Medway Local Plan (Regulation 18, 2024)

8.1 Introduction

8.1.1 Town centres play an essential role in community life and are intrinsic to perceptions of places. National planning policy states that town centres should be recognised as the heart of their communities, and Local Plans should pursue policies to support their viability and vitality. Town centres bring people together to shop, do business, and enjoy leisure time, and can also be a place to live. Medway has a complex geography with five traditional towns, and many neighbourhood, local and village centres at a smaller scale. Hempstead Valley Shopping Centre is a non-traditional District Centre, which has a good presence of major retailers.

8.1.2 There have been radical changes to how we shop over recent decades, notably the rise in online shopping. These trends were exacerbated during Covid and have led to changes in our traditional high streets, with decline in some town centres and the closure of many retailers. Changes to permitted development rights have extended the ability to change the use of buildings in town centres, such as from shops to restaurants and homes. Changes in national policy also leave weakened means to protect town centres.

8.1.3 Retailers have shown more interest in developing in out of centre locations, such as retail parks, rather than in town centres. Local people in Medway have raised concerns about the health and attractiveness of the main centres and have asked that the Local Plan address decline in areas such as Chatham, Gillingham and Strood. This is central to the plan's vision and strategic objectives for economic success, environmental wellbeing and quality of life. The Council is leading on a range of initiatives to promote and strengthen town centres across Medway, as part of wider regeneration and economic development plans.

8.1.4 Medway's town centres benefit from established infrastructure and transport links that support sustainable development.

8.2 Town centres strategy

8.2.1 The Council seeks to protect and strengthen our town centres, so that they are positioned to adapt to changing trends. They are no longer the primary focus for shopping, but still reflect the well-established role as places to bring people together and provide services. This can be enhanced through the cultural offer of our centres. Medway is rich in culture and heritage, which are key assets for successful centres. Medway's Cultural Strategy and our One Medway Council Plan place a strong emphasis on supporting, encouraging and creating cultural opportunities and businesses. Medway's town centres can play a significant role in this.

8.2.2 It is essential that our centres are inclusive, reflecting our communities – they should be dementia and child friendly places. Delivering housing in town centres locations will help to support demand for services and businesses, and provide for sustainable development, reducing the need to travel to services, and having a choice of sustainable transport options. Opportunities for the provision of offices in these locations mean that workers benefit from access to services, and this has been identified as an attractive benefit for businesses in recruiting and retaining staff.

8.2.3 Medway has a network of six main centres with most in close proximity to one another, across the urban area, with Chatham at its centre/core. There are a further approximately 100 smaller centres across Medway that help to provide for Medway's residents in a sustainable way and support health (mental and physical) and social cohesion for healthier communities. Having a network of centres accessible by sustainable means and providing the facilities for day-to-day needs will help achieve a range of outcomes.

8.2.4 Medway Council is committed to securing healthy and vibrant town and local centres to meet community needs, provide choice, and contribute to our local economy. Town centres are key to sustainable development, as the cluster of services can minimise the need to travel, and they are well located in relation to a range of transport options. Making better use of the waterfront, which is a prevalent feature for three of Medway's main centres, will also add a dynamic and facilitate opportunities for supporting residents' health, providing a platform for events and festivals amongst other ambitions and encourages sustainable travel.

8.2.5 Our strategy aims to strengthen the centres by directing and retaining spend in the defined town and district centres, and managing proposals in inappropriate locations that would otherwise dilute the role and viability of the town centres if left unmanaged. This may include clawing back some trade being lost to locations outside Medway. The strategy will also seek to manage other retail designations and larger retail locations to ensure each functions appropriately and complementary to the defined centres and all work collectively as a network providing for the needs of Medway's residents.

8.2.6 Retail remains important for Medway's centres and will be directed to its centres with comparison (i.e. sale of goods like clothing, shoes, jewellery etc.) going to the larger centres and convenience (i.e. sale of food including supermarkets, green grocers, butchers, bakers etc.) retail being directed to existing and new centres, which achieves a good spatial distribution of provision allowing for easy and convenient access to such facilities. Chatham is the main location for the majority of comparison retail generally and could also benefit from further convenience retail. Where planned growth through the Local Plan results in significant change, there is scope to direct further convenience provision to a newly created centre or centres in identified strategic locations.

8.2.7 Urban regeneration sites offer opportunities to strengthen the role of town centres, including increasing the supply of housing and wider commercial and leisure activities. This approach would drive up footfall in town centres. Potential development in suburban areas would be required to avoid damaging the role of existing town centres. However dependent upon the scale of growth, there may be need to invest in new local centres so that residents can easily access local services. Potential development in rural areas, such as the Hoo Peninsula, where there are limited existing services, would need specific consideration to enhancing retail floorspace to meet the needs of local communities.

8.2.8 Refer to Appendix A for maps of each centre, their proposed Primary Shopping Areas to which this policy relates in part.

8.2.9 The town centres strategy responds to changes in the economic climate. Many are market influenced changes, some reflect the impact of Covid, which have resulted in changed behaviours from retailers and residents. Government policy changes have also weakened some of the planning tools available to local authorities to protect their high streets.

