WESTMINSTER’S ECONOMY
DEVELOPING WESTMINSTER’S CITY PLAN
Booklet No. 6
Westminster City Plan Consultation - City Management Policies Revision
February 2014
Foreword
Cllr Robert Davis DL
Westminster’s continued economic success is vital not only to the prosperity of its
residents, but to those of the United Kingdom as a whole. We have more jobs in our
area than any other London borough, and a huge range of enterprises - from globally
famous department stores to corner shops. Our businesses are also a vital element
in Westminster’s uniqueness, providing services and opportunities that make it such
an exciting and rewarding place to live, visit or work.
It is essential that our planning policies provide a basis both for existing enterprises
to flourish and grow, and to encourage innovation and new businesses. The sheer
diversity of the City’s economy is one of our major strengths, and we need to make
sure this is safeguarded by ensuring there are the right kind of workspaces in the
right places.
There are parts of the City which are less successful than others, and our policies
must spread success and its benefits more widely, providing opportunities for
residents and tackling problems of worklessness and disadvantage.
The policies in this booklet are intended to address all these aspects and pick up on
some of the most important issues in planning. Getting them right is obviously vital,
and I look forward to considering the comments we receive on them.
Councillor Robert Davis DL
Deputy Leader, Westminster City Council
Cabinet Member for Built Environment
2
Introduction
The policies covered in this booklet are:
•Strategic Policy S12
- North Westminster Economic Development Area
•Strategic Policy S13
- Outside the CAZ and NWEDA (shopping centres)
•Strategic Policy S19
- Inclusive Local Economy and Employment
•Strategic Policy S20
- Offices and Other B Use Business Floorspace (part)
•Strategic Policy S21
- Retail
•Strategic PolicyS27
-Buildings and Uses of International and National Importance (including Diplomatic and Allied Uses
•City Management policies
•CM1.4
- Retail in the Central Activities Zone
•CM 2.2
- Portland Place Special Policy Area
•CM 2.3
- East Marylebone Special Policy Area
•CM13.1
- Local Shopping Centres
Because of the complexity around office development a separate booklet is being produced dealing with the issues around office to
residential development and mixed use. Also part of Westminster’s economy, a booklet has been produced for food, drink, entertainment,
tourism, arts and culture.
We would welcome your views on proposed new policy wording, which is shown as underlined or identified as
entirely new policy. Adopted policy is shown in bold and is not intended to be altered as a result of this
consultation..
3
CONTENTS
Trends
1.
2.
3.
4.
5.
6.
7.
8.
9.
Westminster’s Economy
Jobs in Westminster - All Economic Sectors
Westminster’s Global Role
Local Deprivation and the Local Job Market
Offices outside Commercial Areas and NEWDA
Other Class B Uses
Westminster’s Shopping Hierarchy
Town Centre Profiles and Performance
London and Westminster Retail Market
Insights
Victoria NOVA Proposals, Land Securities
1.
2.
3.
4.
5.
6.
7.
What Are We Trying to Achieve?
A Functional Approach to NWEDA
East Marylebone and Portland Place Special
Policy Areas
A Sequential Approach to Retail
The CAZ Approach to retail
What Should we Protect?
Department Stores
4
8.
9.
10.
11.
Local Shopping Centres
Small and Independent Retailing
Non-A1 Retail Uses
Temporary Uses
Recommendations
1.
2.
3.
4.
Retail in the Central Activities Zone
Portland Place Special Policy Area
East Marylebone Special Policy Area
North Westminster Economic Development
Area (NWEDA)
5. Outside the CAZ and NWEDA
6. Training and Employment
7. Offices and other B Use Floorspace
8. Wholesale Showroom Uses
9. Diplomatic and Allied Uses
10. Retail
5
TRENDS
WESTMINSTER’S ECONOMY
Employees
Businesses
GVA
ADF Generated
Westminster has 673,000 employees (ONS,
2013), the most of any London borough by some
distance, representing 13% of London’s
workforce. This is nearly twice the amount when
compared to the second highest London
borough, which is the City of London.
Westminster also has the single largest
number of businesses of any London
borough, with 50,100 businesses currently
located in Westminster (Experian, 2012),
which is around 12% of London’s total, and
is a growing figure. Camden has the next
highest number, with around 24,000
businesses (IDBR, 2010).
In terms of output generated by
Westminster’s
economy,
in
2011
Westminster’s GVA (Gross Value Added)
was £46.14bn, which equates to 16.3% of
London’s total, and over 3% of national
GVA (Peter Brett Associates, 2013).
The number of employees is projected to rise by
a further 10% up to 2031, meaning that by then
the number may exceed 740,000 (LOPR, 2012).
Employee jobs are overwhelmingly located in the
two central wards of St James’s and West End,
which combined account for the location of
nearly two thirds of all Westminster jobs.
Westminster Businesses 2007-12 (Experian,
2012)
Westminster has a very diverse economy,
however the largest sectors by business
numbers are the Knowledge Economy
(17,700
businesses)
and
Retail/
Entertainment/ Leisure (11,600).
50.0
40,000
30,000
20,000
10,000
0
2011
2010
2009
2008
2007
2006
2005
2004
2003
2002
2001
2000
1999
48.0
Westminster GVA (£million)
50,000
1998
Britain is home to the HQ’s of 29 Global
500 companies, seven of these are in
Westminster, including BP, BAE Systems
and the Rio Tinto Group.
Westminster’s GVA is projected to rise to
£48.5bn by 2014, having risen steadily
since the 1990’s.
1997
Local Enterprise Units (0,000s)
52.0
A majority of Westminster’s businesses are
small businesses, with 85% of VAT
registered businesses having fewer than
ten employees (IDBR, 2010).
Again, Westminster is the single largest
generator of GVA of any London Borough,
compared to £39.9bn generated by the City
of London (Peter Brett Associates, 2013).
46.0
44.0
42.0
40.0
2007
2008
2009
2010
2011
2012
“An Economic Power House:
One in 40 workers in England
work in Westminster.” Better
City, Better Lives (2013)
“50,100 businesses.
(Westminster) contributes £46
billion or 3.1% to National Output”
Better City, Better Lives (2013)
6
Jobs in Westminster - All Economic Sectors
Professional, scientific, technical
Wholesale & retail
Accommodation & food services
Information & communication
Administrative & support services
Public administration & defence
Financial & insurance activities
Real estate
Education
Other service activities
Health & social work
Arts, entertainment, recreation
Other (transport, storage, construction,
manufacturing, utilities, other)
17.4%

















