Retail Policy - Ministerial Response - 25 July 2014

Findings

Minister for Planning and Environment Comments (DoE)

6

The  Economic  Development  Department created avoidable confusion and delays to its own and the Panel's work in relation to retail,  by  developing  the  draft  Retail Development  Plan  with  inadequate inclusion of and communication with other stakeholders,  and  failing  to  notify  the Panel  of  the  ongoing  work  despite procedural requirements to do so.

DoE:  The  Department  of  the  Environment would welcome engagement as part of the development  of  any  Retail  Development Plan.

36

Although visually attractive and creating an  often  improved  atmosphere,  it  is difficult to strike the right balance between pedestrianisation and the needs of retailers to  service  premises.  Pedestrian  priority initiatives, already seen in some parts of the  Island,  appear  to  provide  an appropriate compromise.

DoE:  The  Minister  for  Planning  and Environment  does  not  consider  it  to  be difficult  to  strike  a  balance  between competing uses of road space, if it is clear what the objectives are for different parts of the public realm.

If we want a town centre that is attractive to people as a place to shop and socialise, and to spend time and money in so doing, then greater  priority  needs  to  be  given  to pedestrians  to  create  a  more  attractive environment: it is only people who are on foot who spend money in shops.

This is already recognised in the 2011 Island Plan  (see  pp. 303–306  Island  Plan  2011: travel and transport chapter)

8.42  Complete  pedestrianisation  of  town streets  is  not  envisaged  during  the  Plan period,  but  continued  investment  in  the public realm and an extension of pedestrian priority is considered necessary to support the viability and vitality of the town centre.

Findings

Minister for Planning and Environment Comments (DoE)

Proposal 23 Pedestrian priority

The following areas have been identified as pedestrian  priority  areas.  The implementation  of  measures  to  extend  and enhance the public realm in these locations will  be  supported  and  approved  by  the Minister  for  Planning  and  Environment, following  public  consultation  and engagement with key stakeholders –

• Halkett Place (south of Waterloo Street);

• Library Place, Vine Street and Church Street;

• Dumaresq Street (western end);
• Hue Street;
• Oxford Road(southern end).

The following areas have been identified as areas where there is a presumption in favour of the reclamation of road space to extend and improve the public realm. Applications to change the use of these areas to public open  space  and  the  implementation  of measures to improve the public realm will be supported.

• Area between Liberation Square and Weighbridge Square;

• Gloucester Street (eastern end) between Parade Gardens.

Extensions to, and reviews of, the pedestrian priority zones will be assessed over the Plan period,  specifically  in  relation  to  further work undertaken in St Helier Regeneration Zones.

To  realise  these  proposals  requires  some political championing and resource to pursue them to implementation.

The Minister for Planning and Environment has, in partnership with other stakeholders, already  delivered  successful  town  centre enhancement  schemes,  giving  more  space and  priority  to  pedestrians  and  thus promoting  retail  vitality,  at  Broad  Street; Charing  Cross/York  Street;  Sand  Street; New Street;  Colomberie/Green  Street;  and

Findings

Minister for Planning and Environment Comments (DoE)

La Motte  Street,  under the  auspices  of  the St. Helier Street Life Programme, which was supported by capital funds.

37

Maximising the physical attraction and the ease  of  moving  through  town  were identified  as  important  means  of encouraging people to choose to shop in town. However, inadequate pavements and clumsily  placed  bollards  and  street furniture  were  cited  as  examples  of existing  physical  barriers  that  negatively impact on the ability of people to enjoy the experience of shopping in town.

DoE:  The  Minister  for  Planning  and Environment considers that fundamental to the  regeneration  of   St. Helier  is  the development of a comprehensive Movement Strategy  for  the  town,  which  defines objectives for the pattern of movement into and  around  the  town  for  all  modes  of transport –  pedestrian;  bike,  bus,  van  and car –  and  which  includes  a  series  of proposals  and  actions  for  investment  to improve travel by each mode.

At the detailed level, this should include a review  of  the  adequacy  of  existing infrastructure to support the ease of walking into and around the town.

This was an integral element of the St. Helier Street Life Programme schemes referred to at 36 above.