8.2.10 The Local Plan strategy is to create a network of centres, and direct growth to our main centres first before exploring other opportunities, i.e. brownfield first, main town centre uses in town centre locations first, and to define the roles and functions of our centres again. This reflects ambitions of national policy to provide sustainable living patterns with ease of access for residents. The NPPF also supports the town centre first strategy.

8.2.11 Commissioned evidence points to where growth of retail growth should be directed. The approach is consistent with this.

8.3 Hierarchy of centres

8.3.1 The hierarchy of centres has been reviewed and confirmed through research and commissioned evidence including the North Kent Retail and Leisure Needs assessment 2016 and an update (2018) supported by in- centre surveys.^[97] The evidence confirmed by analysis of the trading performance (turnover) and the presence of key infrastructure, services, retailing and supporting sustainable travel that Chatham should remain at the top of the hierarchy.

8.3.2 Each study had confirmed the hierarchy of centres with Chatham at the top, followed by the five district centres and numerous local centres, neighbourhood centres and village centres.

8.3.3 Many sites have been brought forward in Chatham including those owned by Medway Council. The Council has also led on public realm investment. The objectives identified in evidence base work remain valid and will be carried forward in policies to support delivery of our strategy.

8.3.4 The retail and town centre strategy supports a network of centres and directs growth to centres first. Chatham is the principal centre that has the highest scale of infrastructure and services; a bus station, community facilities, including two theatres; the largest proportion of comparison shopping, a diverse High Street offer, and access to a nearby train station. These aspects support sustainable travel, economic growth and social cohesion. The other district centres provide a distinctive role, which contributes to the creation of the network of complementary centres. Each of the local centres also add value, providing for local level top-up shopping and services without needing to go into the main centre.

8.3.5 New growth at strategic locations as part of the Local Plan spatial strategy may also need provision for additional retailing/community provision. The quantum and configuration of provision will need to factor in local needs, existing provision and shopping patterns. For example, on the Hoo Peninsula there is a limited offer of retail and wider services. Residents generally travel to Strood or Bluewater for their main grocery shop and comparison shopping in the latter location. The current main village centre in Hoo St Werburgh is constrained for further expansion and has lost some key services like banks and seen the change of use of properties to residential. Should further significant growth come forward on the Hoo Peninsula, additional provision for retail, wider commercial and community uses would be essential for sustainable development. Similarly, where strategic scale growth take place in suburban areas, additional provision will be required for local and neighbourhood facilities. Provision should be complementary and slot into the existing network of centres that work together to provide convenience and for the needs of Medway's residents.

8.3.6 The retail hierarchy clarifies the sequential approach for prioritising and directing development to main town centres and provides guidance on the approach for the requirement of new centres emerging from the plan's development strategy.

8.3.7 Responses to earlier consultation on the emerging Local Plan challenged Chatham being at the top of the hierarchy. Officers commissioned further work which has confirmed Chatham's position. The Council has adopted a Chatham Design Code that endorses this approach and provides a robust basis for further development and attracting investment to deliver on the strategy. Chatham is central to the network of centres to provide for day-to-day needs of people in a sustainable manner and includes a wider function for which it is best positioned to achieve.

8.3.8 Evidence base work has confirmed the distinct role of each centre and ability to complement one another in an effective network of centres.

8.3.9 Medway has six main centres, with their own character, and role to play in supporting Medway's sustainability ambitions.

8.3.10 The approach is compliant with the NPPF which requires definition of a robust hierarchy that can respond to rapid economic changes, that is able to respond to people's needs and provide choice. It also supports easy, sustainable access to services and facilities, which will support environmental objectives of reducing carbon emissions and helping reducing movements on the road networks.

8.4 Sequential assessment

8.4.1 We need to protect our centres and one of the remaining mechanisms in national planning policy is the application of the sequential test. This requires a sequence in considering sites (for proposals not in the town centre and/or not in accordance with the development strategy in the local plan) in identifying the most appropriate location for main town centre uses. The approach on in-centre first, followed by edge and out of centre sites is set out in national policy. If no town centre or edge of centre sites are available, then, out of centre sites can be considered with preference given to accessible sites which are well connected to the town centre.

8.4.2 This will support the town centre strategy, retail hierarchy and will ensure a sustainable approach to providing for the needs of the local population and the ability to respond to future changes. To achieve this, priority is given to our designated centres as sustainable options. Medway's traditional (High Street) centres are those that require an economic uplift, enhancements and diversity in uses to provide choice and competition. Hempstead Valley Shopping Centre has a stronger economic position and ability in providing for the local population. The Council has supported its growth but recognises that a balance needs to be achieved between all its centres to create a healthy competitive network of centres and provide for local needs. Priority is therefore given where greater support is required.

8.4.3 Medway's retail parks and leisure designations, such as Medway Valley Park will also need to give due consideration to the sequential test to ensure that in centre locations are not capable of accommodating the proposed use.