11.9%












11.7%












9.6%










9.1%









8.2%








6.7%







4.7%





4.4%




3.9%




3.9%




3.5%




5.0%





Total number of all jobs
Business Register and Employment Survey
ONS Crown Copyright Reserved (from Nomis on 18 April 2013)
673,000
7
WESTMINSTER’S GLOBAL ROLE
Tourism, attractions and hotels
Westminster is visited over 55 million times a
year, with tourism expenditure totalling nearly
£7bn (LDA, 2007).
Home to 5 of top 20 paid attractions in London,
and 6 of top 20 unpaid attractions.
450 hotels, with 40% of all London’s bed
spaces, with numerous international high end
hotels alongside other accommodation types.
Accessibility
4 mainline rail stations, with direct connections
to the world’s third busiest airport, Heathrow
(70 million passengers per year, accessed via
Paddington), in addition to Gatwick, accessed
directly via Victoria.
Crossrail Line 1 (under construction), 10
London Underground lines (32 stations)
supporting a daytime population of over 1
million people.
State and government
Westminster is home of the state and national
government, acting as a generator for
employment and as a tourist attraction.
Royal Palaces sit alongside the home of
government, acting as an international focus
point for events and ceremonies, bringing
together dignitaries from all over the world
throughout the year.
Image from Google
Business
Westminster is a global office centre, with over
9million sqm of office floor space, coupled with
on going high demand as illustrated by the
high levels of rent and low vacancy levels.
A centre for global HQs as discussed.
Home to creative industries, hedge funds, real
estate, and other key economic sectors.
Entertainment Uses and NTE
Unparalleled number and range of restaurants,
pubs and bars, and other entertainment uses
with world renowned focus in the West End.
4000 restaurants/pubs/bars/entertainment uses
(Experian 2012).
Unrivalled number of fine dining/Michelin
starred restaurants, as a world leading dining
destination.
Over 20 casinos. 24 hour economy, with Soho
being busier at night than it is during the day.
Retail
National and global centre for retail and fashion
with Oxford Street as the nation’s high street,
alongside the more luxury retail streets
focussed on Bond Street, which has the highest
rental values in the UK.
Very low vacancy rates alongside high demand,
particularly in the West End and primary
shopping streets.
Luxury retail quarter in Mayfair and St James’s
and home to international niche retail markets
such as tailoring, art sales, and jewellery.
Arts, Culture & Sport
Home to international film premieres, the
Proms at the Royal Albert Hall, London Fashion
Week, National Gallery, Tate Gallery, Royal
Colleges of Art and Music, Theatre Land and
the Royal Opera House.
38 theatres in Westminster, including the
renowned West End theatre land.
Home of international Cricket at Lords Cricket
Ground, and London 2012 Olympic venue for
several sports across Westminster.
8
LOCAL DEPRIVATION AND THE LOCAL JOB MARKET
Polarisation, and localised deprivation
JSA: Job Seekers
Allowance
• 87th most deprived local authority out of 326 in 2010 Index of Multiple
Deprivation (IMD). In 2004 Westminster was 39th showing improvement.
• Between 2007 and 2010, 75% of Lower Super Output Areas (LSOA - sub
division of wards used for the Census) improved their overall IMD rank.
• Deprivation is concentrated in Queens Park, Harrow Road and Church Street.
Queen’s Park contains LSOA’s that are in the top 5% for overall deprivation
nationally (the single most deprived LSOA’s are in Liverpool and Blackpool),
and contains the single most deprived LSOA’s in England for the individual
measure, children affected by income deprivation.
Household Income (CACI Pay check Data, 2013)
• 2013 median household income in Westminster is £36k, with an upper
quartile of £60k and a lower quartile of £19k. The ward with the lowest
median household income is Church Street with £24k, the highest is
Marylebone High Street with £42k. And the LSOA with the highest
median household income is in St James’s with £48k (mean income of
£57k and upper quartile income of £72k).
Local Job Market
• Westminster is home to 642,498 employee jobs with a resident
population of around 223,000.
• 42% of Westminster’s residents who travel to work stay within the
borough, 54% work elsewhere in London, and 4% outside of London.
Barriers to Job Market
• Pockets of deprivation, with
skills shortages.
• Relatively high proportion of
young people not in education,
employment or training (NEET)
compared to London average.
• Low employment rate and
economic activity rate.
“Historically Church Street has under
performed as a business location- this is
underpinned by a lack of suitable
workspace and a local population
characterised by low levels of economic
capacity and income” The Futures PlanChurch Street, Paddington Green, Lisson
Grove (2011) City of Westminster and
Urban Initiatives'
9
OFFICES OUTSIDE COMMERCIAL AREAS AND OUTSIDE NWEDA
Not office locations?
Offices are the second largest
use in Westminster, making up
27% of all land uses. However,
outside the main commercial
areas* and NWEDA (where
offices are directed), there is
limited scope for office
expansion. The Council wishes
to sustain and enhance the
residential character and
function of these areas but
recognises that some of the
activities which can help
support residential
communities take place from
B1 office premises, such as
offices for local charities or
offices for the co-ordination of
private, public health or
community services.
Limitations of Legislation
Changes to the General Permitted Development Order, made in May 2013 allow extensions to office
premises of 100sqm (previously 50 sqm) provided this is not more than 50% of the building
(previously 25%) without the need for planning permission. This does not apply to listed buildings
and premises inside conservation areas. As over 75% of Westminster is covered by conservation
area designations, it is considered that the impact of these changes is likely to be limited.
There are also existing
established office occupiers in
these areas who may want to
expand. The Council supports
small businesses and
appreciates that it may be less
costly for these businesses to
extend their existing premises
rather than relocate.
*The Core Central Activities Zone, the Named Streets, the Opportunity Areas and shopping centres.
10
OTHER B USES
A recent desk top study (March 2013) indicates that there is just under 9,500 sqm of B8 storage and distribution floorspace
and some 58,000 sqm of floorspace being used for B1c light industrial purposes. However the majority (62%) of the light
industrial uses are taking place in B1 office accommodation, and mainly in connection with film/TV post production editing.
Since 2006 the Council has attached conditions to permissions ensure that 4,821 sqm of space is limited to B1c light
industrial floorspace. There are no B2 general industrial sites in Westminster.
1990 Landuse Survey of light Industrial B1c uses
Professional & scientific services
Printing, publishing, etc
Women's clothing
Jewellery & precious metals
Other electrical goods
Medical/Dental instruments &
appliances
Media type uses
Electric appliances & capital goods
Men's & boys' tailored outerwear
Footwear
Misc. & light manufacturing industries
Hats, caps & millinery
2012 survey update of light Industrial (B1c) uses
Film & Post production editing
Sound recording / Music production &
editing
TV & Broadcasting (editing)
Great Western Studios*
Tailors (outside Savile Row)
Jewellery manufacture
Embroidery workshop
Computer games
Dental instruments & appliances
* Great Western Studio containing a mix of creative industries including clothing, media, (Film & Post
production) Ceramics and Artwork
11
WESTMINSTER’S SHOPPING HIERARCHY
The Town Centre Network
Primary Frontages (International Centres): Oxford St,
Regent St, Bond St, Knightsbridge. The nation’s preeminent shopping streets, internationally renowned, and
a major location for flagship and iconic department
stores such as Selfridges.
Core CAZ: Suitable location for retail throughout
(including retail sub-market areas such as Mayfair, St
James’s, Soho and Covent Garden, each of which has a
distinct character and function).
CAZ Frontages: Mixed use streets with a predominant
retail focus (such as Marylebone High St, Baker St,
Victoria St).
Major Shopping Centre: Queensway/Westbourne Grove.
Borough wide catchment, with an indoor shopping
centre and range of town centre and other uses and
services.
District Centres: Key neighbourhood centres providing
convenience and some comparison retail alongside
other town centre uses and local services. Includes St
John’s Wood High Street, Harrow Road and others.
Local Centres: 39 designated local centres which are
convenience shopping focused centres providing
essential accessible locations for local residents across
Westminster.
Retail in Westminster: From Global to Local