38

The covered markets should be a jewel in the crown' of Jersey's retail sector, acting to stimulate footfall in town and attracting shoppers to a vibrant retail core. Presently however, whilst architecturally attractive, the  markets  fail  to  live  up  to  such expectations, and radical change has been widely called for to improve on the tired atmosphere and generally underwhelming offering.

DoE:  The  Minister  for  Planning  and Environment  considers  that  part  of  the attraction of the covered markets is the sale of  fresh  produce,  which  is  part  of  their heritage and vibrancy, the essential character of  which  is  important  to  retain  in  any consideration of radical change.

40

Issues  regarding  parking  featured  in almost  all  submissions  received  by  the Panel during the Review. Parking matters present a very real challenge to retailers, but  there  are  workable  initiatives  that could help improve the situation.

DoE:  See  37  above  and  41  below:  any Movement Strategy  would need to include car parking considerations.

41

Overall capacity amongst town's car parks is adequate to accommodate demand from commuters  and  shoppers,  but  the geographic  distribution  of  spaces  is  not. The north of town is under-served by the current  car  parking  provision,  and  Pier Road  car  park  is  too  frequently  under- capacity.

DoE:  The  St  Helier  Parking  Needs  Study

(June 2013)  reviewed the provision of and need for public and private parking in the town.  It  presented  a  series  of recommendations,  two  of  which  are  as follows –

Recommendation 5.  The  primary  intent  is for the Ann Court site to deliver affordable housing.  It  is  in  a  central  urban  location

Findings

Minister for Planning and Environment Comments (DoE)

suitable  for  low  parking  provision  for residents.  200 parking  spaces  delivered  as part of the larger footprint site development should  be  allocated  as  public  short-stay parking, with a further limited number set aside for residential use.

Recommendation 6.  A  site  in  North  Town suitable for acquisition and conversion into a surface  car  park  able  to  provide  at  least 200 spaces is sought. The car park should permit and enable long-stay. Between 20 to 50  parking  bays  should  be  separately operated/demarcated  to  serve  a  primary short-stay purpose.

42

Minden Place is a vital shopper car park, but,  as  with  others,  it  is  outdated  and requires  significant  refurbishment, modernisation, or complete replacement.

DoE:  The  St  Helier  Parking  Needs  Study

Recommendation 8.  Once  additional  car park  capacity  is  established  within  North Town at Ann Court and another site, Minden Place  car  park  is  brought  forward  for refurbishment or replacement as a premium car park or the site is brought forward for redevelopment with minimal on-site parking.

44

There  is  wide  acknowledgement  and support  for  more  bus  services  to  be provided  to  help  people  access  town  at points other than Liberation Station, along with a service that would link urban areas whilst  penetrating  towards  the  town centre.  The  latter  could  encourage  more shoppers  to  visit  town  and  other  retail areas such as Les Quennevais Parade.

DoE: See 37 and 41 above: any Movement Strategy would need to include travel by bus.

45

There is some confusion over the status and  continued  relevance  of  existing planning strategies for town, notably the North of St. Helier Master Plan.

the States in June 2011.

The North St Helier Masterplan is adopted along  with  extant  supplementary  planning guidance,  as  are  a  series  of  site-specific development  briefs for this  area, including sites at Jersey Gas and Le Masurier's land in Bath Street. The North St. Helier Masterplan has,  in  accord  with  the  recommendations contained within it, been supplemented and

Findings

Minister for Planning and Environment Comments (DoE)

updated  by  the   St. Helier  Parking  Needs Study:  the  status  of  the  recommendations within this study, relative to the positions of the Minister for Planning and Environment and  Transport  and  Technical  Services,  are clearly set out.

46

The  current  withdrawal  of  proposals  for development  around  Bath  Street  by Le Masurier's  has  been  a  significant setback  for  retail  regeneration opportunities in that area.

DoE: As stated (at 47) below, the retail core is contracting and shifting. The regeneration opportunities in and around the Bath Street area will be principally residentially-led, not retail-led.

The  Minister's  adopted  planning  guidance for  this  area,  which  is  consistent  with  the 2011 Island Plan, states –

The  regeneration  of  this  area  provides  an opportunity to breathe new life and vitality into this part of town, and whilst residential or community-based provision might provide the  predominant  form  of  development  in terms  of  floorspace,  it  is  important  that  a level of commercial floorspace in the area is maintained and renewed in accord with the Island Plan policy of protecting employment land and to increase vitality at ground floor. Accordingly, in formulating the commercial element of the scheme, the developer should have  regard  to  the  Island  Plan  policies: ER2 – Protection and promotion of St. Helier for  shoppers;  ER4 –  Development  of  local shops;  ER5 –  Development  of  evening economy  uses;  ER6 –  Take-away  food outlets; ER7 – Large-scale food shops and ER8 – Large-scale non-food retailing.