8.4.4 Definition of catchment areas is the first step and needs agreement with the Council and is dependent on the scale of the proposal and the sphere of influence and trade draw. Through the sequential assessment, the applicant must also demonstrate flexibility in scale and format particularly taking account of issues of locality. The sequential assessment must be proportionate to the scale of the proposal and/or importance of the site for delivery of the development strategy.

8.4.5 This policy approach will support all the strategic objectives of this Local Plan by supporting a concentration of activity in specific accessible locations that would create a stronger economy, encouraging sustainable means of travel, ease of access to service and facilities and thereby supporting a healthier lifestyle.

8.4.6 Government policy supports the growth and sustainability of town centres through a 'town centres first' approach. The NPPF makes clear that proposals for new main town centre uses should be located by preference within or on the edge of town centres.

8.4.7 Medway has six different main centres. Whilst each centre offers a unique character, the formation of Medway has resulted in a polycentric arrangement of centres requiring a definition of hierarchy and mechanisms to maintain and manage that hierarchy. The sequential test is one of them.

8.4.8 Medway's centres are also challenged by out of centre proposals including proposals within leisure or other retail designations. To ensure Medway's centres and its High Streets grow to become healthier and successful in their own unique way, it is important to direct growth to the main centres first.

8.5 Ancillary development

8.5.1 With more interest in what may be considered cost effective out-of-centre locations for the provision of main town centre uses, proposals come forward in different ways, such as ancillary development. However, the ancillary nature does not necessarily always follow through and can result in permissions for main town centres uses in out of centre locations without requiring the appropriate tests. For example, local garages can provide a top up convenience function where a retail use supports the main function. In such circumstances the ancillary nature of the retail use needs to be appropriate in relation to the predominant use, i.e. the ancillary use must be dependent on the predominant use for access and operational purposes. There may be other circumstances that require an ancillary approach. However, this needs to be carefully managed to prevent adverse and cumulative adverse impacts on centres. Protecting Medway's centres contributes to strengthening the most accessible locations for residents to satisfy their needs, sustainable travel, and maintain healthy lives.

8.5.2 A predominant/main use can range from taking up a small to a much larger floor area (for example, a climbing wall takes up a small floor area, leaving possibly 80-90 percent of the unit for another use). The other use would not be classed as 'ancillary' based purely on the disproportionate scale. However, there may be circumstances where this could be classed as ancillary, i.e. it would then be important for the applicant to satisfy other required criteria to demonstrate the ancillary nature. The policy approach addresses this.

8.5.3 To ensure Medway's centres are protected from out of centre proposals that are not clearly defined and could result in cumulative impact if not managed appropriately. This will help protect Medway's centres from trade and spend being drawn away from its centres, where not justified appropriately and accords with the NPPF's 'town centre first' approach.

8.6 Impact assessment

8.6.1 The recession, desirability of out of centre locations, relocation of main anchors coupled with online shopping have left many of our high streets in a vulnerable position requiring a refocus of the role and function of our centres.

8.6.2 Medway's centres may not be able to claw back a significant amount of trade, but by protecting and strengthening our centres and giving priority to all retail designations, healthier centres can be created to support the needs of the local population in a sustainable way.

8.6.3 When assessing applications for retail and leisure development outside town centres not in accordance with an up-to-date Local Plan, local authorities are expected by national policy to require an impact assessment with the application of either a locally defined threshold or the national set threshold of 2,500sqm. Proposals to date have relied upon the national threshold, in absence of a locally defined threshold. 2,500sqm represents a large scale and quantity of floorspace compared to the typical size of units in each centre and would therefore have a significant impact. It is therefore too large to reflect the local context. In addition, the cumulative impact of out of centre proposals will also have a resounding impact on the health of centres in Medway. Monitoring of retail developments in Medway show that recently more planning permissions for retail in out of centre locations compared to in town centres.^[7]

8.6.4 Given the vulnerability and regeneration initiatives for some of Medway's town centres, it is important that there is appropriate protection from the threat of trade being drawn to out of centre locations, and that a locally determined retail impact threshold be set. This approach supports building stronger centres encouraging a concentration of uses in centres that are better able to support future growth in Medway and in so doing supports healthier lifestyles where services and facilities are easily accessed sustainably.

8.6.5 The local thresholds will be defined by further detailed analysis of centres and the development strategy defined for the Local Plan. The evidence gathered up to late 2021 has been used to inform the policy approach captured below. A refresh of this evidence is underway and will be available to provide verification or updates to the actual thresholds indicated. For further detail on the definition and methodology for arriving at the thresholds refer to the retail topic paper. The outcomes of the 2021 analysis is used as a basis for consultation as presented below in the table within the policy. The identified thresholds become applicable where proposal sites are close to a particular centre and applicability will be reliant on case officer discretion.

8.6.6 National policy supports the requirement of impact assessments where proposals are above 2,500sqm or a locally defined threshold exists.

8.6.7 This policy approach awards a level of protection for Medway's centres by ensuring locally defined thresholds are used as a trigger for the requirement of impact assessments, reflecting local circumstances. The impact assessments will determine how proposals outside a centre will draw trade away from the centre and/or have a significantly adverse impact. This will help inform decision-making.

