(8) 4. Proposals plan & area-wide policies

Figure 4.1 is a proposals plan for Hockley town centre. It relates directly to the AAP’s policies and shows the locations in which these policies will apply to development proposals. It also relates to certain policies set out within the Council’s Core Strategy and emerging Development Management documents.

Specifically, the proposals plan shows:

• A revised town centre boundary.

• Shopping frontages.

• A revised Hockley Employment Area.

• The Eldon Way Opportunity Site.

The reasoned justification for these location boundaries will be explained in the text following the AAP policies that deal with retail, employment and the other various elements of the mixed-use scheme proposed for the Eldon Way Opportunity Site. This text will also flag up where the proposals plan is relevant to policies contained within the Council’s other planning policy documents.

New development within the Hockley AAP area would bring opportunities for the delivery of environmental improvements, which could be integrated within new development or funded through it. Core Strategy Policy RTC6 states that the AAP should secure a safe and high quality environment for Hockley’s residents and a new public space within the centre.

The requirements of Policy 2 are explained in more detail as follows:

A new public space

A new public space is one of the key elements of the proposed redevelopment of the Eldon Way Opportunity Site. This would provide a focal point for the centre, and would also help to link Spa Road and the centre with new homes, shops, jobs, leisure opportunities and other services delivered through regeneration.

There will be other opportunities to create new areas of public space throughout the AAP area. In particular, there may be scope to facilitate the creation of small areas of inviting public space, through improved soft landscaping and seating. Elsewhere, there may be the potential to soften new development at the Eldon Way Opportunity Site through the introduction of areas of public space.

Raised entry treatments on the Woodlands Road

The busy Spa Road mini-roundabout and numerous side roads along Spa Road currently act as barriers to pedestrian movement around Hockley centre. Raised entry treatments would help to prioritise pedestrian movements and enhance the centre’s public realm.

The introduction of raised entry treatments to these roads would not have a significant negative impact on vehicular traffic flows through Hockley centre. Most of the vehicles that pass through Hockley use the B1013 (Main Road / Southend Road) and would not use the routes that would be affected, which mainly accommodate local traffic.

The experience of pedestrians at the Spa Road mini-roundabout could be further improved through other relatively minor alterations to the surrounding areas of pavement, which could be incorporated as part of a scheme that would increase the roundabout’s capacity and raise the Woodlands Road arm. Notably, it may be possible to widen the pavement around the Spa public house by undertaking a slight build-out on the north side of Southend Road.

New and improved pedestrian signage

Improved signage would help people to easily and safely find their way around Hockley. This would encourage those visiting the centre to leave their cars at home or in the centre’s car parks and to walk between its main destinations.

Other physical interventions

It is important that the overall quality of the public realm within the centre is improved to attract visitors and encourage people to walk. Poor quality paving and street clutter act as barriers to safe and effective pedestrian movement.

Improved lighting for pedestrian routes would help improve safety and reduce the fear of crime; it would also encourage more people to visit the centre during the evening and at night, and so encourage a safe and attractive evening economy. The planting of native tree species would generally help to make the public realm more inviting and improve visual amenity.

New development brings with it opportunities to increase investment in movement infrastructure such as highways, foot and cycle ways, car and cycle parking spaces, and public transport services. However, managing the impacts of increased movement that comes with new development is critical to ensuring that places work successfully.

Core Strategy Policy RTC6 sets out improved connectivity as a priority. Policies T3 and T6 of the same document support this priority and emphasise the importance of new development contributing towards improved public transport, and cycling and walking, respectively.

Figure 4.2 is a more detailed movement framework plan. The requirements of Policy 2 are explained in more detail as follows:

Strengthening pedestrian links:

Redevelopment provides the opportunity to open up previously closed potential pedestrian routes within Hockley centre. In particular, the comprehensive redevelopment of the Eldon Way Opportunity Site could help to create new links from the rail station to Spa Road.

