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Chapter 8 - TOWN CENTRES & SHOPPING continued

8.8 NON-RETAIL USES

8.8.1 For a number of years, there has been a steady increase in non-retail uses in Brent's town centres and, particularly for those centres in decline, diversity of use should be encouraged. All town centres consist of more than just retail shops and their accessibility makes them particularly useful for a range of activities serving the community; for example restaurants, leisure and entertainment venues, as well as financial and professional services, and primary health facilities

8.8.2 Although certain types of non-retail use are complementary to the retail function of a town centre, and contribute to its overall vitality, an excess is seen to cause two major problems:
(a) If the growth of non-retail uses leads to a net loss of retail units, there will be a reduction in the choice available to shoppers, with the possibility of the disappearance of particular types of shops and a decline in the attractiveness of the centre.
(b) The creation of "dead frontage", where there is a general absence of window displays, can lead to a loss of vitality and lessen the attractiveness of the centre for shoppers. The problem is exacerbated if non-retail uses are concentrated in a particular frontage rather than dispersed evenly throughout the shopping area.

8.8.3 Additionally, at a time when the number of retail units is generally contracting, it is also considered necessary to control the location of non-retail uses within shopping areas so that shopping and complementary activities are concentrated in the principal parts of the Borough's shopping centres, where they are more accessible for the purpose of comparison and choice.

8.8.4 In order to prevent a haphazard spread of vacancies and the proliferation of non-retail uses in the principal parts of shopping centres, primary shopping frontages have been defined for the town centres listed in Policy SH1. The designation of the primary frontage is based on such factors as pedestrian activity, the location of the largest units and the presence of the main shops. The extent of the primary shopping frontages for each town centre are set out in Appendix SH1. The types of non-retail use considered appropriate to such primary shopping frontages are set out in Policy SH6 and the circumstances under which these non-retail uses will normally be permitted to locate in primary frontages are set out in Policy SH7. The factors which are taken into account relate to the quality of servicing facilities, whether the proposal would result in an excessive concentration of non-retail uses, the proportion of the primary frontage in non-retail use and the vacancy rate in the primary frontage.

8.8.5 The Council, in common with other local authorities and organisations, considers that the total amount of frontage in non-retail use should not generally exceed 35%. However, it is also the Council's view that, during periods of low consumer expenditure and consequent high levels of vacant units in shopping centres, it is preferable to have appropriate alternative use of shop units rather than to allow an excessive build up of vacancies which is likely to be even more damaging than a high concentration of non-retail uses. After assessing vacancy levels in the Borough's centres, it is the Council's view that where these are over 10% the centre would benefit from the further introduction of appropriate service uses. In these circumstances therefore, the Council will allow additional non-retail uses above the normal 35% level. However, in order to prevent the over-domination of any particular centre by such uses, they will be permitted only up to a limit of 50% of the frontage.

8.8.6 Due to the lack of good quality rear servicing facilities within town centres in Brent, care must be taken to ensure that these scarce resources are fully utilised. Therefore, only the non-retail uses where good rear servicing would be well used shall generally be allowed within these areas as outlined in Policy SH19.

8.8.7 The point at which an excessive concentration of non-retail uses is reached will depend upon such factors as the size of units, the length of frontage and the number of adjoining units in non-retail use.

8.8.8 In some circumstances, the introduction of a new non-retail use can enhance the attractiveness of the centre rather than reduce the service provided to shoppers. For example the introduction of a financial institution or a food and drink (Use Class A3) use providing a new service tailored to the needs of a particular group in the community may enhance the range of services provided. These considerations are reflected in Policy SH7(d). Where a non-retail use would normally be refused on the basis of the criteria set out in Policy SH7(b)-(c) but is permitted on the basis of Policy SH7(d), conditions will be imposed restricting the use to that applied for.

8.8.9 It is recognised that criteria (b) - (c) could unreasonably hinder the expansion plans of existing services in a centre thus forcing them to move elsewhere. In such circumstances, consideration will also be given to whether or not a proposal is an extension to an existing business in the centre. It is considered important that businesses should be allowed the opportunity to expand to meet local demand.

8.8.10 One of the major problems with an excess of non-retail uses is the amount of dead frontage which, owing to the general absence of window displays and to the small numbers of customers, usually leads to a loss of vitality and lessens the attractiveness of the centre for shoppers. The provision of a window display can be ensured, however, by attaching a condition to permission. There may also be occasions where a particular use within a Use Class (see Glossary) would be appropriate in a shopping parade, e.g. library or doctor's surgery, whereas other uses within the same Use Class, e.g. school, would not. To ensure that premises cannot change to inappropriate uses, conditions limiting the use may be applied. Such conditions would not generally be applied to Class A1 (retail) and A2 (financial and professional services) uses.