8.7 Chatham town centre

8.7.1 Chatham town centre, as the highest order centre in Medway, is underperforming. The centre's role and function are compromised further by the lack of a modern foodstore, and by a limited evening economy offer. There are clear opportunities for delivering improvements to the retail and town centre offer and if these opportunities come forward, there is every potential to reinforce itself as a healthy, vital and viable centre. The Chatham Design Code, development briefs and masterplans produced for this primary centre identify a number of opportunities, which could accommodate additional comparison goods retail and commercial floorspace and housing. There are opportunities to accommodate new development and redevelopment in Chatham town centre, and these should be safeguarded and promoted over the plan period through pro-active planning coupled with resistance to out-of-centre competition.

8.7.2 The Council has identified opportunities to significantly increase residential development in the centre of Chatham. This has the potential to increase footfall and patronage to existing and new facilities on the High Street. The combination of investment in town centre living, provision of community uses, making it child friendly, comparison goods floorspace delivery, retention of anchor tenants, attracting new operators and a mix of wider town centre retail, wider business, culture and leisure uses, has the potential to underpin a more positive future for Chatham town centre as Medway's highest order centre. Chatham town centre should continue to be the highest-order centre in Medway; a hive of activity and a destination for people to live, work and enjoy.

8.7.3 Medway's Cultural Strategy sets its ambitions to reposition Medway as a hub for culture. Supporting the evening economy, celebrating heritage and hosting festivals and events form part of this strategy and can be achieved in Chatham. The Child Friendly Medway initiative has identified key strands that contribute to the Local Plan vision and strategic objectives and ambitions for Chatham Town centre including supporting healthy lifestyles, ensuring spaces are cleaner and greener, being more community focused, providing opportunities for culture and creativity, providing a safe place and being aspirational. These are also reflected in the One Medway Council Plan.

8.7.4 Chatham has recently seen investment in the public realm and new housing, through regeneration and development. The Council is leading on much of this work. A Design Code for Chatham has also been prepared to guide future development in delivering environmental and design quality.

8.7.5 Opportunity sites including the Pentagon Centre, the former Debenhams and Trafalgar Centre sites provide for redevelopment opportunities and enhancements to add increased value and change to the high street. Medway Council has acquired the Debenhams site and the Pentagon, the latter of which is seeing some changes to attract uses and make use of under-utilised units. The updated strategic guidance and influence on key development sites provide excellent opportunities to act as a catalyst to realise the vision and aspirations for Chatham and build confidence in the wider market.

8.7.6 Peripheral areas of the town centre – particularly the western end of the High Street (west of Military Road) have seen sites being redeveloped to provide for new homes in recent years. The Council continues to support the introduction of additional residential uses within the town centres on appropriate sites, to help attract additional footfall and therefore support the wider vitality and viability of the town centre. The Whiffens Avenue former car park and the Chatham waterfront sites are under construction. Mountbatten House at the bus station entrance to the Pentagon has also progressed and construction is underway. It is important for the primary shopping area to retain a critical mass of retailing activity, to meet the demand of new population, help ensure strong levels of footfall and complement the diversification of uses in secondary areas of the town centre.

8.7.7 Masterplans were prepared for three centres in Medway that had the highest potential for residential growth. These masterplans were commissioned to support the Local Plan strategy, which focusses on optimising brownfield sites first before investigating valuable greenfield sites. In the case of the Medway Local Plan, the brownfield areas of priority for consideration are the existing town and district centres. The Chatham masterplan provides strategic ambitions and some more detailed guidance on key focus areas and uses along the high street. Taking this a step further, the Chatham Design Code offers more detailed and considered guidance to steer developer proposals. Alongside this is the HAZ guidance along the lower high street and the Luton Arches Neighbourhood plan. The neighbourhood plan now forms policy and will be used to guide development. Linkages between these various strands of policy and guidance is very important in making clear the intention for the centre and Medway's aspirations.

8.7.8 To assist in answering the questions above please refer to the Appendix A for the boundary map and the retail topic paper which provides background to the choices made and option proposed.

8.7.9 Chatham is Medway's highest order centre which has city scale infrastructure already established and able to respond most positively to sustainability requirements. It has been justified and supported through numerous studies that Chatham should remain at the top of the hierarchy.

8.7.10 Numerous development opportunities exist, have and are being delivered to increase footfall into the high street. This is supported by identification of a core shopping area.

8.8 Rochester district centre

8.8.1 Rochester is a centre rich in history, culture and heritage value. These assets draw in residents and visitors, which can be attributed to its success.

8.8.2 The strategy for Rochester over the course of the Plan period should be one of consolidation and continued support of the existing retail and town centre offer, rather than one of expansion. It is not appropriate to plan for a significant quantum of comparison goods floorspace where the constrained nature of the centre and its designation as a Conservation Area limit the scope for significant expansion of the existing retail offer. Individual proposals for extension, reconfiguration or modernisation of existing retail units should be considered on their individual merits.