Direct, legible and safe connections are crucial to improving travel choice, reducing reliance on the car and promoting more sustainable modes of travel. This is especially the case given that there are opportunities to increase the accessibility of the rail station. Good pedestrian links can also help to create more successful places that people can easily find their way around.

There are also opportunities to improve existing links between the centre, rail station and Eldon Way Opportunity Site and the rest of Hockley and its surrounding countryside.

Again, it is considered that better access into the centre will help to encourage visitors and residents to use other more sustainable modes of travel. Moreover, the links proposed would also allow those living in the centre to easily access the surrounding countryside and make use of this valuable resource.

Improving Hockley train station

The entrances to the rail station currently lack prominence. More legible entrances would improve its profile and appearance and help encourage people to become less reliant on their cars and to use rail as an alternative. Such enhancements would also complement the new links proposed in and around the centre of Hockley.

The provision of enhanced cycle parking

Improvements to cycle parking facilities would help to encourage people to cycle for local journeys and as part of longer rail journeys. Further, cyclists would be encouraged to use new links within the centre, across the town and with the surrounding countryside.

Improvements to bus facilities

The improvement of bus facilities, such as improved shelters and seating, would help to encourage the use of more sustainable modes of transport and reduce reliance on cars. In particular, real-time bus information would provide more certainty about service performance and help people to plan journeys. ECC made a commitment to the delivery of real-time bus information technology in its Bus Information Strategy (2006-2011) and the AAP supports this commitment.

Consolidated car parking located on the Eldon Way Opportunity Site

The comprehensive redevelopment of the Eldon Way Opportunity Site would create the opportunity for the provision of new and improved public parking facilities in the centre. Parking facilities are currently scattered around the centre and a reasonable amount of informal car parking takes place to the rear of properties and on Eldon Way.

New consolidated car parking facilities could serve the existing centre and rail station, as well as development delivered as part of the proposals for the Eldon Way Opportunity Site. This would encourage visitors into the centre and the use of rail for longer journeys. A central car parking facility close to a variety of facilities and services may also help to promote linked trips.

The Parking Standards Design and Good Practice Supplementary Planning Document (SPD) (2010) sets out the level of car parking space provision that the Council would expect alongside development proposals. Within the AAP area car parking should be provided in line with the standards set out by this document. However, it should be noted that a lower level of provision may be appropriate in urban locations, such as Hockley centre.

Improvements to Spa Road mini-roundabout junction

Core Strategy Policy T1 states that the Council will require contributions from developments towards highways improvements to help mitigate any impact on local roads, and Policy T2 of the same document identifies the Spa Road mini-roundabout as a priority location.

It is considered that the incorporation of two-lane approaches on the three principle arms (Spa Road, Southend Road and Main Road) of this mini-roundabout would achieve improvements to traffic flows through the centre without having significant negative impacts on the pedestrian environment. Indeed, this approach would allow for the incorporation of public realm improvements, as proposed in Policy 2.

The improvement of traffic flows through the centre is necessary, given queuing that takes place on account of the Spa Road mini-roundabout at peak times. It is considered that this has a negative impact on the character of the centre.

It should be noted that the implementation of such a scheme should not take place prior to more detailed design and testing.

Transport Assessments and Travel Plans

Core Strategy Policy T6 generally requires the submission of Travel Plans in support of development proposals. This requirement is increased, in accordance with Draft Policy DM28, to also include the submission of a Transport Assessment, which would be necessary to assess the impact of proposed large developments – in particular, those that might come forward as part of the mixed-use redevelopment of the Eldon Way Opportunity Site – and ensure that adequate mitigation measures would be put in place. This approach would help to encourage the use of sustainable modes of travel and reduce the impact of new development on Hockley’s roads and transport network.

Appendix B of the DfT’s 2007 Guidance on Transport Assessment sets out detailed development thresholds, above which a Transport Assessment and / or Travel Plan should be submitted in support of a planning application. The Council will expect that developers have regard to these thresholds when preparing an application for submission.