Westminster’s Town Centre Hierarchy genuinely caters for all retail needs and markets. The International Shopping Centres in the West End
cater for comparison shopping needs(durable goods where customers compare prices and type of product with other similar products in
other shops), alongside Mayfair and St James’s, which covers a range of international niche markets including high end fashion, jewellery
and art. Soho and Covent Garden compliment this, offering a different range of retailers. Outside of the central area there are a range of high
street style centres serving residential catchment areas, with smaller local centres serving immediate convenience shopping needs (basic
goods used on a daily/weekly basis such as food, newsagents products etc) for residents.
The retail sector is a key employer in Westminster, with an estimated 6,800 shops employing around 60,000 people (Experian 2012)
12
TOWN CENTRE PROFILES AND PERFORMANCE
West End
Sales in the West End up year on year by 9.4% in May 2013.
Spend: The West End is the single biggest destination for
comparison retail spend in the UK, with £2.6 billion in 2011
(Experian, 2013). The second largest area is Westfield London
at £460 million.
Westminster in total accounts for £3.4 billion of comparison
retail spend (61% from residents, 6% from commuters, 33%
from tourists), the highest of any borough, with Kensington &
Chelsea second with £1.2 bn (Experian, 2013).
Footfall: 21.5million visitors to the West End in May 2013, 13.4
million on Oxford Street alone (NWEC, 2013).
Monitoring Performance: Town Centre Health Checks
Westminster undertakes town centre health checks every five years in
accordance with national and London Plan policy to monitor their
performance and identify issues and the need for interventions.
Westminster’s High Streets and District Centres: Health Checks were
undertaken in Spring/Summer 2013 for ten high street type neighbourhood
centres in Westminster.
The most recent analysis suggests that the unit vacancy rate has decreased
in all of the seven former district centres over the past few years, and that
the amount of A1 frontage has increased in five of the seven centres,
illustrating the relative health of retail in Westminster.
Health checks were previously undertaken in 2007 for the 7 high streets
formerly known as District Centres, when three centres were described as
being ‘healthy’, three as ‘neutral’, and one as being ‘in decline’. This will be
compared to the studies currently being undertaken.
Local Centre Health Checks were last carried out in 2008 and are also
currently being updated. In 2008, 16 centres were classified as being
‘healthy’, a further 16 were ‘neutral’, and seven were ‘in decline’. This
represented a slight overall improvement from the previous surveys in 2002.
Unit Vacancy: Has fallen in the CAZ, and currently stands at
2.1% of units on Bond St, 5% on Oxford St East (due to
redevelopments and Crossrail), 0.8% on Oxford St West, 2% on
Regent St, 0% on Victoria St. UK average is 16.2% (Colliers,
2013).
“Central London will continue
to be buoyed by its high-end
and luxury retail offer.”
Rents: Continue to rise in the West End, with a national record
rent of £1500 psf recently signed/secured on Old Bond Street
(see next page).
“Market outlook...Central
London remains a separate
entity when compared to the
rest of the UK”
Central London Retail Health Check,
Colliers International (2013)
Central London Retail Health Check,
Colliers International (2013)
13
LONDON AND WESTMINSTER RETAIL MARKET (CBRE, 2013)
Global Retail Rents (CBRE Q1 2013)
1. Hong Kong ($4,328 per sqft/annum)
2. New York ($2,970)
3. London ($1,053)
International Brand Presence (CBRE, 2013)
1. London (55.5% of top international
retailers with presence in city)
2. Dubai (53.8% of retailers)
3. Paris (44.2% of retailers)
•London West End prime rents defied
downturn, experiencing 43% growth
2008-2012.
•International factors are particularly
important to the West End retail
market (exchange rates, GDP).
• Competition for space from
international brands and limited scope
for new supply, which directly affects
rents (lower supply = higher rent).
Spill over from international streets
Limited availability for retail space and
demand for brand presence in the West
End is leading to spill over from the
primary international shopping streets
into neighbouring streets (in Mayfair
adjacent to Bond Street in particular),
with a resultant change in rent levels
and the character of these streets.
Examples include Bruton Street
(Temperley), Dover Street (Jimmy Choo,
Alexander McQueen), Mount Street
(Christian Louboutin), Grosvenor Street
(Agent Provocateur).
Mount Street Rent: £185 (2007) has
grown to £375 (2013) – zone A per sqft.
14
WHAT ARE WE TRYING TO ACHIEVE FOR ECONOMIC DEVELOPMENT IN
WESTMINSTER?
Sustainability
Diversity
Growth
Resilience
•Sustainable development – A strategic objective in Westminster’s City Plan: Strategic Policies and the
overarching principle and the “golden thread” in the NPPF.
•Spatial Diversity – economic development in the context of conservation areas, opportunity areas,
inside and outside CAZ, NWEDA and the retail hierarchy.
•Mix of economic uses including type and size, with a range of new and mature companies.
• Most economic growth is expected in the Core CAZ, opportunity areas, NWEDA and the
Shopping Centres.
•Evidence shows that the mixed use policy approach (commercial and residential) and the historic
character of Westminster helped contribute to resilience in the economic downturn.
•For enterprise and regeneration, and for established business to thrive and be successful.
•For existing and new businesses to take advantage of the wealth of talent, existing business linkages,
historic environment, high quality public realm and connectivity of Westminster and for workers to
use and enjoy its culture, shopping, open spaces, food and drink and entertainment facilities.
Opportunity
•For residents to have better access to jobs and training opportunities to help them compete
successfully in the Westminster and London jobs market.
“Despite the down turn, the
West End remains a vital part
of London’s strength as a
global city and is still
attracting a mix of occupiers
including financial
companies..the mixed-use
environment and the
Conservation Areas are vital
components of what makes
the businesses in the area
survive.”
Westminster Office Study – Impact of the
Recession (2009) Drivers Jonas.
15
A FUNCTIONAL APPROACH TO NORTH WESTMINSTER ECONOMIC DEVELOPMENT AREA
• NWEDA is predominantly a residential area (outside of the
mainly commercial Paddington area).
Great Western Studios
•Paddington is now home to many company HQs, and is one
of Westminster’s key locations for large, modern offices
providing large floor plates.
Great Western Studios is a place for creative enterprise to
flourish. An inspirational work environment, where
individuals and small businesses can meet, network and
grow. The 106 studio spaces are home to a huge variety
of creative enterprises and the facility is 100% let.
• Outside of Paddington the key commercial areas are the
district (and local) shopping centres, which have key retail
and local service functions.
• The Policy approach is to stimulate and support economic
development, creating opportunity and employment for the
local communities.
The council was instrumental in enabling Great Western
Studios to develop a 60,000 sq ft new facility, providing a
commercial loan and conditional grant funding.
• A variety of commercial space plays an integral role in a
sustainable local economy. Workspaces that are both
suitable and affordable for small businesses can be key in
economic renewal areas like NWEDA, where land values are
lower.
Office rents in 2013, price per sq ft.
Prime West End
£70-£109
Paddington
£40-59
NWEDA
£20-£39
Church Street and Paddington Green: the view towards Paddington Basin
16
Source: The Central London Office Market Q1 (2013) Jones Lang La Salle
EAST MARYLEBONE AND PORTLAND PLACE SPECIAL POLICY AREAS (SPA’S)
East Marylebone – Wholesale Showrooms
What are these uses?
A wholesale showroom is where
goods are sold in bulk to retailers
or their agents and are not
generally open to the public. The
East Marylebone SPA has long
been associated with ‘the rag
trade’ and many of the wholesale
showrooms in the area are still
associated with clothing.
Key features:
•Many of the businesses are
small, employing on average
less than 10 people.
•Some in the area consider the
wholesale showroom market is
dying resulting in hard to let
premises. However, there is still
a sufficiently significant amount
of showroom presence to justify
this SPA.
•The boundary of the SPA was
significantly reduced in the City
Plan Strategic Policies
document to reflect the
reduction in wholesale
showrooms and to capture the
most significant cluster of uses
in this area.
•A study published in 2009
showed that the market for
wholesale showroom uses in
the area is quite fluid and
although some wholesale
showroom users had moved
out of the area others had
moved in. The survey found
that the majority of showroom
