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REPORT FOR CONSULTATION

Agenda item no:

Township Planning Sub Committees January 2012

Licensing and Regulatory Committee 2 February 2012

Report of the Service Director Planning and Regulation Services

Supplementary Planning Guidance – Shop Fronts and Security Shutters

Wards affected: All Report Author: Andrew Eadie/Mark

Robinson

Telephone: (01706) 922081/924308

1. It is recommended that: 1.1 Members support the intention to produce, consult and formally adopt detailed

design guidance for shop fronts and security shutters to be used in the future determination of planning applications and the investigation of breaches of planning control;

1.2 Members are invited to comment on the content of the attached draft design

guidance, enabling any revisions to it to be taken forward for consultation within a draft Supplementary Planning Document.

1.3 Members note the suggested improvements to the processing of planning

applications for security shutters, in particular promotion of pre application advice to obtain better information from applicants as to security fears, and greater consultation with Greater Manchester Police.

1.4 It is Officers' view that there should be no relaxation in the expected standard of

design set out in the Council’s adopted policies, particularly as these are currently being upheld on planning appeals. However, in the interests of the efficient use of resources, Members are asked to consider a suggested approach to enforcement in cases where a retrospective application has been refused.

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2. Reasons for recommendation: 2.1 Following the riots in August 2011, a letter dated 12 August 2011 was issued to

all local authority Chief Planning Officers by the Department for Communities and Local Government. (CLG) To support local businesses (to recover their damaged properties) where planning permission was needed for rebuilding work or security shutters, authorities were requested to prioritise the processing of these planning applications. In the majority of cases, central government requested these be determined speedily under delegated powers. Although the impetus for the letter, the riots, thankfully did not occur in Rochdale Borough, the approach taken will apply and the advice to be heeded.

2.2 The CLG letter continued that it was important to ensure a balance is struck

between maximising property security and protecting the look and character of our high streets. The overall street scene should be a welcoming environment at night. In this context, CLG suggested it may be helpful to refer businesses to any existing planning policies or guidance on shop fronts and security shutters.

2.3 The government also announced the intention to consult on whether security

shutters and other security measures to commercial premises should be made permitted development. This would avoid the need to obtain any planning permission in some cases. The government has yet to consult on this proposal and no timescale for a review has been announced.

2.4 Similar statements were issued by CLG encouraging Councils to provide online

access to information for businesses setting out the need for advertisement consent. These recommendations have already been implemented by the Planning service.

2.5 The Council adopted its current Supplementary Planning Guidance relating to

shop fronts and advertisements back in 1995. Whilst much of the design guidance is equally relevant today, it does not take account of changes in planning legislation relating to shops and advertisements made since then, nor does it contain any design guidance for security shutters. (although general design criteria on shutters exist within current UDP Policies). In the light of the publication of the government letter, it is considered beneficial to produce a new Supplementary Planning Guidance Document which provides guidance to businesses on how to make a planning application, information requirements, and how the Council will deal with security issues. The final document will also contain more detailed design guidance on security shutters

2.6 Once adopted, the guidance will clarify to applicants, agents and Planning

Inspectors, the Council’s approach to planning applications which relate to shop front design and security measures, and to enforcement practice in respect of these matters.

3. Alternatives considered: 3.1 The alternative to producing more detailed guidance would be to rely on existing

guidance, which is somewhat outdated in respect of shopfront design (the

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existing ‘Design Guidelines for Shop Fronts and Associated Advertisements’ dates from 1995), and which is not detailed in respect of shopfront security, particularly roller shutters. That said, unless it is replaced it will continue to carry weight and is being given weight by Inspectors in planning appeals.

3.2 This may lead to a lack of clarity in respect of what is and is not considered acceptable, as well as a lack of certainty in respect of the approach regarding enforcement action and procedures. There is also little existing guidance in respect of options and flexibility, which may result in greater difficulty for traders in respect of meeting the Council’s expectations. The final published version of any guidance will highlight good and bad examples across the Borough to illustrate the Council’s expectations in these matters, offer alternative design solutions to security besides shutters and provide contact information.

3.3 The Council’s existing planning policies contained within its Unitary Development

Plan contain general guidance on shop fronts and security shutters. These have been tested and upheld by Inspectors on appeal and therefore the production of guidance is to assist traders and businesses rather than encourage any relaxation in the standard of design which should be expected. Members are also advised, since the August 2011 riots, the issue of security has been argued unsuccessfully by appellants at appeals for security shutters across Greater Manchester. Whilst the government wants the planning system to work with and assist business owners, it is clear that Planning Inspectors are continuing to support Council’s in promoting heritage and good design, and the avoidance of external solid steel security shutters. No other Council in Greater Manchester is proposing to relax its existing planning policies in this regard.

4. Consultation undertaken/proposed: 4.1 Work is taking place across Greater Manchester to review existing planning

policies relating to shop fronts and security measures. Information on existing policies and sharing of recent appeal decisions is taking place. Individual Districts will then decide whether to adopt some further detailed design guidance on these issues. Consultation on the draft document is taking place with Greater Manchester Police, Community Safety and Places Matter! – a government agency set up to promote high quality building design in the North West region.

4.2 It is proposed to present a draft guidance document to the Council’s Township Planning Sub-Committees during January 2012. Members of these Committees will be asked to comment on the content of the guidance and what, if any changes, they would wish to see incorporated. These will then be incorporated into a further report to be presented to the Licensing and Regulatory Committee of 2 February 2012. Licensing and Regulatory Committee will be asked to consider the views of each Township and determine whether the document should be taken forward and developed into a Supplementary Planning Document. This Committee will also be asked to endorse any procedural changes.