Hockley is identified as a tier one settlement in Rochford District’s Core Strategy, and should, therefore, play a critical role in the provision of the Council’s housing target of 250 new dwellings per year. Core Strategy Policy H1 identifies the Hockley Trading Centre and Foundry Business Park sites as presenting a redevelopment opportunity that will allow for the delivery of some of this new housing on a previously developed site.

A capacity study for the Eldon Way Opportunity Site has been carried out to examine how the full mix of uses envisaged for this site within the AAP could be accommodated. It demonstrates that approximately 100 new dwellings could be delivered on site.

It is likely that a mix of housing unit sizes could come forward, which might include a proportion of smaller, one-bedroom units, given the nature of housing need within the District. Draft Policy DM2 does not prescribe densities for new residential development, but encourages proposals for schemes that make efficient use of land and respond to their context. The Eldon Way Opportunity Site is suitable for medium density development due to its accessible location between the centre and rail station, as well as the prevailing character of the surrounding area.

There are also other opportunities for housing within and adjoining the AAP area. In terms of potential sites, the development of a new rail station car park as part of the Eldon Way Opportunity Site would allow for some or all of the existing rail station car park north of the rail line to be redeveloped for housing. Other areas of land immediately to the north of the rail line may also be suitable for residential development, provided that viability would not be adversely affected by site shape and topography.

The land opposite Plumberow Avenue and Mount Crescent may have the potential for residential development. New development in this location would need to consider carefully the impact on the amenity of existing residents. However, in principle, the location is suitable and sustainable for housing development if an appropriate layout, design and parking arrangement can be found.

Draft Policy DM32 allows for the conversion of upper floors within centres, such as Hockley, to be converted for residential purposes. This is on the proviso that such development would not result in a net loss of leisure or commercial uses within the centre and seeks to protect the residential amenity of future occupiers, in particular by requiring that any new residential accommodation is self-contained and has separate access from the street.

All housing proposals within the AAP area should also meet planning policy requirements as set out within the Council’s Core Strategy and emerging Development Management documents; the Housing Design SDP; the Parking Standards Design and Good Practice SPD (2010); the Essex Design Guide (2005) and Urban Place Supplement (2005); and any other relevant policy documents.

The Core Strategy includes the relocation of some employment sites – and their subsequent redevelopment for other uses – within its vision and objectives for economic development. The Hockley Trading Centre and Foundry Business Park site is included as one of these locations.

The Eldon Way Opportunity Site currently includes a mix of employment uses. The 2008 Employment Land Study recognised these uses as strategically well-placed and, therefore, recommended that the redevelopment of the site for other uses only be allowed on the basis that the redevelopment would include provision for office uses within the overall mix.

The capacity study that was undertaken to inform the AAP allows space for up to 1,200 square metres (gross) of offices as part of the redeveloped Eldon Way Opportunity Site.

Offices are classified by the NPPF as a main town centre use. As such, offices should normally be located within a centre or at an edge of centre location. It is considered that the Eldon Way Opportunity Site is an appropriate, sustainable centre / edge of centre site for an office use, given its accessible position between Spa Road and the rail station.

As shown on the proposals plan, the Hockley employment site has been rationalised to allow for the designation of the Eldon Way Opportunity Site for mixed-use development. The extent of the employment site has been reduced and now greater focus is placed on the Foundry Business Park. Given that the Foundry Business Park has recently benefited from upgrades and new accommodation, it should be retained as an employment site. Development proposals for land within this site would be subject to Core Strategy Policy ED4 and Draft Policy DM29, which both seek to protect employment sites for employment generating uses, in particular those within classes B1 and B2.

Hockley centre is one of Rochford District’s three main centres. Core Strategy Policies RTC1 and RTC2 require that retail development is first directed towards these centres, in accordance with a sequential approach to retail development, which prioritises such locations ahead of edge of centre and then out of centre locations.