occupiers stated that the
central London location was the
most important factor in
keeping them in the area.
Portland Place- Institutional Uses
What are these
uses?
Headquarters of
professional,
charitable and
leaned institutions,
associations and
trade federations,
many of which have
Royal status and/or
charitable status.
Examples of these
include the Royal
Institute of British
Architects, the Royal
College of Midwives
and the Institute of
Physics.
Key features:
•As a sui generis
use, planning
permission is
required for a
change from
institutional to any
other use.
•Many institutional uses are located in listed
buildings, which are well suited to the
prestige of the use and help make a positive
contribution to this part of the Harley Street
Conservation Area
•The market for institutional uses is not
particularly fluid and the premises do not
become vacant that often.
17
A SEQUENTIAL APPROACH TO RETAIL
Existing Retail is protected throughout Westminster (exceptions are on viability grounds), including street markets. In the
primary shopping frontages retail is also protected at basement and first floor level.
Core CAZ
New A1 Acceptable and
encouraged throughout.
Large Scale retail directed
to primary frontages, CAZ
frontages, opportunity
areas.
Wider CAZ (Marylebone/Fitzrovia,
Pimlico and Knightsbridge)
Outside CAZ & NWEDA
New A1 directed to named existing
commercial areas and designated
shopping centres
Primarily residential areas
New commercial uses not generally
acceptable outside of these areas
due to the effect on amenity.
New retail and appropriate town centre
uses directed to the major, district and
local shopping centres. Isolated shops are
protected.
West End Special Retail
Policy Area adds extra
detail and added priorities
to support the unique retail
status of the West End.
NPPF Para 23.3: LPAs should 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.
18
THE CAZ POLICY APPROACH TO RETAIL
Core CAZ
WESRPA
Existing A1 uses are protected, and new
retail uses are acceptable throughout CAZ,
supporting one of its primary functions as a
retail destination of national and global
importance.
Focusing on the primary shopping
frontages, Soho and Covent Garden, the
West End Special Retail Policy Area
(WESRPA) has a wider function than
securing new and improved retail floor
space.
31,000 sqm - net additional A1 retail floor
space in the CAZ and CAZ Frontages
between 2004/5 and 2010/11.
Clusters of retail uses are protected and
promoted through the use of Special Policy
Areas (SPAs). These include the Savile
Row bespoke tailoring SPA, the St James’s
SPA (art galleries and niche retail), and the
emerging Mayfair SPA (art galleries).
The policy takes a more holistic approach
to the area as the nations’ pre-eminent
shopping destination, through focussing on
the importance of transport and public
realm improvements, rest areas for
pedestrians, way finding, linkages and
complementary services.
However the Council is limited by the
narrowness of the use classes order, which
does not differentiate between types of
retail or retailer, who are free to change
within the A1 use class, which also includes
other uses such as hairdressers, some
food outlets and other uses. It can therefore
be challenging to protect a specific form of
retail, making collaborative working with
land owners all the more important.
Business Improvement Districts (BIDs) are
a major feature of the Core CAZ, including
the New West End Company, Heart of
London and Piccadilly BIDs, each of which
have their own initiatives and priorities to
support retailers and businesses in
partnership with the City Council, while
having an active role in monitoring
performance.
CAZ Frontages and ‘Wider CAZ’
areas
CAZ frontages are mixed use areas with a
predominant retail focus. A majority of CAZ
frontages are linear commercial centres on
main arterial roads leading away from the
Core CAZ and West End.
CAZ frontages therefore act as the main
locations to direct new retail and
commercial uses in the parts of the CAZ
that they are located in. For example, in the
Marylebone and Fitzrovia part of the CAZ,
new retail uses are directed to the existing
CAZ frontages of Marylebone High Street,
Baker Street and Edgware Road, to
enhance the vitality and viability of these
frontages, and to protect residential
amenity and the character and function of
areas away from these frontages.
Local Centres also have a key role to play
in the wider CAZ areas, acting as further,
smaller locations to direct new retail and
commercial uses to in these areas. Local
centres have a key role to play for
convenience shopping and providing local
services.
Oxford Circus diagonal crossing (Image courtesy of NWEC)
This approach is a sequential approach to
retail and other commercial development,
directing such uses to existing designated
shopping centres to maintain and enhance
their vitality and viability, in line with national
policy.
19
THE PROTECTION OF EXISTING, VIABLE TOWN CENTRE UNITS
A1 Retail is protected across Westminster
(with viability considerations)
• In Primary Frontages (and wider WESRPA
where appropriate): At least at basement,
ground floor and 1st floor, to maintain active
retail frontages and provide appropriate retail
accommodation in response to market
demands in this international shopping
destination. Particularly important when
buildings are redeveloped.
• In District/Local Centres: To ensure that
locally
accessible
convenience
and
comparison (to a lesser extent) retail is
retained, providing a vital local service in
Westminster’s residential areas, within a
short distance of people’s homes.
• Isolated units: Outside of designated
shopping centres, isolated units can provide
an even more vital service to local
neighbourhood,
providing
convenience
shopping and other services within walking
distance of Westminster’s residential areas,
particularly for those who are less mobile.
N.B. Policies relating to Mayfair/St.
James’s are dealt with in a separate
booklet. The protection of petrol stations
is referred to in the transportation
booklet.
Department Stores – which act as key anchor
retailers, contributing significantly to the vitality
and viability of the West End. Many are iconic
landmarks in their own right and long term
features of the area.
Clusters of specialist retailers, such as St
James’s, Savile Row and Cork Street are an
integral part of the diverse economic base
that creates Westminster’s overall economic
success and resilience. Many of the clusters
are historic, are world leaders in their
particular field, and are connected to a wider
range of uses such as the hotel and tourist
industry, restaurants and other parts of the
West End economy, all of which benefit from
each other’s presence and proximity.
Viability Considerations
Long term empty properties are detrimental to the overall vitality of shopping centres,
therefore if a unit is unviable as proven by vacancy for at least 12 months, during which
time appropriate efforts should be made to let the property, then a change of use may
be considered, taking other relevant factors into account.
A general presumption of A1 protection because...
Permitted Development Rights have changed, allowing A1 retail to change to A2, A3 or
B1 uses for a temporary, single continuous period of up to two years without the need
for planning permission (for units/part of units up to 150sqm, not listed buildings).
Therefore, the long term A1 use has to be protected (once any temporary change of
use has expired) to ensure the long term vitality and viability of the West End and Core
20
CAZ as a world leading retail destination.
DEPARTMENT STORES
• An integral and iconic feature of the West End, trading over multiple floors and
occupying entire buildings and plots. The City Council supports their appropriate
expansion and improvement.
• Unique to Westminster, no other such concentration or variety exists in the UK.
• Key employers and contributors to the West End economy. The department stores
listed below employ roughly 8500 people (IDBR, 2011). Selfridges took over £1.5m
within an hour of opening its Boxing Day sale 2012.
• Extended opening hours for consumer convenience and, viability of the shops.
•Restaurants and cafes are an integral part of the department store experience, they
can provide a welcome break for shoppers and may act as a destination in their own
right, such as the Selfridges Food Hall, Fortnum’s Fountain restaurant etc.
• Act as anchor occupiers for the overall vitality and viability of the streets on which they
are located.
• Landmarks and meeting points for shoppers and visitors, often in iconic buildings.
• Provide active, attractive shop fronts and window displays, contributing to the
character and function of shopping streets, such as Selfridges’ art installations and
seasonal displays at Fortnum & Mason’s.
• Above left: Fenwick’s, Bond Street
• Above right: John Lewis, Oxford Street
• Below: Selfridges, Oxford Street
•Left: Fortnum & Mason, Piccadilly
Oxford Street: Selfridges, John Lewis,
House of Fraser, Debenhams, BHS,