8.8.3 The clear qualitative gap in the retail offer on Rochester High Street is the provision of a foodstore. However, the proportion of independent food retailers contribute toward its success. Whilst there is a small top-up food shopping facility on High Street, its offer is limited and in reality we expect most residents in the Rochester area will travel to facilities in nearby Strood. More recently planning applications in Rochester Riverside and the site adjacent to the rail station have included the provision of a small element of convenience retail (food store). Whilst not on the High Street, the offer presented by these two options are complementary and easily accessed. Linked trips are also a possibility where connectivity to the High Street is facilitated.

8.8.4 To assist in answering the questions above please refer to the Appendix A for the boundary map and the retail topic paper which provides background to the choices made and option proposed.

8.8.5 Rochester is one of the more healthy and successful centres in Medway with its heritage and cultural assets as the key attractor. The Council will continue to support the continued successes here. One missing element would be the convenience retail provision, which could be beneficial for residents in the area.

8.9 Gillingham district centre

8.9.1 Masterplans were prepared for three centres in Medway that had the highest potential for residential growth. These masterplans were commissioned to support the Local Plan strategy. The masterplan for Gillingham provides further guidance on key ambitions of the district centre and must be used to guide development proposals that come forward. Further corporate initiatives are currently underway for Gillingham, offering the opportunity to progress visioning for its future, and refreshing the design and development guidance for the centre.

8.9.2 The centre is tightly surrounded by a dense residential area with universities, colleges and student accommodation close by and captures trade from this local catchment. Whilst accessed by foot, bus, train and vehicles the most popular means of access is on foot (63%). This is probably down to the larger older and younger student age populations groups in the area. Opportunities therefore exist to diversity the existing offer for low spend top-up shopping to include additional uses for the younger generation like off-campus facilities closer to their residential quarters.

8.9.3 The western end of the high street provides the evening economy uses well frequented by the student population. This could be enhanced to increase footfall and dwell time on the high street.

8.9.4 Opportunity sites exist along the high street to modernise units, deliver housing (above ground floor) and assist in attracting retailers to support diversifying the offer.

8.9.5 Diversification at present takes the form of a much-loved market, which increases footfall into the centre and indicates where the offer is lacking.

8.9.6 A central focus/public square could also add value and interest and offer something additional that all can enjoy or participate in, where used for activities and tied into its military heritage.

8.9.7 Opportunities also exist to explore the traffic movement through the district centre to reduce traffic congestion and support a healthier centre.

8.9.8 The masterplan produced demonstrates opportunities that can be explored to help support growing a healthier centre. Gillingham has the potential to be a thriving centre, and have stronger links to wider regeneration and development areas.

8.9.9 Commissioned retail evidence provides an assessment that identifies areas for improvement and intervention in Gillingham.

8.9.10 To assist in answering the questions above please refer to the Appendix A for the boundary map and the retail topic paper which provides background to the choices made and options proposed.

8.10 Strood district centre

8.10.1 Strood sits to the west of the River Medway with access to the M2 motorway and Medway Valley to the south and Hoo Peninsula to the north. It has historically had a commercial focus serving the needs of Rochester across the river that is dominated by its role as a gateway with major highways and rail connections running through it.

8.10.2 Strood has multiple supermarkets present within the district centre and fast train connections into London. Strood also has a retail park on the edge of the centre, which plays an important role in attracting footfall into the centre in combination with the supermarkets. Further opportunities to better connect the retail park and centre are encouraged. Recent developments have improved crossing points and provision for pedestrians.

8.10.3 The town centre boundary has been proposed to extend to include the shopping parade just before Rochester bridge. Recent public realm works has helped connect these two areas and bring the centre closer to the waterfront where opportunity sites for development exist.

8.10.4 The Strood Town Centre masterplan identified opportunity sites within the district centre and options for transport improvements. The indepth analysis and detailed outputs provides a very strong framework which can still be relied upon now as guidance. The detail has been captured in the policy as a basis for consultation.

8.10.5 The southern end of the site between Cuxton Road and the A228 is a mixed-use area that consists of residential housing and commercial spaces that provided for a range of services. This mixture of use gives this area a poor perception of space.

8.10.6 Adjacent to the River Medway is the former Council site that was scoped for the delivery of riverside residential use. This site is currently being considered by planners through a submitted planning application.

8.10.7 Between the Medway Valley Railway Line and the A228 are presently large-scale retail units that fall outside of the town centre. These consist of a supermarket and the Strood Retail Park.

8.10.8 Strood is going through significant change. The ambition for delivering major residential led riverside regeneration is illustrated in the Strood Waterfront Development Brief 2018. Major flood mitigations have been delivered and improvements made to the rail station access and parking. There are opportunities to consolidate Strood's role as an important integrated transport hub, supporting links to wider communities, including the Hoo Peninsula.

8.10.9 This policy is a strategic policy to regenerate Strood to help improve its vitality and vibrancy as a centre, but also to make it a more productive and attractive place. It also supports the Council's vision to minimise the loss of greenfield land through the careful use of brownfield sites. National policy and guidance support this approach.

8.10.10 Strood has been chosen to be highlighted as an opportunity area due to its potential for regeneration. The potential of Strood for regeneration is due to the availability of land to bring forward and excellent connections that both make it an attractive proposition for development opportunities.