The proposals plan shows an expanded Hockley centre, which includes an area of the Eldon Way Opportunity Site. This expanded area is primarily intended to guide any new retail development that takes place as a part of the mixed-use redevelopment of the Site, so that it is located in a way that would fully integrate with Spa Road. This would ensure that Hockley’s additional convenience floorspace capacity can be absorbed in a manner that strengthens its centre and increases footfall along Spa Road’s existing primary shopping frontage.

The 2008 Retail & Leisure Study recommends that Hockley’s retail offer should be strengthened. It also highlights that there is capacity for up to 890m² (net) of convenience floorspace to 2026. This is within the context of an overall convenience floorspace capacity for up to 3,000m² (net) to 2026 across the whole of the District.

Within this context, then, the Council would allow a new food store with up to 3,000m² (gross) of new floorspace within Hockley centre, as part of the mixed-use redevelopment of the Eldon Way Opportunity Site. This is reasonable on account of the overall level of convenience capacity and the desire to strengthen Hockley centre and the need to claw back local trade currently lost to other locations.

Furthermore, the capacity study that has been undertaken in relation to the Eldon Way Opportunity Site establishes that a food store with up to 3,000m² (gross) of new floorspace would be the largest that could be accommodated. A larger food store would threaten the delivery of the mix of other uses that would be needed to help deliver the Council’s vision for Hockley Centre.

The development of a new food store on the Eldon Way Opportunity Site could also help to facilitate a new public space. This should provide new linkages between Spa Road and the mixed-used development proposed for the Site.

The Retail & Leisure Study also recognises that Hockley has a good mix of small, but high quality independent traders. It recommends that this offer is enhanced and the centre promoted as a boutique shopping destination. The Eldon Way Opportunity Site offers the potential for a range of different sized retail units alongside any food store, including smaller units suitable for independent traders. As such, it is considered that new development could build on Hockley’s existing strengths and character.

The proposals plan shows primary and secondary shopping frontages within Hockley centre. These have been retained as existing, with the only changes from the Rochford District Replacement Local Plan (2006) proposals map being the infilling of gaps between areas of designated frontage. This would allow the Council to deal appropriately with all proposals for the development of centre ground-floor units with a street frontage.

An appropriate balance of uses is necessary to support the health of Hockley centre, and it is essential that retail uses are supported by non-retail uses such as cafés, pubs and banks.

The 2008 Retail & Leisure Study assessed the vitality and viability of Hockley centre and no changes to retail frontages were put forward. As such, the Council will continue to assess proposals that relate to either primary or secondary shopping frontages on a similar basis to that set out within the Local Plan.

The Council recognises the dynamic nature of centres and the need for flexibility. However, as a guide and whilst wishing to avoid being overly prescriptive, the Council will generally seek to retain 75% of Hockley’s primary shopping frontage and 50% of its secondary shopping frontage in retail (A1) use.

It is noted that a bowling facility is currently located within the Eldon Way Opportunity Site. The 2008 Retail & Leisure Study identified this as the most popular ten pin bowling facility amongst Rochford District’s residents. The Site also currently includes a children’s adventure play facility and a gym. The Council will support the retention of these uses and recognises the important role that they play in providing leisure opportunities for the District’s residents.

Although the Retail & Leisure Study did not identify a strong need for additional leisure facilities within the District, and especially Hockley, there may also be some potential for new leisure uses to locate within the Eldon Way Opportunity Site. The presence of existing uses could provide an opportunity for the sustainable location of other complimentary facilities.

The capacity study undertaken in respect of the Eldon Way Opportunity Site builds in sufficient space for the retention of existing leisure uses and the possible development of new leisure uses.

The AAP proposals plan shows that the Hockley centre designation has been expanded to include land within the Eldon Way Opportunity Site and, specifically, capture CJ’s Bowling within this designation.

The NPPF states that leisure facilities are main town centre uses, which should normally be located within centres. It is considered that the Eldon Way Opportunity Site represents an appropriate centre / edge of centre location for existing and new leisure uses, given that it is sustainably located between the Spa Road, which is the heart of the centre, and the rail station. The introduction of new linkages, as proposed by the AAP, will further enhance the suitability and sustainability of this location.