8.8.11 Within Secondary Shopping frontages of Town Centres (identified on the Proposals Map), other non-retail uses will be allowed, where they provide a service for visiting members of the public e.g. leisure and health uses. In exceptional circumstances, where there are units on the edge of a centre which have been vacant for a long time, it may be possible to allow a change to residential use, providing that the unit in question is located on the periphery of the centre and that the loss of active frontage does not break the cohesiveness of the parade. Long term vacancy will normally be regarded as being over two years, with evidence of active marketing throughout that time.

8.8.12 There have been a number of large scale retail developments within, or on the edge of, some town centres, with layouts that do not fit into the traditional street frontage pattern. These are listed as off-street shopping frontage in appendix SH1. For the purposes of policy SH7 the length of these frontages will not be taken into account fin calculating the percentage of primary frontage in retail use.

The Evening and Night-time Economy

8.8.13 Evening and night-time activity in centres has been one of the largest growth areas in recent years, providing an opportunity for the range of activities in centres to diversify. The growth in the number of bars and restaurants is a response to increased demand as people have more disposable income and are prepared to spend more on eating out. It is likely to continue growing in the future. Compared to some areas, centres in Brent have not experienced the same levels of expansion in this sector, an expansion which should be encouraged if Brent's declining centres are to thrive in the future. Also, the lack of people in town centres after shops and offices close creates a neglected and unsafe environment and a lack of vitality. By providing a broader evening and night-time economy centres will be safer and can be enjoyed by a broader section of the population without fear. The development of alternative attractions to the traditional pub & club based culture can encourage people who currently do not use the centres in the evenings because of fear of crime. This requires careful control and management. Not all A3 and similar uses will be appropriate. Extended opening hours may not be acceptable in areas close to residential areas and should not simply push back the problems caused at 'closing time'. The staggering of closing times can help in this regard. Careful management and partnership with the police are essential, as is better lighting and CCTV (for which developments might be invited to contribute). Consideration can be given to the greater use of pavements by restaurants for tables in the evenings particularly.

The Impact of Food and Drink (A3) Uses on Residential Amenity and the Environment

8.8.14 In addition to the problems outlined above that are likely to ensue with an over-concentration of non-retail uses generally, specific problems of noise and disturbance impacting upon local residential amenity can result from the growth in the numbers of night time uses such as pubs, wine bars and nightclubs. It is considered necessary, given the level of concern in particular localities in the Borough about their effects, to apply additional controls to such uses. Especially in the larger centres, it is their growth in the secondary parts of town centres, where residential property is often above or in close proximity to the shop units, that has caused most concern. It is acknowledged in government guidance (PPG6) that the cumulative effects of concentrations of particular types of use, including loss of residential amenity, is a factor that ought to be weighed with others when making decisions. Environmental problems are caused by smells, noise & vibration (including from air-conditioning and ventilation equipment) and high levels of servicing. Litter problems can be caused, particularly from takeaways, and the increasing use of deliveries can cause forecourt obstruction and noise problems, as well as traffic problems from stopping vehicles.

8.8.15 Premises predominantly serving alcohol require particular attention, especially from late night activity. Although sales of alcohol are controlled by licensing, PPG6 emphasises that any environmental problems should be at an acceptable level and controlled from the outset. Issues that may need to be addressed at the planning stage include amplified noise, disturbance from traffic and obstruction of pavements, especially on side streets and from slamming of car doors. All of the above problems will be exacerbated from late night closures, especially from large numbers leaving premises in a short period of time.

8.8.16 Similar environmental problems to those resulting from certain A3 uses can also be caused by function rooms and nightclubs. Similar considerations to those for A3 uses will apply, therefore, when applications for these uses are determined. The policy also applies to extensions to extend existing premises or to increase the hours of operation.

8.8.17 The Use Classes Order 1987 (see Glossary) describes A3 uses as those for the sale of food or drink for consumption on the premises or of hot food off the premises. Therefore uses such as restaurants, cafes, take-aways, pubs and wine-bars all fall within the same Use Class. Although the Use Classes Order allows a change of use from restaurant to wine bar or public house without requiring planning permission, the Council considers that such a change would often result in a significant increase in disturbance to the surrounding area, in terms of the number of customers, noise, traffic generation, etc., and would not always be desirable. Similarly, in some locations vehicular traffic attracted by a take-away food shop may cause a hazard to other road users or nuisance to residents. In these and other comparable circumstances, therefore, the Council may, when granting permission for an A3 use, impose appropriate conditions restricting the use within the Use Class or limiting the operation in order to minimise any adverse environmental or traffic impact.

8.8.18 It is particularly important for certain groups, e.g. the elderly, children, disabled people, expectant mothers, etc., that adequate toilet facilities are provided within cafes and restaurants, the majority of which are located within town centres. Improved toilet facilities mean that all members of the population have greater opportunities to make both shopping and leisure trips. Part M of the Building Regulations will ensure that these facilities are provided in newly-built restaurants. However, where restaurants are created by a change of use of existing premises, the Regulations do not require the provision of facilities that are accessible to disabled people. As most new restaurants are provided as a result of a change of use, the Council will encourage the provision of facilities which are fully accessible to disabled people.