8.10.11 To support this policy the Council commissioned to Strood Town Centre Masterplan 2018. The masterplan set out proposals for uses, public realm and also delivery across the plan period.

8.10.12 The masterplan highlighted that Strood had poor quality open spaces, was dominated by traffic, suffered from flood issues; but did not lack in services and facilities environment.

8.10.13 To assist in answering the questions above please refer to the Appendix A for the boundary map and the retail topic paper which provides background to the choices made and options proposed.

8.11 Rainham district centre

8.11.1 Rainham district centre is amongst the smallest of the district centres in Medway, and generally appears to be functioning well in this context. The centre benefits from an anchor store (Tesco), which although housed in relatively dated premises, performs well. The presence of other multiple retailers also aids the vitality and viability of the centre. Whilst the district centre has a low vacancy rate, it would appear that demand for premises in the centre is generally weak, and consequently when vacant units arise they are occupied by low-grade retailers.

8.11.2 In close proximity to Rainham is the Tesco Extra store and an Aldi at Gillingham Retail Park, so competition is strong. The existing Tesco in the district centre supports the daily needs, convenient shopping and still adds local value and function.

8.11.3 The centre's vulnerability and health is also reflected by its venue score market position (Lower Middle) and ranking (1167), which is significantly lower than the rest of the centres in Medway. Whilst the centre benefits from being pedestrianised, it appears visually dated and could benefit from upgrades. Landscaping and public realm are considered important in supporting the long-term vitality and viability of the centre. Efforts should be made to keep it fit for purpose. Improve its health by supporting opportunities to improve the food and drinks offer and sustainability with the cycle and green links.

8.11.4 Various studies commissioned confirms Rainham's position in the hierarchy and identifies key areas for improvements. It provides for local needs and should be maintained as such.

8.11.5 To assist in answering the questions above please refer to the Appendix A for the boundary map and the retail topic paper which provides background to the choices made and options proposed.

8.12 Hoo Peninsula

8.12.1 The Council has identified the potential for significant development in some suburban areas in Medway and on the Hoo Peninsula as part of the preparation of the new Local Plan. The development strategy has not yet been finalised. However the Council recognises that should major growth take place in this rural area, the local services, including retail, will need to be expanded. Currently rural residents often travel to either Strood or Bluewater to undertake their main grocery shop, and comparison shopping in the latter location. The existing provision in Hoo is limited, and the village centre is physically constrained. The smaller villages across the peninsula have even more limited retail facilities. There is a need to address the existing deficiencies to meet the needs of local residents. This may involve considering new services outside the existing village centres, and may be integrated with future development.

8.12.2 The Council is collating evidence as part of the preparation of the Local Plan, which includes identifying the infrastructure and services needs linked to growth. The retail evidence base notes that the current provision for the Hoo Peninsula is limited and the reliance on shops off the Peninsula and delivery services. This is unsustainable. There is evidence of potential demand for further food stores on the Peninsula to better serve the existing population. Should the area see further major growth as part of the wider spatial strategy for Medway, specified increases in retail floorspace will be required. Dependent on the scale, location and nature of future development, this may involve a complementary centre to the existing village centre. New provision needs to be mindful of the existing provision in the area to prevent harming the existing centres.

8.12.3 Should the area see further growth, appropriate locations for additional neighbourhood centres should be chosen guided by sustainable and safe access to the majority and creating a network of neighbourhood centres within 15-minute walking distance. These neighbourhood centres should provide for either community uses, essential services or top up shopping facilities at its core. It could be composed of 1 to 5 units grouped together. A main centre that could accommodate a larger convenience retail offer would be best co-located with other community uses to ensure benefits are optimised that best serve new communities. Concentrating uses in one area ensures ease of access for all, safe access, convenience and time-saving of undertaking more than one task/errand in one area, higher footfall to support the shops and hence a healthier centre.

8.12.4 Where growth in Hoo is envisaged, it will need to be supported by infrastructure, service and facilities. Updated retail evidence tests a range of housing thresholds which can help guide planning applications. These new centres will help create a better network of provision supporting the resident population on the Hoo Peninsula.

8.13 Hempstead Valley district centre

8.13.1 Hempstead Valley district centre is unique amongst the Medway centres in that it compromises, in its entirety, a purpose-built indoor shopping centre. Although a district centre in retailing terms, the lack of a High Street and the relative shortage of non-retail facilities means that Hempstead Valley functions in a different way to the 'traditional' district centres of Strood, Gillingham, Rochester and Rainham. There is ample free car parking and there are advantages over the 'traditional' town centres in Medway in that expansion / reconfiguration is much easier for modern stores being a modern built form. It is anticipated that Hempstead Valley will be a key retail area supporting the proposed growth of Lidsing Garden Community, just over the border in Maidstone borough.

8.13.2 Hempstead Valley shopping Centre is a healthy centre and has seen more proposals for expansion with a particular focus on commercial leisure uses in recent years. The North Kent retail study recommended a need for modernisation and provision of service-oriented uses in support of its growth but not necessarily for it to be equalised with the traditional centres. Proposals for its growth will be considered on its own merits against its role and function in the retail hierarchy.