Specifically,  there  is  an  opportunity  to refresh  the  retail  offer  of  ground  floor frontages  that  face  on  to  the  existing pedestrian  thoroughfare  of  Bath  Street  in particular, as well as opportunity to create new commercial activity on new pedestrian routes, such as that between the Town Park and Halkett Place. The inclusion of such uses can add vitality, colour and movement to the area throughout the day and potentially into the evening.

The  Minister  would  also  consider  the provision of live/work units, as well as the provision  of  community  and  healthcare facilities to serve local needs.

Findings

Minister for Planning and Environment Comments (DoE)

47

The  town  footprint  and  retail  core  is shifting south-westerly with the influence of  the  developing  waterfront  area. Additionally, there are indications that the town retail core could contract due to the challenging  trading  conditions,  to  be increasingly anchored by King Street and Queen Street.

DoE:  The  2011  Island  Plan  already recognises  and  provides  a  planning  policy framework which reflects the changing retail core of the town –

54. Over  many  years,  and  for  different reasons,  the  physical  extent  of  the  town's retail  centre  has  contracted,  reflecting changes  in  the  pattern  of  shopping.  The character of areas such as The Parade, Bath Street  (beyond  Minden  Place),  La Motte Street and Colomberie has changed and they have, for the most part, become secondary shopping  areas.  In  some  areas,  such  as Cheapside, David Place, New Street (north of  Burrard  Street)  and  the  eastern  end  of Colomberie,  they  have  become  primarily local shopping areas, serving the residential areas surrounding them.

55. Thus, there has been a long-term shift in retail activity away from the northern and outlying parts of the Town Centre. This shift in the centre of gravity is further emphasised by the prospect of further retailing on the Waterfront  with  a  specialist  retail  focus, including the developments at Liberty Wharf, the  Esplanade  Quarter  and  Castle  Quays. Currently, however, they are poorly linked to the town centre.

56. The  strategy  is  to  redefine  the  retail centre. Within its boundary, primary retail frontages are identified, where uses will be restricted to retail and a limited number of catering outlets. Secondary retail frontages are also identified, where greater flexibility of use will be allowed with retail, catering, banking, and professional services permitted, providing  they  provide  an  active  frontage and a service to members of the public.

48

Despite certain improvements in Planning application processes, retailers continue to face challenges relating to change of use policies.  The  challenges  can disproportionately affect small businesses and retailers with small premises. The time taken  to  gain  relevant  permissions  and compliance  with  bye-laws  such as those relating to the provision of toilet facilities were  identified  as  being  particularly

DoE:  The  Minister  for  Planning  and Environment is undertaking a major review of  the  Planning  and  Building  (General

Development)  (Jersey)  Order  2011  in  the

second  half  of  2014.  This  Order  defines various use classes and, importantly, allows premises to move within and between certain classes  without  planning  permission.  The Minister is happy to review this Order in the light of the Panel's views and will actively

Findings

Minister for Planning and Environment Comments (DoE)

challenging.  Due  to  the  impact  of  the shifting  town  footprint  in  increasing  the number  of  change  of  use  applications, such  occurrences  may  become  more frequent.

seek public opinion on whether the current level of control is appropriate.