Amusement Centres

8.8.19 Amusement centres can cause particular problems because of the nature of the activity: consequently, the following policy applies to these uses.

Leisure, Arts, Culture and Entertainment Uses

8.8.20 The Council recognises the contribution made by recreational and arts, culture and entertainment (ACE) facilities to the vitality of town centres particularly in terms of bringing night-time activity to centres but in also facilitating multi-purpose trips. It will encourage their location within town centres where they are most accessible and can contribute to town centre regeneration. Such uses include cinemas, theatres and certain other recreational facilities. (Ground floor uses in such developments will be subject to Policies SH6-SH9.) Proposals for major development will be subject to the sequential approach as set out in policies SH3-SH5, and TEA1 in the Tourism, Entertainment and the Arts chapter.

Mini-Cab Offices and Similar Uses

8.8.21 Mini-cab offices generally wish to locate in town centres, although a primary frontage location is not considered appropriate. Because of the traffic and environmental problems that mini-cab operations can cause, they have been specifically excluded from the B1 (offices/light industry) Use Class. Noise insulation may be a requirement of permission for mini-cab offices where the effect of noise from the use is likely to lead to a loss of amenity in nearby residential property. The provision of such insulation is not covered by the Building Regulations. The Council has experienced many problems from mini-cab firms that have stated that they will be operating on a radio-controlled basis only but, in practice, have frequent visits by drivers to their base, causing loss of amenity and traffic safety problems. This is a particular problem where there is a concentration of such operations. Policy SH14 also applies to activities, such as 'couriers', which operate in a similar manner to mini-cabs.

8.8.22 The size of premises occupied can be a poor indicator of the intensity of such uses, therefore it is not possible to set down a specific parking requirement. However, the availability or otherwise of off-street parking will be a strong material consideration in determining planning applications. Where off-street parking is limited (and this may be the case in some of the secondary shopping frontage locations suited to such uses), Policy SH15 will permit consent on a temporary basis only.

Offices

8.8.23 The Council encourages appropriately sized office development to locate in larger centres because public transport, shopping and other facilities are available for the use of employees, and also because offices can complement the Council's other objectives for the physical and economic regeneration of the Borough's Town Centres (See policies EMP15-EMP17 in Chapter 7).

Libraries

8.8.24 Research into library provision in Brent has shown that two-thirds of library users combine their library visit with at least one other stop, generally to shop. Although many libraries are in or adjacent to shopping centres, and therefore generally have good access by public transport, a small number of libraries are not so well placed. Where new libraries are proposed they should be located within or adjacent to shopping centres, although existing libraries which are well used should be protected and improved. The Council's strategy for libraries is contained in Chapter 11, section 11.2.

Residential Accommodation above Shops

8.8.25 Residential accommodation above shops is generally welcomed in the Borough's Shopping Centres. It contributes to the stock of affordable accommodation and the presence of residents can act as a deterrent to crime. On the other hand there is also demand for accommodation above shops from commercial uses such as shops themselves, restaurants or small office occupiers such as solicitors or accountants, all of which require a Town Centre location. Such commercial activity can make a major contribution to the overall vitality of a centre and are important in fostering economic and physical regeneration.

8.8.26 Although there is a general presumption against the loss of residential accommodation across the Borough (see Policy H7 in Chapter 5), an exception has been made for vacant residential units above the ground floor of the Primary and Secondary Shopping frontage of the Borough's major town centres, i.e. Wembley and Kilburn. These centres are the Borough's priorities for regeneration and where a wide range of activities is appropriate. Alternative uses allowed are commercial or community uses (e.g. health facilities) that are compatible with a town centre location. In this way, a wider range of activities can be encouraged in the heart of the town centres, thus increasing their attractiveness to visitors and promoting their regeneration.

8.8.27 In Secondary frontages, change of use from residential will be allowed only if the proposed use is ancillary to the use below. In this way, existing shops and other businesses will be allowed to expand to upper floors, thus encouraging their retention in a centre. New businesses, which require more accommodation than the ground floor can provide, such as for staff facilities, will also be encouraged to locate in these centres. At the same time the pressure from other alternative uses, such as storage, which do not necessarily require a town centre location, will be minimised. The inclusion of upper floor residential units as part of mixed use developments will nevertheless be encouraged as these can also help to regenerate Town Centres (see Policy BE14 in Chapter 3). The plan recognises that some shopping frontages no longer can perform a useful shopping or service function and re-use or redevelopment for uses such as residential may be permissible (See policies H2 and SH18).

8.8.28 In allowing a change of use to an activity not associated with the ground floor premises, it is important for the safety and convenience of the public that independent access from the main road is provided (See also Policy CF13).

LOCAL CENTRES

8.8.29 The function of local centres and parades is largely to meet the day to day needs of local residents and they are particularly valuable for disabled people and the less mobile. It is important, therefore, to ensure that local shopping facilities remain easily accessible to local residents, especially those who do not live close to town centres. Those local centres and parades which the Council wishes to maintain are set out in Appendix SH1.