Marks & Spencer (2)
Regent Street: Liberty’s
Bond Street: Fenwick’s
Piccadilly: Fortnum & Mason
Victoria Street: House of Fraser
21
LOCAL SHOPPING CENTRES
• Local shopping centres are located outside of
the Core CAZ in Westminster’s predominantly
residential areas, although there are a number
located in the wider CAZ areas of Marylebone
and Fitzrovia and Pimlico, which are the more
residential parts of the CAZ.
• There are 39 local centres in Westminster
typically serving a localised catchment often most
accessible by walking and cycling. They generally
form local parades and small clusters of shops,
mostly for convenience shopping and local
services.
• Local centres are essential shopping locations
in residential areas, particularly for local residents
and the less mobile due to their proximity and
accessibility.
• Lower rents attracts diversity and independent
and specialist retailers (40% of all units in local
centres, compared to only 2% of units being
national/chain retailers). Allows start up and new
businesses to have a presence, and for clusters
and centres with unique identities to develop.
Issues
1. Permitted Development
• Changes to permitted development rights
(see page 20) may affect the City Council’s
ability to protect existing occupied A1 units
from temporary changes of use to a range
of other town centre uses. This will
potentially affect local shopping centres
substantially, which are predominantly
made up of small retail units.
• 39: Local Centres in Westminster.
2. Unit Vacancy
• 84sqm: Average unit size in local
centres in Westminster.
• Higher vacancy rate than the West End, in
parts of the city where local convenience
shopping is arguably more important.
• Issue of peripheral locations in some
cases and varying quality and accessibility
of centres, public realm, tenant and use
mix.
• Potential for diversification to ensure long
term viability, however local amenity is a
key issue that has to be taken into account.
• Policy approach is less restrictive around
changes of use in local centres compared
to other parts of the town centre hierarchy,
to address vacancy issues. Appropriate
temporary uses also encouraged.
3. Supermarkets
Connaught Street
Local Centre Facts and Figures (based
on 2007 shopping centre health checks)
• Issue of balancing the need for local
supermarkets against competition with
independent retailers, and issues around
servicing stores while protecting residential
amenity.
• 35: Average number of units in a local
centre in Westminster.
• 9 units: Smallest local shopping centre
(Kilburn Park Road).
• 119 units: Largest local shoping centre
(Seymour/ Crawford/ York Street).
• 2965sqm: Average total floor space in a
local centre in Westminster.
• 9% Average vacant unit rate for local
centres (equates to 3 units).
• Significant mix of uses across the local
centres, with a significant proportion of
food and beverage and financial and
professional services uses:
Use Class
A1 Convenience
A1 Comparison
A2
A3/A4/A5
SG
Vacant
Health
Hotel
Arts/Leisure
% of units
14%
42%
10%
20%
3%
9%
<1%
<1%
<1%
22
* See page 12 for definitions of comparison/ convenience retail
SMALL AND INDEPENDENT RETAILING
• Over 75% of A1 units in Westminster are
under 150sqm (at ground floor level).
•A key feature of Local and high street
type
Shopping
Centres
is
their
importance for convenience shopping
and for specialist and innovative types of
retailing, fostering diversity.
2.6%
1.1%
A1 Unit Sizes (Experian 2011/12)
Under 100 sqm
20.2%
16.3%
100-150 sqm
59.7%
151-500 sqm
501 - 1000 sqm
1001+ sqm
• Small, isolated units in residential are
important for convenience shopping.
• Independent retailing is also a key
feature of parts of the Core CAZ, such as
Soho, where independent trading on
streets such as Berwick Street is a long
standing feature.
• Gives areas distinct retail character and
function, allowing specialist clusters to
develop and prosper. Examples include
record shops in Soho, antiques dealers
on Church Street, art galleries in St
James’s.
• Important in many parts of Westminster
to support the architectural and historical
character of retail parades, providing
form and rhythm to shopping frontages.
• Key Issue: Changes to the GPDO allow
units/parts of units (up to 150 sqm, and
when other criteria are met) to
temporarily change use from A1 to other
town centre uses without the need for
planning permission.
23
NON-A1 RETAIL USES
Comprises A2 Financial or professional services, A3 Restaurants and cafés, A4 Drinking establishments
(not nightclubs), A5 Hot food takeaways in accordance with the Town and Country Planning (Use
Classes) Order 1987 and its subsequent amendments.
Key for the viability and vitality of shopping centres
• These uses complement A1 retail uses, providing diversity and creating
a multi-functional centre. This makes centres more resilient to change in
the long term.
• Provide important local services for residents and visitors to shopping
centres - such as banks and other financial and professional services.
• A3/A4 uses can provide a night time economy, which makes centres
more viable and active in the evenings, providing key employment
opportunities (see booklet on “Food, Drink, Entertainment, Tourism, Art
and Culture” for further information, including details of over-concentration
in stress areas)
Facts and Figures
597 A2 uses at ground floor level in Westminster
(Experian 2012), see breakdown below
.
A2 Uses (Experian 2012)
12.7%
31.0%
Estate Agents
12.9%
Banks &BS
Protection
• Non A1 town centre uses are protected from changing to uses that do
not serve members of the visiting public.
Issues
• The Use Classes Order classification of betting shops, and the potential
effect of GPDO changes. Westminster has over 100 betting shops, which
fall in the same category as banks and other financial and professional
services, making them hard to control. GPDO changes allow a temporary
change of use from A1 retail to A2, again making it hard for the Council to
control betting shops.
• Over concentration of takeaways and betting shops in certain streets
and parts of Westminster.
• Over concentration of certain non-A1 retail uses can effect residential
amenity, reduce the range of convenience shopping and services, and
can be associated with wider social and public health issues relevant to
planning, therefore the Council seeks to balance the uses against A1
retail.
Betting
16.9%
Bureau de change
26.5%
Other
1597 A3 uses at ground floor level in Westminster
(Experian 2012).
473 A4 uses at ground floor level in Westminster
(Experian 2012).
244 A5 uses at ground floor level in Westminster
(Experian 2012).
24
TEMPORARY USES
In Town Centres
GDPO Changes April 2013
Pop up shops
• Imperative to keep frontages active and to avoid
vacant and underused units for the vitality and
viability of the centre.
• Allows units or parts of units (under 150sqm,
not in listed buildings) to change to a range of
other town centre uses, for up to 2 years, after
which units return to their permitted, lawful use.
No proviso for them to be vacant for this to
happen.
• Increasingly important and popular
method for brands to test the market
and gain knowledge prior to
committing to a permanent store.
• Recommendations for temporary uses in vacant
units come from the NPPF, Portas Review and
subsequent work at national level, London Plan
Town Centre Guidance, GPDO changes.
• Therefore in shopping centres where unit
vacancy rates are high, particularly centres in the
NWEDA, proposals are for greater flexibility to
allow temporary uses.
• Proposed approach is for the temporary uses to
be in fitting with the character and function of the
street in which they are located.
• Encourage temporary community and arts
facilities which have benefits for local
communities.
• As shown, 75% of A1 units in Westminster are
under 150sqm (at ground floor level), illustrating
the potential for temporary uses to become more
common (see map on ‘small and independent
retailing’ slide).
• Allows units to temporarily change from A1
(shops),
A2
(financial/professional),
A3
(restaurant/cafe), A4 (drinking), A5 (take away),
B1 (business), D1 (non residential institutions),
D2 (Assembly & leisure) – to A1, A2, A3 or B1
under permitted development rights (with above
limitations on size and listed nature of building).
• Becoming increasingly important for
digital and online brands (Microsoft,
Xbox, Google etc), illustrating the
importance of having a physical store
presence and providing a testing
ground for products.
• Symptomatic of how retail is
changing and becoming more driven
by customer experiences, transience,
organic evolution, and an ongoing
start-up mentality.
Joe and the Juice, pop up coffee shop, Carnaby Street
25
RECOMENDATIONS
1. RETAIL IN THE CENTRAL ACTIVITIES ZONE
NEW POLICY CM1.4: RETAIL IN THE CENTRAL ACTIVITIES ZONE
Retail will be encouraged in the CAZ in accordance with policies S21 and S2-S12 as
appropriate. Department stores and their entire floor space will be protected in the CAZ.
In the International Shopping Centres:

Department stores and their entire floor space will be protected, and their appropriate
expansion will be supported;

In development schemes, A1 uses should be provided at basement, ground and first
floor levels;

Planning permission will not be granted for a change of use from A1 use at basement,
ground floor, first floor or second floor level within the Primary Shopping Frontages;

Change of use from non-A1 town centre uses on third floor level and above will be
acceptable.
In Core CAZ (including wider WESRPA outside of international centres), CAZ Frontages, and the
Named Streets:

A1 uses are encouraged throughout the area;

existing A1 uses will be protected at ground, basement and first floor level in the Core
CAZ and CAZ Frontages;

A2 or other non-A1 town centre uses will only allowed where the council considers that
the proposal will not:
1.
reduce the range of local convenience shops, or have a detrimental effect on local
shopping facilities;
2.
result in more than three non-A1 units located consecutively in a frontage; and
3.
undermine the balance of A1 to non-A1 uses within the frontage or centre as a
whole, including more than 30% of the core frontage in Marylebone High Street or
25% of the core frontage in Warwick Way/Tachbrook Street.
The International shopping centres of
Oxford Street, Regent Street, Bond
Street and Knightsbridge (part of which
is in Westminster) sit at the top of
London’s retail hierarchy and offer
unparalleled specialist and comparison
retail.
The predominance of multi-floored
shops contribute to the shopping
strength and vitality, including many
iconic department stores acting as
anchors for other retail outlets and
contributing to the visitor offer.
This recognises the fundamental
role retail has in CAZ and supports
this use in the commercial areas.
This is crucial to creating the
unique mix in this part of Central
London and providing local retail
provision for residents and
workers. Non-A1 retail uses also
have to be appropriately managed
to ensure they can continue to
play their role in the offer.
A1/Non A1 frontage thresholds
have
been
maintained
for
Westminster’s local high streets
that are located in the central
activities zone, to monitor their
ongoing composition, and to aid
decision making for change of use
applications, bearing in mind their
predominant function as shopping 26
destinations.
2. PORTLAND PLACE
SPECIAL POLICY AREA
These learned professional and cultural institutes are
renowned throughout the UK and beyond. They add
cachet to the area, bring educational benefits ,
contribute to economic diversity and make a
valuable contribution to economic diversity. They
make a valuable contribution to Westminster’s role in
London as a world class sustainable city.
NEW POLICY CM2.2: PORTLAND PLACE SPECIAL POLICY AREA
New institutional uses will be encouraged and existing Institutional uses will be protected except
where the council is satisfied that the premises have been vacant and actively marketed for
institutional use for at least 12 months at a reasonable market price/rent and attempts to find an
institutional occupier have been unsuccessful.
Where the loss of an institutional use is
accepted. In Portland Place itself
(Named Street in the Marylebone and
Fitzrovia CAZ) residential use and a
range of commercial uses, including B1
office use would be appropriate.
However, it is considered that town
centre type uses which primarily attract
visiting members of the public are not in
keeping with the character of this street
and are therefore unlikely to be
acceptable. Elsewhere in The SPA, new
commercial uses will not generally be
appropriate unless they provide a
service to support the local residential
community.
Applications for extensions to existing lawful Institutional uses to improve the functioning of the
establishment will generally be allowed in the Special Policy Area and elsewhere in the Central
Activities Zone.
It is recognised that a market for institutional uses is not particularly fluid and
premises do not become vacant that often. A period of 12 months is
considered to represent a fair and reasonable period to secure an alternative
institutional use fro the premises.
To ensure the long term retention of
Institutional uses in Westminster,
applications for their extension will
generally be acceptable in all parts of
the Central Activities Zone, where the
extension of commercial premises is not
normally appropriate. Institutional uses
bring educational benefits and
contribute to Westminster’s economic
diversity and London’s role as a world
class sustainable city.
Map showing all institutional uses in
Westminster
27
3. EAST MARYLEBONE
SPECIAL POLICY AREA
The East Marylebone SPA contains the largest concentration of wholesale showroom
uses in Westminster, which contribute to the character and function of this SPA and
provide a focused destination for their customers. These uses add to economic
diversity and help contribute to Westminster’s role in London as a sustainable world
class city. Wholesale showroom uses add to the variety and range of business sizes,
as many of the companies are small, employing less than ten members of staff.
NEW POLICY CM2.3: EAST MARYLEBONE SPECIAL POLICY AREA
New wholesale showroom uses will be encouraged.
Existing wholesale showroom uses will be protected at basement and ground floor, except where the
council is satisfied that the premises have been vacant and actively marketed for wholesale showroom
purposes for at least 12 months at a reasonable market price/rent and attempts to find an occupier
have been unsuccessful. Where the loss of the wholesale showroom use is accepted retail (Class A1)
use would be an appropriate replacement at basement and ground floor.
In redevelopment schemes, existing basement and ground floor wholesale showroom floorspace will
be replaced with the same amount of wholesale floorspace at basement and ground floor level.
The 12 month period
represents a fair and
reasonable period for the
vacant premises to be
actively marketed,
providing protection of the
wholesale uses at
basement and ground
floor to ensure a
continuation of a stock for
new wholesale showroom
occupiers.
This is because most of the showroom
uses occupy shop type premises.
28
4. NWEDA
This is an updated version of adopted Westminster City Plan:
Strategic Policies, Policy S12.
NEW POLICY S12: NORTH WESTMINSTER ECONOMIC DEVELOPMENT AREA
The NWEDA is the council’s priority area for renewal and regeneration to promote economic activity and local employment, and to tackle
deprivation. The council will work closely with its local partners, including Paddington Development Trust, Paddington Waterside
Partnership, Paddington Business Improvement District, local communities and the private sector, to deliver these objectives.
The council’s development priorities for the Area are:
•
•
•
•
•
•
Increasing and broadening economic activity and employment opportunities, particularly by delivering new floorspace for
improved local services. In particular, in major developments proposing commercial floorspace, high priority will be
given to securing the provision of space for small enterprises.
Providing training and employment opportunities for local people both here and within the West End;
Protecting existing employment floorspace (subject to detailed policies for its town centres below)
Improving the public realm and local environment, particularly within Shopping Centres and housing estates;
Redevelopment of, and infill developments in, some existing housing estates, including provision of a range of housing
tenures (including intermediate and market housing) wherever possible, consistent with protection of areas of open space;
The continued transformation of a civic space at the Prince of Wales junction/Maida Hill for community and small business
activities.
In considering development proposals in the area the council will consider the extent to which they contribute towards achievement of
the objectives and priorities for the area set out in this policy. Planning conditions and/or legal agreements may be used to secure them,
as appropriate.
The council will seek to underpin delivery of its objectives and development priorities through the following local infrastructure priorities:
• Improving physical connections for pedestrians and cyclists within NWEDA and to surrounding areas, including the South Kilburn
Growth Area and the Central Activities Zone,and across the Westway (A40), Harrow Road (A404), rail network and canal;
• Delivering improved and appropriate local services including: local services facilities in Church Street and Queen’s Park; and
support opportunities to provide facilities for local community groups including faith groups;
• Securing decentralised energy centres with sufficient potential capacity to serve future developments and establish a wider heat
and power network.
29
A variety of commercial space plays an integral role in
a sustainable local economy. Providing floorspace for
small businesses can help to create a cluster of
enterprises which grouped together in networks
provide modes of communication, knowledge
exchange, business support and learning and the
potential for reducing overheads through shared
resources. Availability of suitable workspaces is a key
concern when deciding where to locate a small
business and it is important to have sufficient capacity.
Land values and therefore rents are historically lower in
NWEDA than in the CAZ therefore ensuring a more
affordable product.
Priority in NWEDA is to generate employment
opportunities and economic growth, to address issues
around worklessness and deprivation in the most
residential part of Westminster.
In line with Policy S21, existing retail is protected, and
the core frontage of the centre is the key focus for A1
uses. Non-A1 town centre uses are managed to avoid
an over concentration. A frontage threshold is
maintained from the UDP to inform decision making
and monitor the make up of the centre on an annual
basis. A more flexible approach is taken in the
secondary frontages to ensure the occupancy of units
and the vitality and viability of units in these more
peripheral parts of the centre. Specialist retail and new
small restaurants can diversify the offer of the centre
and therefore contribute to vitality and viability. New
restaurants can also provide an evening economy
(balanced against amenity), which is lacking in the
centre. The Church Street market is integral to the
shopping centre, attracting a large number of visitors
throughout the week, and is a significant asset to be
maintained and enhanced.
NEW POLICY S12 NORTH WESTMINSTER ECONOMIC DEVELOPMENT AREA – CONTINUED
Employment uses (including in particular B1 uses (including studios and workshops) are
encouraged throughout NWEDA. Existing employment uses will be protected, other than
where it can be demonstrated that there is no reasonable long-term prospect of a site
being used for those purposes.
A small loss of residential development is acceptable where development will provide
local employment opportunities and the council considers that employment uses will not
impact adversely on the vitality, viability, character or function of the retail offer in the
designated shopping centres.
In the District Shopping Centres of Harrow Road and Church Street/Edgware Road and in
the primarily residential areas to the north-west of the area the council may be more
flexible about uses, provided development delivers benefits to the local community,
provides employment opportunities and contributes to the quality of the built
environment.
In the Church Street/Edgware Road District Shopping Centre:
• In the Core Frontage, A1 uses will be protected. A2 or other non-A1 town centre
uses will only allowed where the proposal will not lead to, or add to, a
concentration of non-A1 units in any individual frontage or parade, or result in
two or more non-A1 units located consecutively in the Core Frontage, or result in
more than 30% of the Core Frontage in non-A1 use.
• In the Secondary Frontage, the council will encourage greater flexibility of town
centre uses which complement the existing range of shops, provided the active
frontage is maintained at ground floor level.
• The council will support applications for new comparison and specialist shop
uses and new small restaurant uses where these do not undermine the vitality
and viability of the shopping centre or reduce the range of convenience shops.
• Church Street Market will be protected.
30
The Council is keen to hear your views about the over concentration of
certain uses in centres, such as betting shops and fast food takeaways.
NEW POLICY S12 NORTH WESTMINSTER ECONOMIC DEVELOPMENT AREA –
CONTINUED
In the Harrow Road District Shopping Centre:

In the Core Frontage, A1 uses will be protected. A2 or other non-A1
town centre uses will only be allowed where the proposal will not
lead to, or add to, a concentration of non-A1 units in any individual
frontage or parade, or result in two or more non-A1 units located
consecutively in the Core Frontage, or result in more than 25% of Core
Frontage in non-A1 use

In the Secondary Frontage, the council will encourage greater
flexibility of town centre uses which complement the existing range of
shops, provided the active frontage is maintained at ground floor
level.

The council will support applications for appropriate new small
restaurant uses where these do not undermine the vitality and
viability of the shopping centre.

The street market, and other appropriate initiatives will be protected
and promoted.
In the Praed Street District Shopping Centre:

A1 uses will be protected. A2 or other non-A1 town centre uses will
only be allowed where the proposal will not lead to, or add to, a
concentration of non-A1 units in any individual frontage or parade and
not result in more than 45% of the frontage being in non-A1 use, or
result in three or more non-A1 units located consecutively in a
frontage.