On the matter of toilet provision, the building bye-laws call for adequate provision to be made  for  staff  in  all  work-places  and  for customers in shops that have a retail area in excess of 1,000 m2. As the majority of shops in Jersey have retail areas less than 1,000m2 the bye-laws tend to focus on the provision made for staff. Changes were made to the building  bye-laws  in  2007  aimed  at achieving more inclusive design, and these call for wheelchair-accessible toilet facilities to be included as part of the overall sanitary provision when the use of a building changes to create shop premises. In the majority of cases  involving  small  retail  premises,  a single wheelchair accessible WC in place of a  standard  WC  is  sufficient  to  meet  the building bye-law requirements, and this can usually  be  accommodated  without  any significant  problems.  It  is,  however, recognised  that  there  are  occasions  where space constraints are such that provision of a wheelchair-accessible  toilet  can  be considered unduly onerous. In these cases, an applicant  is  able  to  propose  alternative solutions to show his proposal achieves the objective of inclusive design. This is done in the form of a design access statement which sets  out  the  designer's  philosophy  and approach  to  inclusive  design.  The  access statement enables the Department to make an informed judgement about whether or not a proposal  makes  reasonable  provision  in terms of sanitary facilities for people who are likely  to  work  in  the  building  over  its lifetime. The Department has accepted toilet facilities  that  are  suitable  for  ambulant disabled  people  as  an  alternative  to wheelchair-accessible toilet in change of use situations  where  floor  space  is  severely restricted.  In  the  Department's  experience, the objective of achieving inclusive design can  normally  be  met  without  too  much difficulty. In cases where specific challenges exist, these can normally be resolved with an access statement.

Findings

Minister for Planning and Environment Comments (DoE)

51

Whilst King Street and Queen Street have retained  robust  occupancy  levels,  there have been instances of short- and, more significantly, long-term unoccupied shops outside  of  the  retail  core.  There  is currently no States policy designed to help address such detrimental occurrences.

DoE: This is not the case: planning policy contained  in  the  2011  Island  Plan  enables change  of  use  of  ground  floor  retail  uses outside of the retail core.

52

Retail,  tourist,  traffic  and  general information  signage  is  too  often underwhelming, inconsistent and outdated. This  is  a  matter  that  requires  the co-operation  and  co-ordination  of  a number of stakeholder groups to improve, including  retailers  themselves  and authorities such as Jersey Tourism (ED), other relevant States Departments and the Parish of St. Helier .

DoE:  The  Minister  for  Planning  and Environment  is  happy  to  work  with  all relevant stakeholders to improve directional signage for the town.

Of  greater  significance,  however,  is  the physical legibility of the town and the ease of movement for pedestrians: if it is clear, from the  nature  of  the  physical  environment, which  way  you  need  to  go,  there  is  less reliance on signage to tell you.

53

Increased  use  of  flags  and  banners  has been identified as a relatively quick and inexpensive  means  of  refreshing  and animating retail areas, although concerns were raised about the possible nature of the associated planning process, including by  the  Minister  for  Planning  and Environment.

DoE:  The  Minister  for  Planning  and Environment is due to review the Planning and  Building  (Display  of  Advertisements)

(Jersey) Order 2006 in 2015. This will allow for  further  deregulation  in  this  area.  Of course, the Minister will also need to bear in mind  the  potential  cumulative  impact  on public amenity of too much advertising.

Recommendations

To

Accept/ Reject

Minister for Planning and Environment Comments (DoE)

Target date of action/ completion

2

Working  with  the  stakeholders, the  Minister  for  Economic Development  should  progress initiatives  and  plans  to  help address the challenges associated with the on-Island retail sector, and  develop  a  new,  more relevant  and  comprehensive overarching Retail Strategy.

ED

DoE: A significant part of any such work will relate to policy affecting  the  location  of physical  retail  space  and the quality of the environment in which this takes place: linked to  this  are  issues  associated with  transport  and  ease  of movement.  The  Minister  for Planning and Environment is responsible  for  planning policy and is leading the work of  the  "Future   St. Helier " project and should, therefore, be  involved  as  a  key stakeholder in relation to the development of a new Retail Strategy.

Any  new  Retail  Strategy needs  to  be  clear  about  the issues and challenges faced by convenience  and  comparison shopping.

14

Pedestrian  priority  initiatives should  continue  to  be implemented,  and  a  feasibility study  of  such  a  scheme  in Halkett  Place,  from  Amyson Corner  along  the  length  of  the Central  Market,  should  be co-ordinated as a priority by the Minister  for  Transport  and Technical  Services,  with  input from  the  Town  Team  or equivalent  comprehensive stakeholder organisation.

TTS

DoE:  The  2011  Island  Plan already  provides  the  policy framework  for  the  provision of  further  pedestrian  priority in St. Helier (see response to Finding 36 above).

To  ensure  that  any  schemes deliver  optimum  benefit  that enhances  the  quality  and character  of  the  town  centre (as opposed to just delivering a  traffic  management outcome),  it  is  important  to engage  a  range  of  skills, interests  and  perspectives  at the  design  stage  of  any proposal.