Non-Retail Uses in Local Centres

8.8.30 In view of the limited size of local centres, it is essential to retain retail uses or essential services in these centres. Consequently, only appropriate non-retail uses as set out in Policy SH6 or those which provide an essential local service, will be allowed. However, to help ensure that service uses do not over-dominate a local shopping parade, the proportion of units in non-retail use will be controlled. Proposals for changes of use to residential will be considered on the same terms as those in secondary shopping frontages as explained in paragraph 8.8.11.

Isolated Shop Units

8.8.31 Outside the town centres and local shopping parades, there are a number of isolated shop units, mainly in residential areas, which provide a useful service to the locality. These shops should remain in retail use if possible, particularly where there are no protected frontages (i.e. frontages designated as 'Primary' or as part of a Local Centre in Appendix SH1) within 400 metres. Where a loss of retail is allowed, the most appropriate alternative uses would be those compatible with residential areas, for example residential and community uses. Map SH2 gives a general indication of those areas that are more than 400 metres from a protected frontage.

Other Shopping Parades

8.8.32 Outside the town centres and protected local parades and shops, there are a number of other shopping parades which, because of a reduction in the demand for local shops and services, are no longer essential to meet local shopping needs. In such parades alternative uses will be considered

8.9 ENVIRONMENTAL & DESIGN CONSIDERATIONS

Environmental Quality & Traffic in Town Centres

8.9.1 If the Council's objective of maintaining and enhancing the vitality and viability of established town centres is to be achieved, then, as well as regenerating them by securing major development, there is also a need for other measures which will make the centres more attractive to shoppers and businesses. These include measures to alleviate traffic congestion, to reduce vehicle/pedestrian conflict and to improve rear servicing and car parking facilities and public transport accessibility. These measures are made more effective through town centre management, which can bring together public agencies, residents, businesses and investors and ensure the proper co-ordination and development of services to the town centre. General environmental improvements, such as upgrading shop fronts, tree and shrub planting and the provision of seating and amenity areas are also required. Development schemes within town centres, therefore, should contribute to the improvement of facilities and environmental quality generally. Policies and proposals for alleviating the major traffic problems within Wembley town centre are set out in the Inset Plan in Chapter 14. Relevant policies for improving built environmental quality are included in Chapter 3 on the Built Environment, Section 3.8.

8.9.2 There are a number of considerations which apply to all shops whether in town centres, local parades or major new developments and reference to the following policies will be made whenever appropriate. All new shopping developments, whether town centre developments, retail warehouses and superstores in out-of-town-centre locations, or extensions to existing shops, must be capable of operation without adverse effects on the local environment and the amenity of local residents, and must be of a high standard of design in keeping with the existing character of the area. This includes orientation towards the street in shopping centres. Parking standards for retail developments are included in Chapter 7 and detailed standards relating to shopfront design are set out in the Council's Supplementary Planning Guidance .

8.9.3 As shopping trips are one of the most frequent reasons for going outside the home, there should be access to and ease of use of town centres by all members of the public. To that end the Council will aim to ensure that, where appropriate, all town centre developments provide a satisfactory level of accessibility for disabled people. Good access to new shops will be provided by Part M of the Building Regulations but, in the case of changes of use or alterations, these improvements will need to be negotiated. The Council's Supplementary Planning Guidance includes guidance concerning access for disabled people.

8.9.4 Extensions to the fronts of shops can disrupt the building lines of shopping parades and, consequently, will not normally be allowed. Policies are also required to control forecourt trading because of problems of obstruction and the effect on the character of an area, although in certain centres where the pavements are wide, e.g. parts of Wembley, the centre can be made more attractive to potential users, especially in the evenings, by use of the pavements for restaurant tables.

8.9.5 In order to make shopping easier the Council considers that certain additional facilities for disabled people and child carers should be provided in major retail developments. This is particularly important in large stores and shopping centres where shoppers spend a significant proportion of their time. These should include toilets and childcare facilities i.e. baby changing and feeding areas and crèches. These will particularly benefit women who comprise the majority of shoppers and carers of children. Details concerning the design and type of facilities the Council wishes to see provided in new developments are included in Supplementary Planning Guidance (SPG14).

8.10 RETAIL MARKETS & CAR-BOOT SALES

8.10.1 There has been growing pressure in recent years for the establishment of retail markets in the Borough. These, if properly regulated, can add vitality and character to existing shopping centres, and may help to attract more shoppers. Markets are regulated by a number of legislative instruments. The Town & Country Planning (General Permitted Development) Order 1995 governs the period that any land can be used for holding a market, after which planning permission is required. The London Local Authorities Act 1996 (Part III), governs the licensing of what are termed 'occasional sales', i.e; five or more buyers and sellers operating from a site that is not part of a highway or building (except a car park) and including no less than five stalls, stands, vehicles or pitches from which articles are sold. Applications for licenses are considered by Brent's Health Safety & Licensing Service. These do not cover markets held in accordance with planning permission, nor those with an established use, or which have been held continuously since before the 1st July 1948. In addition, the Trade Description Act 1994, Trademarks Act 1968, Consumer protection Act 1987, and many other Statutes and Regulations, including European Directives and Codes of Practice, are enforced by Brent & Harrow Trading Standards on all market traders.