8.13.3 The study concluded that there was no qualitative need for additional comparison and convenience retail provision. It also raised concerns over the potential for additional space to have a detrimental impact upon Chatham town centre. Recent trends have shown a change of focus for our centres and the nature of retail becoming more digital rather than having an on-street presence. Therefore, whilst the shopping centre does provide a focus for the population living in the southern part of Medway and also helps to retain shopping trips, there is strong case for a policy approach which manages how Hempstead Valley evolves over the life of the Plan in order to protect other town centres and retain and manage the hierarchy of centres. It is considered that a criteria-based policy in assessing retail and leisure development within the centre boundary would provide a sound approach, which has been confirmed as successful in other authorities in similar contexts.

8.13.4 The Council seeks to ensure that centres that require support to grow into healthier centres are prioritised and given the opportunity for growth. Hempstead Valley Shopping Centre is supported and plays a function in the network of centres across Medway.

8.14 Local and rural centres

8.14.1 Local centres play an important role in creating the aspirations for a high-quality built environment and strong, vibrant and healthy communities. It is necessary to support sustainable living patterns and recognise the bigger role that smaller centres play in rural areas. Smaller centres are a meeting place and support community cohesion where such opportunities are limited. Protection of these centres are therefore vital to support the day-to-day activities of residents and the sustainability of settlements and communities.

8.14.2 At the heart of the policy approach is the aim to support a sustainable way of living by encouraging the provision of new centres where areas of significant growth are identified and protecting and supporting the growth of existing centres. A review of centres has provided an opportunity to refresh boundaries and reflect changes that has occurred over time to inform a network of centres across the authority within which local centres, rural centres, shopping parades and neighbourhood centres fit.

8.14.3 Local, rural, village, neighbourhood centres and shopping parades play a local role and as such should not contain uses of large scale, form or massing. The scale of provision should be appropriate to the location and the function for local services. Cinemas, drive through restaurants, concert halls etc. are therefore not appropriate for smaller centres. Smaller centres are fundamentally based on their convenience but also perform a community function and are of particular value in rural areas where provision is limited, and travel distances much longer to other facilities.

8.14.4 National guidance recognises the importance of providing local shops to satisfy the needs of local communities. Local planning authorities are required to plan positively for local shops to enhance the sustainability of communities and guard against unnecessary loss of valued facilities and services.

8.14.5 The importance of centres in rural locations is vital for community cohesion, health and ensuring people's needs are met.

8.14.6 To assist in answering the questions above please refer to the retail topic paper which provides background to the choices made, centres carried forward and boundary changes.

8.15 Shopping parades and neighbourhood centres

8.15.1 Shopping parades and neighbourhood centres do not form part of the retail hierarchy. National policy for town centres will therefore not apply to them. They still do, however, play a vital role which supports residents of Medway and will in time grow to become local centres or rural centres. Shopping parades and neighbourhood centres are local centres and rural centres in their infancy. The policy approach is therefore to protect these centres, support their growth and encourage provision of new where required in an area of significant growth.

8.15.2 Their role in rural areas is of greater value due to the limited provision. The policy approach is tighter to ensure replacement provision is similar. This will ensure that the rural areas will be provided for.

8.15.3 The policy aims to support a sustainable way of living. Officers maintain a review of all centres in Medway to determine the current condition.

8.15.4 This policy approach will ensure a network of centres are available to provide for the day-to-day needs of Medway's residents. These centres will provide sustainable access and encourage healthy lifestyles and better social cohesion.

8.15.5 The importance and value of smaller centres is recognised by national policy and reciprocated by Medway seeking to establish a network of centres, which also supports sustainability ambitions.

8.15.6 National guidance recognises the importance of providing local shops to satisfy the needs of local communities. Local planning authorities are required to plan positively for local shops to enhance the sustainability of communities and guard against unnecessary loss of valued facilities and services.

8.15.7 To assist in answering the questions above please refer to the retail topic paper which provides background to the choices made, centres carried forward and proposed boundary changes.

8.16 Meanwhile uses

8.16.1 Meanwhile/temporary/pop-up uses benefit an area by creating interest and activating spaces and places especially in the early phases of development or where a unit is vacant and difficulties are experienced in finding a suitable occupier for the desirable, complementary use. In the current context of structural changes to our High Streets, they also offer opportunities to boost the offer and support small businesses and charities.

8.16.2 As examples of meanwhile uses, within development proposals spaces can be landscaped, portable community vegetable gardens or public realm provided. When development is due to be phased on that space, the portable vegetable garden can either be harvested or moved to a suitable area. In town centres or other suitable areas pop-ups/temporary uses can include commercial leisure (food and beverage), cultural and creative activities operational during the day and night, which would add to the diversity of uses and stimulate vibrancy and viability. Pop-ups can occur for a day, a week or more depending on the requirement. Pop-up/Temporary uses can also take the form of a business occupying a shelf in an established business shop unit, but this arrangement can be negotiated between businesses.