Recommendations

To

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Minister for Planning and Environment Comments (DoE)

Target date of action/ completion

15

Through  the  Town  Team  or equivalent body, the Minister for Economic  Development  should co-ordinate a plan to identify and implement  relevant improvements  to  the  physical town  environment,  including removal  of  physical  barriers' that  negatively  impact  on  the ability  of  people  to  circulate easily through town.

ED & TTS

DoE:  The  Minister  for Planning and Environment is leading  the  work  that  is focussing  on  the  future  of St. Helier .

The  development  of  a Movement  Strategy  for  the town,  to  include  specific proposals  to  enhance  key pedestrian  access  routes  and desire  lines,  is  an  integral element of this.

16

A  clear  strategy  should  be developed  by  the  Minister  for Treasury  and  Resources  (the Landlord) regarding the covered Markets.  This  should  be informed by consultation with all relevant  stakeholders  on  the wide  range  of  initiatives  and views  held,  and  include assessment  of  a  fundamental overhaul of the interior layouts and  retail  offering.  Changes must  also  be  considered  to outdated opening hours.

T&R

DoE:  The  Minister  for Planning  and  Environment considers  that  the  character and  vitality  of  the  covered markets,  provided  in  part through  the  sale  of  fresh produce,  is  an  integral element of the retail offer of these buildings and the town centre:  this  should  remain  a primary  consideration in any proposals  to  overhaul  the retail offer.

18

The Minister for Transport and Technical  Services  should undertake  the  necessary  work with  colleagues  and  other stakeholders  to  achieve  the following –

A clear decision on the future provision  of  north  of  town  car parking.

The  roll-out  of  automatic number  plate  recognition systems  (or  similar)  in  all covered  car  parks  to  end  the predominance of scratch-cards.

A fully developed strategy for the  phased  modernisation  and refurbishment of all car parks.

A  review  of  all  initiatives, including  charging  structures,

TTS & P&E

/T&R

DoE: Clear recommendations, in relation to the provision of parking  in  the  north  of St. Helier ,  are  set  out  in  the The St Helier Parking Needs

Study  (June

2013)  (see responses  to  Findings 41 and 42 above). Resources are required  to  progress  these proposals to implementation.

Recommendations

To

Accept/ Reject

Minister for Planning and Environment Comments (DoE)

Target date of action/ completion

that  might  encourage  a  more appropriate  distribution  of commuter and shopper parking.

19

The Minister for Transport and Technical Services should work with  Liberty Bus  to  develop proposals  for  more  buses  to access town at points other than Liberation Station, and a service that would link a range of urban areas  whilst  also  penetrating towards the town centre.

TTS

DoE:  The  Minister  for Planning and Environment is leading  the  work  that  is focussing  on  the  future  of St. Helier .

The  development  of  a Movement  Strategy  for  the town,  to  include  specific proposals  to  enhance  bus access  routes,  should  be  an integral element of this.

21

The  Minister  for  Planning  and Environment  should  assess  the merits  of  revising  and/or clarifying  the  current  strategies relating to development in town, notably  with  regard  to  their relevance to retail. This will be essential in providing a structure to  the  south-westerly  shifting town  footprint  and  potentially contracting retail core.

P&E

Reject

DoE:  The  Minister  for Planning  and  Environment considers  that  the  current planning framework for retail development is clear and is set out  in the  2011  Island  Plan, and  is  supplemented  by specific  supplementary planning  guidance  for  the North  of   St. Helier  and  key sites within it.

23

The  Minister  for  Economic Development should work with the  Town  Team  or  equivalent body,  and  notably  the representative  from  the Environment  Department,  to ensure  that  change  of  use processes  and  laws  are  as appropriate  and  efficient  as possible.

ED/ P&E

DoE:  The  Minister  for Planning and Environment is undertaking a major review of the  Planning  and  Building

(General Development)

(Jersey)  Order  2011  in  the

second half of 2014.

25

The  Minister  for  Planning  and Environment should examine the planning process and legislation associated  with  flags  and banners to ensure that they are as appropriate  and  efficient  as possible.

P&E

DoE:  The  Minister  for Planning and Environment is due  to  review  the  Planning and  Building  (Display  of

Advertisements)  (Jersey)

Order 2006 in 2015.