8.10.2 This means that persons exercising their permitted development rights, who also receive payment from those trading in the sale, must nevertheless apply for a license which usually imposes conditions relating to: the time of commencement; the duration of the sale; arrangements for accommodating customers vehicles; arrangements for controlling road congestion, litter and noise; a requirement that the names and addresses of sellers are publicly displayed; a requirement that the person holding the sale display their full name and business address, and full name & address of person appointed to receive complaints about the sale in a prominent position.

Retail Markets

8.10.3 The existence of stall holders in retail markets and non-licensed traders such as news-vendors and flower-sellers, complements the range and variety of retail provision in the Borough. These can make a positive contribution to the vitality of shopping centres and provide interest and colour to the street scene, adding to the identity and character of the shopping areas where they are situated. They provide a retail presence in areas deficient in local shops and catering units, and variety where trading from conventional shop premises would not normally be viable or suitable. Such trading is either 'on-street' (requiring a license to trade on the public highway), or 'off-street' (by agreement between landowner and trader). They are also important starting points for the establishment of new businesses by local residents, particularly by the and ethnic minority groups.

8.10.6 Another potential form of retail development concerns mobile stalls (i.e those comprised of caravans or other adapted vehicles stationed in lay-bys, highway verges, industrial estates or within the curtilage of a public house or other building). Although most are permitted development and do not constitute a significant problem at the present time, the Council will monitor the number and effects of such developments, particularly near sensitive areas, due to their potentially intrusive visual impact, and a possible future increase in their number, in light of the regeneration initiatives ongoing in parts of the Borough.

8.10.7 The market in Kilburn Square is the only one with permanent stalls in the east of the Borough. It is an integral part of Kilburn town centre, adding to its character and vitality.

8.10.8 The Sunday Market held in Wembley Stadium's car park is the biggest in north London after Camden Market. Although well served by buses and Wembley Park underground station, it also generates a significant amount of vehicular traffic within the area. Policy WEM26 supports the retention of the market whilst controlling its environmental and retail impact .

8.10.9 Wembley also has a covered mini-market in Lancelot road, just off the High Road. It is the only permanent market in the western part of the Borough. However, due to its location towards one end of the centre and opposite the busy junction with Ealing Road and the High Road, the town centre does not benefit visually from its presence. There is also a popular open air market in Willesden which is held twice a week in the car park of the Moll Darbys public house on Church Road.

8.10.10 Further proposals for retail markets should be in line with the Council's shopping strategy, which is primarily designed to improve the shopping services within the Borough by directing new investment to existing town centres. However, the scale of such development should be in keeping with the size of the centre and should have regard to the impact on the surrounding area and on other centres. In addition, any sites chosen should be physically suitable: they should be hard surfaced with adequate servicing and parking arrangements for stall holders and not subject to any highway limitations.

Car-Boot-Sales

8.10.11 In recent years, there has been an increase in the number of car-boot sales being held in the borough. It is recognised that these can often be a popular means for the local community to recycle unwanted articles, socialise informally, and for those on low-incomes to purchase second hand goods at well below shop prices. However, these activities in predominantly residential areas often cause disturbance to local residents, particularly when there is excessive noise at unsociable hours as well as unsightly (permanent) advertisements, litter and significant traffic and parking stress. In order to protect residential amenity, applications for car-boot sales will generally be refused unless it is demonstrated that the proposed sales would not have an adverse impact on the locality.

8.10.12 There are currently at least six private car-boot sales operating weekly within the Borough. With the exception of the Wembley stadium and Bridge Park Centre car-boot sales on Saturdays, they are all held in school car parks and playground areas. The problems associated with car boot sales relate to their often closer proximity to residential areas, being located outside existing centres. Particularly for sales operating on Sundays, in predominantly residential areas, the complaints from neighbours have included; trading cars queuing up early in the morning waiting to be admitted into the grounds, noise from car doors slamming and loud music from cars, general disturbance from customers cars entering and leaving grounds, traffic generated on congested roads, parking problems, and problems with litter generated outside the grounds.

8.10.13 The policy aims to ensure they do not have a detrimental effect on residential amenities, the local environment, or the vitality and viability of any nearby town centre. It also addresses some of the main issues of concern expressed by residents such as safety, control of noise, congestion, etc. Any permission given should be temporary in order that the Planning Authority may retain the power to require the Car-Boot Sale to cease if nuisance is caused. In considering whether the scale of activity under criteria (a) is excessive a minimum of about 20% of the total site area for circulation and an area of not less than 45m2 per car will be assumed, in addition to any spatial constraints imposed by other criteria. An acceptable management plan under (f) should include: i) commencement time and duration of the sale with regard to the potential impact on residential amenity, ii) a site layout plan showing vehicle trading areas, maximum number of vehicles, spacing and aisle widths, iii) arrangements for marshalling access into the site and safety measures that will be put in place to prevent or deal with accidents, iv) for large sales, a pre-booking system for not less than 50% of pitches, and v) signage, with arrangements for the display and/or collection of sellers' details as a best practice measure.

