there are significant requirements for new floor space, particularly for comparison goods. It is estimated that there is scope, after taking account of existing commitments, for 27,000 sq m gross of comparison floor space (with an overall 3% increased market share scenario) and 5,200 sq m gross of convenience floor space (based on a static market share prediction) by 2016 increasing to 90,000 sq m gross of comparison and 12,500 sq m of convenience floor space by 2026. The results of this study were tested in the Scenario and Sensitivity Testing Paper on Retail Matters (September 2009). However, the recession and changes in shopping behaviour are impacting significantly on town centres. Vacancy levels in London now stand at 9.4% (Local Data Company, September 2013). This has led many commentators to suggest town centres are in a period of transition, and in future will comprise fewer retail uses. There have been calls from the London Assembly amongst others for town centre policy to allow the release of unviable secondary frontage to residential uses, and encourage a consolidated retail core. These national and local trends have informed the proposed town centre boundaries and review of the primary and secondary frontage. 6 Major Centres Kilburn Kilburn is a major centre located in Brent and Camden. Within Brent Kilburn town centre is located along Kilburn High Road between Oxford Road and Kilburn Station. The secondary frontage extends west along Willesden Lane. Kilburn comprises 266 designated units in Brent, 70 of which are primary frontage and 185 secondary. Kilburn has good accessibility by tube from Kilburn Station and regular bus links to Paddington, Victoria, Oxford Circus and White City. As figure 1 illustrates the proportion of primary frontage in retail use fell in 2005 before increasing to its current level of 56.6%. Vacancy levels in the primary frontage have fallen since 2007 to the current level of 3%, which is relatively low when compared to other town centres in the borough. Figure 1 Kilburn has a marginally higher proportion of comparison to convenience retail. The convenience retail offer includes a high proportion of greengrocers and general foodstores. The comparison offer consists of a variety of goods including footwear, clothes, electrical goods and variety stores. The majority of stores are independent; however, a number of multiples are located in the town centre including Argos and Clarks. Kilburn market makes an important contribution to the retail offer of Kilburn providing a range of comparison goods. The town centre has a high proportion of service outlets particularly takeaways, restaurants, cafes and hairdressers.