Planning Commentary May 2008

Site and Surroundings

The site accommodates an operational Texaco filling station, located on the southbound carriageway of Bythesea Road. Access/egress to the filling station is from Bythesea Road by both north-bound and south-bound traffic. There is also a service access for delivery vehicles via the mini roundabout on Bythesea Road, which also provides access to the Shires Shopping Centre car park. The site has a prominent position on the roundabout.

The petrol filling station forecourt supports a four square layout, and a sales building of approximately 90 sq m, which provides a limited range of convenience goods, focusing primarily on chilled drinks and confectionary.

The site is located on the edge of the main retail core of Trowbridge Town Centre. Immediately to the north east of the site is an Asda supermarket, with associated car parking. Beyond this is the Shires Shopping Centre. To the north, along Stallard Street, are retail units with offices above. The town’s train station is located off this road. To the west of the site (and on the other side of Bythesea Road) is the vacant former Wincanton factory site and Cabot Tower occupied by a recruitment agency. Immediately to the south of the site is the Jobcentre and telephone exchange office. Further along Bythesea Road is a Kwik Fit tyre/exhaust fitting centre and car lot.

The character of the area is predominately commercial, with building heights of two/three storeys.

Planning History

The planning history for the site has been reviewed during a visit to the Local Council offices and a schedule of planning history is below at Appendix 1. These records show the authorised use of the site is a filling station, with an application submitted in 1990 for the erection of the petrol filling station and associated shop/control room (application ref: W90/0421) approved on 5th June 1990. Subsequent applications on the site relate to signage and minor additions to the petrol filling station use. The principle of alternative uses is yet to be tested by a planning application.

Other notable applications, as relating to sites within close proximity to the Shires Service Station (and representing recent regeneration within the town) include:

Planning Policy

The relevant development plan is the West Wiltshire District Plan First Alteration, adopted June 2004, which forms part of the Local Development Framework, albeit this is in its early stages, and therefore does not contain any relevant documents at present.

The proposals map confirms that the site falls within the ‘Trowbridge Town Centre Commercial Area’ boundary, but does not have a specific site allocation.

The supporting text of policy SP5 indicates that within the commercial area boundary the Council allow for a diversity of retail, non-food retail, and service use activities important to town centre commercial areas but that do not necessarily need a prime site within the retail core.

Policy TC1 has the aim of maintaining a vibrant town centre, and states that proposals that make greater use of upper floors of premises within ‘town centre commercial areas’ for offices, small businesses or residential uses will be permitted. Within other parts of the town centre commercial area, outside of primary retail frontages, changes of use from A1 to A2/A3 are permitted by Policy SP5.

Additionally, the adopted local plan confirms:

Officers View

Discussions have been held with Carmen Chadwick, Duty Officer, Development Control, and Mark Russell, Policy Officer, both at West Wiltshire District Council. Both Officers suggest that in general terms the principle of the re-use of the site for retail or commercial purposes is likely to be acceptable given the close proximity to the defined town centre, and location within the commercial area boundary.

Officers differ in their view of the potential for residential use of the site. Whilst Carmen Chadwick suggested that this may be acceptable, Mark Russell considered that due to the site’s location on a busy transport interchange, and its relatively small size, residential uses would be considered less acceptable than commercial or retail uses.

With respect to retail uses of the site, Mark Russell confirmed the site as ‘edge of centre’, as it is not within the defined primary retail frontage of the town centre. However, he did acknowledge that its position within the commercial area would be positive in demonstrating a sequential approach, in that edge of centre sites are considered secondary to primary retail frontage locations, and before out of centre sites.

Mark Russell referred to the recent application for a mixed use development, with retail included, on the former Wincanton Factory site, opposite the petrol filling station. This was originally refused on the basis of lack of information (albeit an application has subsequently been approved), and he stressed that retail would therefore need to be justified in accordance with the sequential test. He considered that commercial development or office use would be suitable for the site.

Further to the advice above, pre-application advice was sought from the Council in November 2007, seeking formal comment on a mixed use re-development scheme for the site, to include 3 retail units at ground floor (totalling 300 sq m) with 12 residential units above (split over three floors). The Council confirmed that, in principle, the loss of the filling station was acceptable, albeit some justification may be required in terms of a loss of employment use for the site. Further, the residential use of the site was considered acceptable in terms of the re-use of brownfield land, and the proximity to the town centre and its associated facilities, albeit design issues were raised. Highway matters also require further consideration in respect of alterations to road layout.

Officer’s considered that any retail use would need to be assessed against the relevant tests as set out in PPS6, albeit they acknowledged the recent approval of a large mixed use scheme at the former Wincanton site, opposite the filling station, which includes significant retail floorspace on a site that is further from the town centre than the filling station. Officer’s advised that retail need should be assessed cumulatively with other recent applications within the town centre, which include retail floorspace (such as a proposed Waitrose food store, as well as smaller units included within the Waterside development scheme, both of which are within close proximity to the site and as described in the planning history section above).

Planning Discussion

In terms of retail use on the site, the sequential assessment would need to be met. Whilst the site is not within the primary retail frontage of Trowbridge Town Centre, its location within the commercial area boundary suggests it would be considered ‘edge of centre’, and this has been confirmed by Officers. Advice from Officers indicates that close attention should be paid to recent approvals relating to retail floorspace in and around the town centre (in relation to a justification on the basis of need and the sequential test).

Commercial uses would be acceptable on the site, given the designation for such uses within the Development Plan. Accordingly, a mixed use retail and office scheme may be considered acceptable.

Whilst in principle the site has the potential to be redeveloped for residential purposes, amenity and design will need detailed consideration, and the site does appear more suited to commercial activity, albeit that residential could potentially be included on the upper floors. The differences in levels between the petrol filling site and Asda supermarket and car parking need to be addressed as part of any future proposal.

Conclusion and Recommendations

The loss of the Petrol Filling Station is likely to be acceptable in principle, and alternative uses will be considered having regard to the surrounding pattern of development and land uses. The potential to use the site for commercial uses would be acceptable, supported by its location within the Commercial Area, however, retail uses will need to be justified in terms of the tests set out in PPS 6 (need, scale, sequential approach, impact and accessibility). Initial discussion with Officers suggest that a retail case could be made. Residential is also a possibility for the site (in principle), but amenity issues will need to be addressed due to its location and relative isolation from other residential areas.

APPENDIX 1 - SCHEDULE OF PLANNING HISTORY

PLANNING REF DESCRIPTION DECISION DATE
87/01910/FUL Re-clad existing structure, provide roof over existing courtyard Approved 01/03/1988
88/02075/OUT Petrol filling station Withdrawn 07/06/1989
89/00407/FUL Erection of petrol filling station and associated shop/control room Approved 16/05/1989
90/00420/FUL Erection of petrol filling station, shop/control room and access Withdrawn 18/07/1990
90/00421/FUL Erection of petrol filling station, shop/control room and access Approved 05/06/1990
90/01441/ADV Illuminated shop canopy and pole sign, pump spreaders and poster unit Approved 04/12/1990
92/0118/ADV Internally illuminated 5m high pole sign Refused 10/11/1992
95/0047/FUL Installation of jet wash machine and glazed screen Withdrawn 17/05/1995
98/01113/ADV Shop fascia roundel and PID sign Approved 14/09/1998