8.10.14 The nature of goods on sale, are not, strictly speaking a planning issue, although the increasing use of car-boot sales by traders selling new goods could indirectly affect the vitality and viability of nearby town centres if the sales have a large enough catchment area.

Exceptional Restrictions of Permitted Sales

8.10.15 The Council considers that car-boot sales are essentially 'non-retail' markets (by non-traders dealing in second-hand/recycled goods), and therefore come within the definition of a market in Part 4 (Class B) of the General Permitted Development Order (GPDO) 1995. The GPDO permits the holding of a market, without planning permission, for not more than 14 days a year. However, in certain locations, such car-boot-sales may cause considerable problems, in the absence of adequate controls. If the Council receives persistent complaints or considers any car-boot-sales to be causing problems, then it may use its powers under Article 4 of the Town and Country Planning Act 1990 to remove the permitted development rights. This would mean that all proposals to hold car-boot sales in the specified area would require planning permission.

8.11 SPECIAL POLICIES FOR CERTAIN CENTRES

KILBURN

8.11.1 Kilburn was the first of Brent's town centres to be developed and has continued to be a major centre for inner North West London. It has retained its status as a strategic centre but there has been little retail investment in recent years, and it suffers from a poor general environment. The centre has good public transport links, but adjoining residential streets are heavily used for shoppers' parking. The Council, together with Camden Council, is pursuing a regeneration initiative for the centre and a strategy for the future was drawn up by URBED in 1997.

8.11.2 Entertainment and recreational uses have always been an integral part of the character of Kilburn and have brought diversity and vitality to the centre. In recent years however, there has been an increase in licensed premises, particularly in the northern part of the centre and in Willesden Lane. Some of these premises provide entertainment and have extended opening hours. The parking and general activities associated with these uses and the clubs and other establishments already in the area have resulted in a severe loss of amenity to residents in the adjoining streets. (See Glossary for definition of A3 uses.)

EALING ROAD

8.11.3 Ealing Road Town Centre is a specialist Asian-led shopping centre whose commercial success over recent years has transformed the area from a series of local shopping parades to a thriving shopping centre. Located in a residential area, it serves both the local community and the wider population for whom it fulfils a specialist role. Due to the centre's location and the constraints imposed by the road and building pattern, a number of environmental problems arise. Generally the Borough wide policies in this Plan are sufficient to address these problems but there are certain issues which require specific policies. In particular, any extension of the centre beyond its existing boundary is likely to exacerbate congestion and associated problems: therefore the Council will pursue a policy of restricting the growth of the centre whilst maintaining and consolidating its current success. Shops and businesses which wish to locate in the general area will be directed to Wembley Town Centre where the Council is encouraging businesses and focusing resources as part of its regeneration strategy for that centre.

8.11.4 To help alleviate the problems of Ealing Road, the Council will seek, as part of any further new development schemes within the centre, rear servicing improvements, public car parking and a site for public conveniences.

8.11.5 The level of traffic congestion and its associated problems of illegal parking/loading within the town centre are exacerbated by the severe lack of rear servicing to the commercial properties. Most of the Town Centre lacks adequate rear servicing. The Council has policies to protect existing rear servicing and parking facilities (Policy SH19 and, in Chapter 6, Policy TRN34). Any improvements or provision of new facilities would involve the demolition of some property. The potential exists to improve the rear service roads to Nos. 99-141 Ealing Road (Haynes Road) and to Nos. 160-192 and 194-218 Ealing Road.

8.11.6 Haynes Road currently serves Nos. 111-141 Ealing Road. The intention is to extend this to Nos. 99-109 on redevelopment. Nos. 99-103 have been redeveloped, reserving a rear service road which could be extended to Haynes Road when the opportunity arises.

8.11.7 The busiest stretch on the western side of the centre comprises Nos. 160-218 Ealing Road. These are currently serviced by roads which are too narrow for modern purposes and in a poor state of repair. Studies have shown that improved service roads can be provided to the rear of these properties, although this would involve considerable demolition of property. The improvements to rear servicing will, therefore, have to be carried out upon redevelopment of the shops. The Council's standards for rear service roads are contained in Supplementary Planning Guidance SPG13.

8.11.8 There are limited opportunities for providing car parking within the town centre and therefore it is essential that all opportunities, however small, are pursued. Policy TRN25 in Chapter 6 sets out the Council's commitment to securing an appropriate level of short-stay car parking in town centres, including Ealing Road Town Centre. The Council is investigating, with local traders, the land to the rear of Haynes Road as a potential public parking area.