The council will support new independent convenience stores, and
small or medium sized supermarkets, which improve and complement
the existing range of shops.
In line with S21, existing A1 is protected to emphasise the primary
function of the centre as a key local retail destination for residents
around the Harrow Road. Non-A1 uses are managed to avoid an
over concentration in the core retail area of the centre. A frontage
% threshold is carried over from the UDP policy to inform decision
making, to be monitored annually.
Greater flexibility over uses in the secondary frontage, to ensure
the vitality and viability of this more marginal part of the centre,
and to provide potential space for start ups or appropriate
temporary uses if there is demand.
Support for small restaurants in appropriate circumstances, to
provide an element of night time economy, to support the overall
vitality and viability of the centre, while considering effects on
amenity.
The street market is a current area for improvement on Harrow
Road, in addition to other initiatives such as the kitchen incubator.
In line with S21, existing A1 retail is protected to maintain and
enhance the primary function of the street as a shopping
destination for local residents and visitors. Non-A1 retail uses are
managed through a frontage % threshold which can inform
decision making and enables the Council to monitor the make up
of the centre.
Certain A1 uses are explicitly supported to fill gaps in current
offer, and therefore to make the centre more diverse and viable
in the long term.
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5. OUTSIDE THE CAZ AND NWEDA
POLICY S13 OUTSIDE THE CAZ AND NWEDA
Areas outside both the Central Activities Zone and North Westminster Economic
Development Area will be primarily for residential use with supporting social and
community provision.
Adopted Westminster’s City Plan Policy S13
Retail and other appropriate town centre uses will be directed towards the Major,
District and Local Shopping Centres.
The Queensway/Westbourne Grove Major Shopping Centre will be maintained and
enhanced by securing retail growth and improved retail space, and ensuring that A1
retail provision is the priority within Core Shopping Frontages.
The main type of retail operating on St John’s Wood High
Street tends to be boutique fashion and independent
retailers, therefore new retail should preserve and enhance
this character and function.
Within the St John’s Wood High Street District Shopping Centre new community and
leisure floorspace may be allowed in the Secondary Shopping Frontages where this
complements the retail function within the rest of the Shopping Centre. New retail
development must be compatible with, and support, the Shopping Centre’s range of high
quality specialist and independent shops.
In line with S21, existing retail is protected, and non-A1 town
centre uses are balanced to preserve the primarily retail
function of these centres. St John’s Wood High Street in
particular has a very low unit vacancy rate and a high
proportion of A1 units in the centre. The use of frontage
percentage thresholds can inform decision making and
when updated annually can help to monitor the make up of
the centre.
In the Core Frontages of these two Shopping Centres:
•
A1 uses will be protected, and
•
A2 or other non‐A1 town centre uses will only be allowed where the proposal will
not:
1.
lead to, or add to, a concentration of non‐A1 units in any individual
frontage or parade;
2.
result in more than two non‐A1 units located consecutively in the Core
Frontage; or
3.
result in more than 30% for Queensway/Westbourne Grove, or 25% for St
John’s Wood, of the Core Frontage in non‐A1 use.
There are no percentage thresholds for the secondary
frontages, again to encourage greater flexibility in the more
marginal part of centres (edge of centre).
The major centre has an over concentration of entertainment
uses, therefore proposals for the further introduction of such
uses has to be carefully managed and considered.
This has to be considered alongside the entertainment
policies, which manage the introduction of new uses.
Within the Queensway/Westbourne Grove Stress Area, new entertainment uses will
only be allowed where the council considers that they are low‐impact, would not result
in an increased concentration of late‐night uses and do not compromise the retail
character and functioning of the shopping centre either individually or cumulatively.
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5. OUTSIDE THE CAZ AND NWEDA
(continued)
Local shopping centres vary in size from large
centres providing a range of shops to small
parades providing a limited number of
convenience uses. The Council wants to retain
shops in Local Centres to maintain a range of
convenience shops for local people and protect
the character and function of these centres. These
shops may provide access to fresh produce and
can act as a focal point for community activity. The
Core Frontages are the most important part of the
Local Centre.
The Council acknowledges the role of service uses in local
shopping streets. The policy allows for greater flexibility of
uses on the non-core frontages. Services such as banks,
advice centres, doctors’ surgeries and cafes are often
visited in conjunction with a shopping trip. The balance of
retail and non-retail uses should maintain the
attractiveness of the centres to both shoppers and retailers
and should not have a harmful effect on the vitality or
viability of the centre or have a detrimental impact on its
character and function.
NEW POLICY CM13.1: LOCAL SHOPPING CENTRES
In the Core Frontages at ground floor level, planning permission for change of
use from A1 use will only be granted in the most exceptional circumstances.
Outside the Core Frontages, or where a Core Frontage is not defined, the loss
of an A1 use will only be allowed where the council considers that the
proposal will not:
1.
reduce the range of local convenience shops, or have a detrimental
effect on local shopping facilities;
2.
result in more than three non-A1 units located consecutively in a
frontage; and
3.
undermine the balance of A1 to non-A1 uses within the frontage or
centre as a whole or result in no more than 45% of units in non-A1 use.
At basement and first floor level, A2, A3 or other non-A1 uses will be
permitted if the proposal will not:
1.
harm the vitality or viability, or character or function of the parade,
frontage or centre;
2.
have a detrimental effect on the environment or residential amenity;
3.
unacceptably intensify an existing use or existing concentration of uses;
and
4.
jeopardise the long-term A1 use of the ground floor.
Residential uses are encouraged above first floor level.
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6. REQUIREMENTS OF THE TRAINING AND EMPLOYMENT POLICY
POLICY S19 INCLUSIVE LOCAL ECONOMY AND EMPLOYMENT
Where appropriate, new development will contribute towards
initiatives that provide employment, training and skills development
for local residents and ensure that local people and communities
benefit from opportunities which are generated from development.
The council will seek appropriate employment, apprenticeship and
training opportunities on major developments as defined in the London
Plan in line with parameters set out in the council’s code of construction
practice and the Supplementary Planning Document (SPD) on Planning
Obligations.
In addition, for large major developments (Level 1 scheme in the
council’s code of construction practice) developers will be required to
prepare and submit an Employment and Skills plans in line with
requirements set out in the council’s code of construction practice.
Where developers, construction firms, or potential occupiers have an
established approach or programme for employment and training
initiatives in construction and operational phases, this may be secured
as an alternative requirement to those set out in the council’s Code of
Construction Practice and SPD on Planning Obligations if deemed
appropriate by the council.
Adopted Westminster ‘s City Plan Policy
Setting out the most basic threshold for requiring employment
and training provisions, on major developments. This is in line
with requirements set out in the London Plan.
The emerging Code of Construction practice and Section 106
SPG will set out expectations/requirements by the size of
development, and will include requirements for
apprenticeships, training and employment opportunities in
both the construction and potentially the operational phases.
Additional requirements for strategic/large major
developments, including the preparation of an employment
and skills plan.
Detailed requirements are likely to be negotiated with
developers on a site/scheme specific basis, many of whom
have considerable experience of undertaking such
approaches, and may have existing skills and employment
strategies and templates as standard.
Major Development: Residential development of 10 or more new or additional dwellings, or where
site area is 0.5ha or more. Non housing development/uses of 1000sqm or more of new/additional
floor space, or where site area is 0.5ha or more.
Large major/Level 1 schemes: Residential development of 100 or more new or additional
dwellings, or non housing uses involving the creation or change of use of 10,000 sqm or more of
floor space.
34
7. Offices and other B Use Floorspace
Adopted Westminster’s City Plan Policy
POLICY S20 OFFICES AND OTHER B USE BUSINESS FLOORSPACE
Development includes
redevelopment, extensions
and change of use.
The Council supports
enterprise and recognises that
it may be less costly for
owners to expand in-situ than
relocate.
Range = size including
smaller non prime office
space and type of use
including B1c light
industrial use.
Suitable because of its
location (for example part
of a cluster),
circumstances of current
occupier, planning
history/status, including
previous uses.
This specialist
floorspace adds to
economic diversity in
Westminster and meets
the needs of niche uses
such as recording
studios in Soho.
New office development will be directed to Paddington, Victoria and Tottenham Court
Road Opportunity Areas, the Core Central Activities Zone, the Named Streets, and the
North Westminster Economic Development Area.
Where this is provided by extensions to existing office premises, this will also be
acceptable in the designated shopping centres. Any such extension should not
undermine or compromise any existing retail use in the premises concerned.
Outside the designated shopping centres within Pimlico, Knightsbridge , Marylebone
and Fitzrovia, extension of existing offices to enable a commensurate intensification of
employment uses by existing established occupiers may be acceptable where this is
compatible in scale and character with the local area.
The council will support the provision of a range of business workspaces to meet the
needs of Westminster’s enterprises, including workshops and studios and will use its