8.16.3 The benefit of meanwhile uses is that it activates places and spaces, in some instances can create safer environments and in other instances it can create and support momentum for economic growth by being a catalyst. As well as supporting the economy, meanwhile uses present a positive, uplift to vacant shops or land, which can contribute to a better appearance and possibly encourage better quality developments. Meanwhile uses are additionally supported through the Chatham Design Code, Medway's Cultural Strategy and Star Hill to Sun Pier Development Framework.

8.16.4 Temporary permissions with time specific restrictions can address long standing vacancies in centres without hindering the medium to longer term ambitions. Meanwhile uses can also provide interest for visitors and therefore have value in stimulating footfall, creating a positive image and adding to the vitality of the High Street. However, the wider objective of securing uses more appropriate for the location is an overriding consideration.

8.16.5 In building a strong and competitive economy, The NPPF encourages the need to support economic growth and productivity and in doing so, suggests that policies should allow for new and flexible working practices and to be able to respond rapidly to changes in the economy.

8.17 Medway Valley Leisure Park

8.17.1 Medway has a limited number of leisure designations. Medway Valley Leisure Park is one of them and functions well in providing restaurants, a cinema, hotel and bowling alley. This location provides for the needs of Medway residents and those visiting and has in recent years diversified and continues to do so.

8.17.2 A deficiency of leisure provision in town centre locations was identified in commissioned evidence and supported by findings in town centre surveys in 2018, which would have been further exacerbated by the impact of Covid. Town centres are weaker in supporting an evening economy and are therefore the first locations considered for the provision of main town centre uses including leisure. The retail and town centre strategy directs growth to its centres first. A sequential assessment will be required for main town centre uses outside a town centre including where sought within a retail or leisure designation emphasising the importance of Medway's larger centres and the sustainable growth strategy of the Local Plan.

8.17.3 It is important to achieve a balance between maintaining leisure destinations and protecting and encouraging growth in our town centres to support the health of our centres and its evening economy.

8.17.4 This leisure designation also sits adjacent to the River Medway and is prone to flooding (refer to proposals map for location and boundary). All new proposals need to give due consideration to flooding mitigation measures that may be necessary to future proof the leisure site.

8.17.5 There is limited potential for this designation to grow and it already has a good draw. With further residential development in close proximity, this location may want to respond to support the growing population in other ways beyond leisure provision. There is room for leisure diversification within the site, but the leisure designation does not allow for diversification outside of the predominant use to ensure consistency with the retail and town centre strategy. Other needs emerging from new residential growth should be responded to by neighbouring centres. Having this area as a leisure designation is an asset of limited representation in Medway and an asset worth retaining and supporting within the context of the wider strategy.

8.17.6 No responses to the earlier consultation on the emerging Local Plan objected to this approach.

8.17.7 Socialising is important in supporting healthy lifestyles and mental health. Retaining such areas and supporting the growth of the evening economy in centres is invaluable in playing many roles beyond the physical infrastructure; it supports the social networks and community cohesion.

8.17.8 The Council seeks to protect centres by ensuring the town centre is considered first and impact assessment done where triggered.

8.17.9 This strategy supports the town centre first approach confirmed by the NPPF.

8.18 Dockside

8.18.1 Dockside Outlet Centre is the main retail provider in the Chatham Maritime area outside of Chatham Town Centre (refer to proposals map for location and proposed boundary). It has a number of retail stores mixed with limited commercial leisure (food and beverage) and service uses. Immediately adjacent to the outlet centre is an area particularly known for attracting evening activity with the mix of cinema, bars and restaurants, and some leisure and entertainment during the day as well. This entire area is considered within the policy approach as 'Dockside'.

8.18.2 Medway's previous policy looked at encouraging this area to grow as a leisure destination fundamentally, making use of the waterfront location for water-based leisure and land-based leisure. Much has evolved over time and new residential developments have come forward on St Mary's Island with more development in the wider area. The Dockside area has responded and evolved in providing a more thriving leisure-based environment to support residents. Dockside outlet was previously permitted to sell discounted/past season stock but can now sell goods without the imposed conditions requiring goods to be at a discounted rate.

8.18.3 Dockside is a location worthy of a leisure designation. However, its close proximity to Chatham Town Centre and Gillingham District Centre requires careful management to avoid harming the existing centres in its current form or future plans to improve the high street, its offer, its role and function in the hierarchy of centres. Chatham is Medway's primary centre and together with the other centres provides for its residents at a 'city scale'. Chatham is central to this and therefore of high importance. All other designated centres should also be given priority consideration for main town centre uses.

8.18.4 In order to ensure Chatham and the other centres are protected, it is proposed that whilst Dockside is designated as a leisure destination, it has a cap on retail provision and is required to prepare a sequential and impact assessment where triggered as per policies T15 and T17. This is consistent with the approach for other leisure and retail designations across Medway and the need to prioritise the town centre first approach.

8.18.5 Chatham is Medway's primary centre which plays a key role within the network of centres providing for residents. Many changes have emerged in recent times which reduces Local Authorities' ability to protect town centre and the high streets and therefore leaves them vulnerable.

8.18.6 The approach manages the relationship of out of centre proposals with centres, respecting the retail hierarchy and supporting the growth of the leisure destination without impacting on aspirations for centres.

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