HARLESDEN

8.11.9 Harlesden, although benefiting from investment in the centre through the City Challenge scheme during the early 1990's which arrested its decline, continues to require support from the planning system to maintain its role as a Major District Centre and to ensure that the improvements made are sustained. The centre continues to suffer from traffic congestion and relatively poor links to the main station, Willesden Junction, 500 metres away.

8.11.10 Although the centre has seen some new development in recent years, with the provision of a modern supermarket, new shop units and public car parking, the Council will continue to encourage and promote appropriate town centre development, e.g. shops and leisure uses, on sites within or adjacent to the centre in accordance with the sequential approach to development.

8.11.11 One specific concern is the lack of rear servicing facilities for shops in the centre resulting in service vehicles obstructing traffic and reducing visibility for drivers. It is therefore sensible that the opportunity to provide rear servicing on redevelopment should not be missed, nor should existing facilities be lost without adequate replacement.

8.11.12 Of particular importance in Harlesden, in view of the presence of several listed buildings and the designation of part of the centre as a conservation area, is attention to urban design quality and environmental conditions generally. Much improvement was achieved during the course of City Challenge and this should not be allowed to deteriorate and the aim is to make further improvements. If the town centre is to be re-established with a strong sense of place and identity, new buildings should reflect the best features of its established character and materials and street furniture should be chosen as part of a comprehensive design treatment. There is also a need to improve the overall standard of shop front and advertisement design. In making applications for new shopfronts in Harlesden, regard should be had to the supplementary guidance contained in the Harlesden Shopfront Design Guide.

Queens Park

8.11.13 Queens Park District Centre has been undergoing major change. Alongside the increasing popularity of the surrounding residential area, the centre has seen the opening of new restaurants and shops and the centre has virtually no vacancies. The area immediately to the north is undergoing regeneration, with recent development of new mixed and specialist uses re-using the attractive Victorian buildings. This change is to be welcomed. In order to ensure that the expansion and growth of the centre occurs in a manner which maintains the character of the buildings, does not cause traffic problems, maintains employment and complements the district centre, site specific proposal DP3 in Chapter 15 sets out specific requirements for development.

KENSAL RISE

8.11.14 Kensal Rise is a centre which has declined considerably in recent years, with a high level of vacancies and an increase in non-retail uses. The area has not benefited from the increasing popularity of the surrounding residential area, unlike premises on the Harrow Road. Proposals to diversify and regenerate the centre are welcomed.

APPENDIX SH1:
TOWN CENTRES (PRIMARY AND
SECONDARY FRONTAGES) AND LOCAL CENTRES


MAJOR TOWN CENTRES:

WEMBLEY
Primary Frontage
Wembley High Road 444b-548,
397-501
Central Square 1-43
Park Lane 6-8, 1-11
St Johns Road 1-9


Secondary Frontage
Wembley High Road 313-337, 367-395, 503-569
326-354, 400-406, 412- 444, 550-612
Wembley Hill Road 23-31
Neeld Parade 1-12
Wembley Hill Road 1-19
Ealing Road 2-60, 3-17, 1-7 Plaza Parade
Coronet Parade 1-6
Sevenex Parade 1-8
Lancelot Parade 1-5


KILBURN

Primary Frontage
Kilburn High Road 79-205
Kilburn Square (fronting High Road 92-94 (inclu
at ground floor level) sive)

Secondary Frontage
Kilburn Bridge 1-12
Kilburn High Road 41-63, 67-77, 207-405
Kilburn Square 96-109 (inclusive)
Willesden Lane 11-85, 2-70
Exeter Road 2-8
Oxford Road 2-4
Coventry Close 1-3
Cambridge Avenue 6-10
Glengall Road 1-5, 2-8
Priory Park Road 2-4
Dyne Road 2b-2f

MAIN DISTRICT CENTRES:

BURNT OAK

Primary Frontage
Burnt Oak Broadway 33-51

Secondary Frontage
Burnt Oak Broadway 15-31
Allied Carpets
Holmstall Parade 1-15

EALING ROAD

Primary Frontage
Ealing Road 160-242a, 99-141
Secondary Frontage
Ealing Road 134-158

HARLESDEN

Primary Frontage
Harlesden High Street 2-114, 1-93
Bank Buildings 1-11(inclusive)
Manor Parade All properties
The Croft All properties
Craven Park Road 1-21, 2-8
Acton Lane 2-6
Tavistock Road Units 1-6 Harlesden Plaza

Secondary Frontage
Harlesden High Street 116-122, 95-109
Craven Park Road 10-86, 23-59, Library Parade
Manor Park Road 158-166
Park Parade 1-9 (inclusive)

Off-Street Shopping Frontage
Tavistock Road Unit 7 Harlesden Plaza

WILLESDEN GREEN

Primary Frontage
Willesden High Road 2-88, 1-121
Walm Lane 1-47, 58-92
Queens Parade 1-12
Willesden Lane 291-293

Secondary Frontage
Willesden High Road 147-167, 100-142
Station Parade 2-26
Walm Lane 53-69