planning powers as appropriate to secure this objective.
Where proposals would result in loss of workspace, which the council considers as
particularly suitable for small and medium enterprises an equivalent amount of such
floorspace will be re-provided, which may be secured for the long term where
appropriate. Such provision shall be on site, but where it can be demonstrated this is
not practical, off site provision or a payment in lieu will be required to support
replacement elsewhere. This policy will not be applied where the workspace concerned
is being converted to A1 retail in designated shopping centres.
Within the Core CAZ light industrial floorspace which has been secured by condition or
legal agreement will be retained.
Outside the East Marylebone Special Policy Area a change of use from a wholesale
showroom at ground floor will normally be acceptable except where the showroom
contributes to the character and function of the area.
Other changes are
proposed to this policy,
which will be included in
booklet on “Office to
Residential – Recent
Trends and Policy
Responses”.
Wholesale showrooms
add to the variety of
uses inside the Central
Activities Zone. This
diversity of economic
activity contributes to
Westminster’s role in
London as a sustainable
world class city. To
ensure conformity with
other policies in the plan
it would be reasonable
to have flexibility where
the premises have been
vacant and actively
marketed for wholesale
showroom purposes for
at least 12 months at a
reasonable market
price/rent and attempts
to find an occupier have
been unsuccessful.
35
9. Diplomatic and allied uses
Adopted Westminster’s City Plan Policy
POLICY S27 BUILDINGS AND USES OF INTERNATIONAL AND NATIONAL IMPORTANCE
Uses of international and/or national importance, and the buildings that accommodate them will be
protected throughout Westminster, and new international and nationally important uses encouraged
within the Core Central Activities Zone and Opportunity Areas.
Diplomatic and allied uses will be protected throughout the Central Activities Zone.
Map showing all diplomatic and allied
uses in Westminster 2013
Diplomatic and allied uses
add to the diversity of uses in
the CAZ and help contribute
to Westminster’s international
role in London. Most
diplomatic and allied uses are
located inside the Core CAZ,
in particular around Belgrave
Square. However, there are a
number of these uses
elsewhere in the CAZ, as
shown on the map below.
This approach will protect
diplomatic and allied uses
throughout Westminster It is
however recognised that where
the Embassy includes a
consulate office the intensity of
the use has the potential of
adding to parking pressure and
can cause disruption to nearby
residential occupiers. Such
disruption is not normally
associated with the chancery
use where access is by
invitation only.
36
10. Retail
POLICY S21 RETAIL THROUGHOUT WESTMINSTER
Adopted Westminster’s City Plan
Policy S21
New retail floor space will be encouraged in and directed to the designated Shopping Centres, Core CAZ
(including WESRPA) and the Named Streets. All A1 and non-A1 retail developments will:
•
be of a scale, type and nature compatible with the character and function of the shopping centre
within which it is located;
•
not be detrimental to the character and function, vitality and viability of a shopping frontage or
locality, or residential amenity; and
•
not reduce the range of local convenience shops or shopping facilities.
For retail proposals over 2,500sqm net additional retail floorspace, developments will demonstrate that a
sequential approach has been adopted to site selection.
Where appropriate, the council will require the provision of a range of unit sizes, including a proportion
of smaller units, determined by the character and function of individual shopping streets or designated
centres.
Existing A1 retail will be protected throughout Westminster except where:
1.
The council considers that the unit is not viable, as demonstrated by long term vacancy for at least
12 months, during which time reasonable and appropriate attempts have been made to let the unit
for its lawful use at appropriate price/rent levels, which have been unsuccessful;
2.
it is not otherwise protected by a policy in Part 3 of this plan;
3.
The change is to a use that is appropriate for the character and function of the shopping centre or
part of frontage in question, without intensifying a concentration of a certain non A1 use; and
4.
the change of use would not adversely affect the vitality or viability of a parade, frontage or
designated shopping centre.
Additionally, in the case of a local shopping centre, the loss of A1 ground floor retail would not:
•
reduce the range of local convenience shops, or have a detrimental effect on local shopping
facilities;
•
result in more than three non-A1 units located consecutively in a frontage;
•
or undermine the balance of A1 to non-A1 uses within the frontage or centre as a whole or result in
no more than 45% of units in non-A1 use outside of core frontages.
When assessing the detrimental effect
on vitality and visibility of an area, or
on an area’s character and function,
the following criteria will be
considered:
•
If the number and range of
shops, particularly local
convenience shops, is reduced;
•
If a concentration of specialist
shops is reduced;
•
If the viability of the remaining
shops in a frontage or street is
reduced;
•
If the viability of the remaining
shops in a frontage or street is
reduced;
•
If a dead frontage is created;
•
If unacceptably high levels of
late night activity exist.
Adopted Westminster’s City Plan Policy
S21. Note deletion of some adopted
wording.
Setting clear criteria for change of
use away from A1, based on viability
and the appropriateness of the
proposed replacement use.
The Council places a high priority
on protecting retail use from
other non-retail use. However
shops that were last used as
local convenience shops such as
bakers, butchers, fishmongers,
grocers or newsagents are
considered particularly important.
37
10. Retail
POLICY S21 RETAIL (CONT)
Within local shopping centres, A1 floorspace at basement or first floor level can change to
non-A1 retail use where criteria 3 and 4 above are be met and the long-term A1 use at
ground floor level will not be jeopardised.
Small (and especially convenience) shops, including isolated shops outside of designated
shopping centres, which provide for people’s day to day needs without detrimental impact
on residential amenity, will be encouraged throughout Westminster and protected from nonA1 retail use.
Existing Non A1-retail uses throughout Westminster, and uses occupying shop-type
premises within designated shopping centres, will be protected from changing to uses that
do not serve visiting members of the public and do not have active shop fronts. Changes of
use to non shop-type premises will only be allowed where:
•
the unit has been vacant for at least 12 months, during which time reasonable and
appropriate attempts have been made to let the unit for its lawful use at appropriate
rent levels, and these have been unsuccessful; and
•
the change is to a use that is appropriate for the character and function of the area
and, where relevant, the designated shopping centre within which it is located.
The temporary use of vacant shop units may be permitted to maintain active frontages and
the vitality and viability of shopping centres, after which the unit must return to its permitted
use.
Isolated shops are important for serving
the needs of the local residential
communities, often providing convenient
and accessible local food shops. They are
therefore given protection to ensure every
effort is made to bring them back into use
before accepting the permanent loss of
the use.
Small shops are generally under 150sqm,
although this will be applied with a degree of
flexibility depending on the character of the
shopping frontage.
Adopted Westminster’s City Plan
Policy S21, with a minor alteration
for the purposes of clarification.
Clear viability driven criteria for
allowing change of use away from A1,
while considering the proposed
replacement use and context of the
shopping centre.
Appropriate temporary uses may
include community based uses,
cultural uses or creative small
businesses, depending on the
location.
38
Reading List
Have Your Say
This booklet is part of the informal consultation
for developing the statutory policies in
Westminster’s local plan. It builds on previous
consultation on the City Management Plan.
Further information can be found here.
This booklet only includes the proposed policy.
However, the Westminster’s local plan will
include supporting text. This supporting text
includes:
The Central London Office Market Q1 (2013)
To comment on anything in
this booklet, please email
[email protected] or
write to us at:
City Planning
11th Floor
Westminster City Hall
• Introductory text, setting out the background
64 Victoria Street
to the topic.
London SW1 6QP
• Policy application: guidance as to how the
policy will be applied, including details of
how things will be measured or calculated
etc.
Your comments will form part
of the statutory record of
• Reasoned justification: this is an explanation consultation and will be made
available on our website and
required by law to accompany a policy,
to the public. Your contact
setting out why a policy is applied.
• Glossary definitions: the statutory definitions details will not be made
available, but we will use
used for terms that are included in the
policies.
them to stay in touch with you
about future policy
development. If you do not
If you wish to discuss the issues raised in this
booklet with somebody, please telephone 020 want us to stay in touch,
please let us know in your
7641 2503.
response.
Jones Lang La Salle http://bit.ly/13nI3xb
Westminster’s Creative Industries Report (2007)
BOP and GVA Grimley http://bit.ly/12jCvRm
Westminster Office Study –Impact of the Recession
(2009) Drivers Jonas http://bit.ly/12qy3zh
Institutional Uses Study (2012) Westminster City
Council http://bit.ly/1b2Fnu5
Wholesale Showroom uses in Westminster (2009)
Westminster City Council http://bit.ly/16tVp9g
Better City, Better Lives, Taking Responsibility,
Creating Opportunities (2013) Westminster City
Council http://bit.ly/1b2ATng
The Futures Plan- Church Street, Paddington Green,
Lisson Grove (2011) Westminster City Council and
Urban initiatives http://bit.ly/10OCTdc
Local Economic Assessment (2011), Westminster City
Council http://bit.ly/PLy1T8
Shopping Centre Health Checks (various dates),
Westminster City Council http://bit.ly/1as8hRy
London Office Policy Review (2012), Ramidus
http://bit.ly/12V96wY
Central London Retail Health Checks (2013), Colliers
International http://bit.ly/1bo6UGz
Portas Review of High Streets (2012) http://bit.ly/Xii1I2
General Permitted Development Order (amended
2013), DCLG http://bit.ly/13EP0cx
From Diplomats To Drawing Rooms (2013) Wetherell,
http://bit.ly/180n5az
39