Off-Street Shopping Frontage
High Road Somerfields

KINGSBURY

Primary Frontage
Kingsbury Road 449-573, 532-660
Kingsbury Arcade 1-22

Secondary Frontage
Kingsbury Road 419-447, 510-530
Fryent Way 1-5

CRICKLEWOOD

Primary Frontage
Cricklewood Broadway 83-217

Secondary Frontage
Cricklewood Broadway 7-81, 219-241
Chichele Road 2-4


OTHER DISTRICT CENTRES:

NEASDEN

Primary Frontage
Neasden Lane 270-352, 237-309
North Circular Road 536-540, 560-570

Secondary Frontage
Neasden Lane North 354-388
Neasden Lane 232-260
North Circular Road 572-580

KENTON

Primary Frontage
Kenton Road 177-235

Secondary Frontage
Kenton Road 85-137

Off-Street Shopping Frontage
Nash Way Sainsburys

COLINDALE
Primary Frontage
Edgware Road 167-223

Secondary Frontage
Edgware Road 225-295

PRESTON ROAD

Primary Frontage
Preston Road 197-279, 192-296

Secondary Frontage
Preston Road 298-308, 314-324, 176-190
Carlton Parade 1-5

KENSAL RISE

Primary Frontage
Chamberlayne Road 47-101
Station Terrace 21-30

Secondary Frontage
Chamberlayne Road 32-78, 98-106, 37-45, 103-119
Bridge House 1-4
Station Terrace 15-20
Keslake Mansions 1-7

QUEENS PARK

Primary Frontage
Salusbury Road 26-36, 46-62, 43-101

SUDBURY

Primary Frontage
Harrow Road 784-822, 753-779
Secondary Frontage
Harrow Road 781-797, 824-830
Watford Road 2-36

WEMBLEY PARK

Primary Frontage
Bridge Road 7-55

Secondary Frontage
Wembley Park Dr . 87-147,
100-126
Empire Way 10-16
Grand Parade 1-18

Off-Street Shopping Frontage
Forty Lane ASDA
Wembley Park Drive Units1-4 Stadium Retail Park

LOCAL CENTRES:

ACTON LANE
Acton Lane 75-99

BLACKBIRD HILL
Blackbird Hill 25-51


CANTERBURY ROAD
Peel Precinct 1-7, 16-24

CARLYON ROAD
Carlyon Road 36-50

CHAMBERLAYNE RD.
Chamberlayne Rd 4-30

CHURCH LANE SOUTH
Church Lane 151-177, 216-232, 244-282
COLLEGE PARADE
Salusbury Road 12-20

CHURCH END
Church Road 132-190, 179-203

COLLEGE PARK
Harrow Road 994-1020, 1074-1104

COLLEGE ROAD
College Road 104-120

DUDDEN HILL PDE
Dudden Hill Parade 1-4

EAST LANE
The Broadway 1-20

GLADSTONE PARADE
Gladstone Parade 4-9 (Edgware Road)

GOOSEACRE
Kenton Road 425-447

HAMILTON ROAD
Hamilton Road 1a-1d

BURNLEY ROAD
Burnley Road 78-82

HARROW ROAD
Harrow Road 875-881

HAY LANE
Hay Lane 5-27

HEATHER PARK
Heather Park Parade 1-10

KINGSBURY GREEN
Kingsbury Road 235-275

KILBURN LANE
Kilburn Lane W9 291-305

MALVERN ROAD/SHIRLAND ROAD
Shirland Road 197-201
Malvern Road 1-41

MONKS PARK
Harrow Road 2-74

NORTH WEMBLEY
East Lane 181-215

OXGATE
Oxgate Parade, Coles Green Rd. 1-9

QUEENSBURY
Queensbury Stn Parade 1-26

ROE GREEN VILLAGE
Stag Lane 338-346

SIDMOUTH ROAD
Sidmouth Parade 1-10
Sidmouth Road 27

SOUTH KENTON
Ennerdale Court 1-4
Mariel House 1-4
Windermere Ave 118-128

STATION ROAD
Station Road 25-63, 46-60

ST JOHNS AVENUE
St Johns Avenue 88-96

WATFORD ROAD
Watford Road 201-223

WATFORD ROAD
Court Parade 1-17, 32-38

WEMBLEY HILL
Harrow Road 293-311, 300-322

WILLESDEN HIGH RD
Willesden High Road 254-290, 271-285

WILLESDEN LANE
Willesden Lane 72-98



APPENDIX SH2: DEFINITION OF EALING ROAD TOWN CENTRE

Ealing Road Town Centre is defined as follows:-

Ealing Road 134 - 242a
Ealing Road 99-147
Eagle Road 1
Haynes Road All properties

Foreword

Introduction

Strategy

Built Environment

Environmental Protection

Housing

Transport

Employment

Town Centres & Shopping

Tourism, Entertainment & the Arts

Open Space & Recreation

Community Facilities

Waste

INSET PLANS

Park Royal

Wembley Regeneration Area

Site Specific Proposals

Glossary

Borough-wide maps