4.3 There is a statutory process for the adoption of a Supplementary Planning

Document. Subject to the agreement of the relevant Portfolio Members, this

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would involve consultation with relevant stakeholders, deposit of the document at libraries and information points, consultation with Township Committees. The document would be available for comments online during this period. The outcome of this consultation process, together with any recommended changes would be reported to Licensing and Regulatory Committee. Any final decision to adopt the Supplementary Planning Guidance Document would require Cabinet approval.

5. Main text of report: 5.1 The Council is committed to the importance of good design in terms of improving

the appearance of the Borough, with resultant benefits such as increased quality of life for residents and increased attractiveness of the area to visitors: all this can have a positive economic effect and be beneficial to local businesses. In particular, the revitalisation of town centres and other retail areas, together with the safeguarding of the Borough’s heritage should not be hindered by poor design of shop fronts and associated security measures.

5.2 As set out earlier in this report the government is encouraging Local Planning

Authorities to review existing planning policies and information they produce to assist applicants submitting planning applications for the alteration of shop fronts, together with security measures such as security shutters. The government has not requested a relaxation of Council policies. In particular it is clear the government expects planning policies to continue to protect the character of retail areas and to make these areas welcoming at night. However, there is a need to review procedures in this area so that applicants are clear about the information required by the Council enabling these planning applications to be assessed fairly and proportionately. Members are advised many applications submitted for shop fronts and security shutters are poor in quality. The adoption of some revised guidance setting out the type of information needed may help to improve the quality of information presented with these planning applications.

5.3 The first part of this guidance is an update of the existing ‘Design Guidelines for Shop Fronts and Associated Advertisements’, which outlines best practice in terms of principles for creating attractive shop fronts. This would be used to inform applicants and agents of the design and information expected. It would also continue to be used to support the Council’s case at planning appeals, including enforcement appeals.

5.4 The second part of the guidance addresses shop front security measures specifically, in particular roller shutters. It is recognised that traders and businesses often have legitimate concerns in respect of security issues, but roller shutters can make an area look intimidating and uninviting, and do not always have the intended effect of improving security. A balance needs to be struck to ensure that security concerns are addressed without being detrimental to the appearance of an area.

5.5 The guidance therefore gives detailed advice in respect of the security options available, and what might be most appropriate in particular circumstances. It also seeks to offer greater clarity about what the Council will expect in terms of

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design details once the options have been considered, both in all areas of the borough and in Conservation Areas. Security Shutters

5.6 Many modern security shutters were originally devised for the security of industrial premises. Whilst they can be fitted relatively easily and cheaply, they are generally not suited to use in retail areas. Solid, or almost solid, external roller shutters have a range of negative effects which outweigh the perceived security benefits. These negative effects include:

- A forbidding appearance that gives the impression that the area is susceptible to

crime - The creation of unattractive ‘dead frontage’ where window shopping is precluded

during the evening - The reduction or preclusion of internal/external intervisibility making premises

safer for criminals once inside. - Attraction of unsightly fly posting and graffiti - The concealing of important architectural features of the premises – to the

detriment of the character of the host building and the surrounding area.

5.7 Central government continues to recognise the above and is not advocating the relaxation of planning policies relating to security shutters. It is not considered there should be any relaxation in the Council’s current planning policies which seek to avoid the use of poorly designed external security shutters particularly in Town Centres, on listed buildings and within designated Conservation Areas. Members should note that, where the issue of security has been argued recently at appeals across Greater Manchester, local planning policies promoting good design and conservation of existing heritage have continued to be upheld by Planning Inspectors. However, it is recognised there may in some cases be genuine security needs and that the Council and other agencies should work with applicants to allow them to submit proposals for planning permission which satisfy these security concerns and conserve the quality of the Borough’s heritage and built environment. Applicants should however explain and in some cases evidence these concerns.

5.8 The following procedural improvements are therefore incorporated within the new

guidance:

- Use of this emerging guidance in pre application discussions on security shutters - Encourage liaison between applicant, Planning service and Greater Manchester

Police at the pre application stage to assess the security risk and clarify the best means of securing both the front and rear of the premises;

- Planning applications for external security shutters shall be accompanied with information to support the case for increased security measures. This to set out details of the security risk, what other security measures have been considered besides shutters, why these are deemed unsuitable, and why alternatives such as internal shutters or lattice grilles cannot be used;

- Include the above as a validation requirement without which the application may not be registered and therefore determination delayed;

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- Consult Greater Manchester Police and Community Safety for all planning applications for shutters to assess whether the proposals are the optimum means of improving security. The Police will be asked to comment on the security risks of the premises, and provide guidance to the Council and to the applicant on what other options, or additional security measures might be necessary to adequately secure the premises.

Enforcement where the application is retrospective for development as carried out

5.9 Members will be aware the refusal of planning permission carries a statutory right

of appeal. Unless backed up with an enforcement notice, this right of appeal exists for a period of 6 months from the date of refusal. Whilst it has been legally possible for the Council to issue an enforcement notice immediately (where the refused development has taken place) and even to prosecute for breaches whether or not there is an outstanding planning appeal, the difficulty has been that defendants seek to have the case adjourned pending determination of the appeal, and the Magistrates have tended to agree despite clear rulings from the High Court that the breach of an Enforcement Notice a separate issue.

5.10 Legislative changes made in 2009 shorten the period of time in which to lodge an

appeal against the planning refusal where an Enforcement Notice has also been issued to remove the refused development. The service of an Enforcement Notice also carries a right of appeal. However, if no appeal is made, the notice requires the property owner to take steps to remove the unauthorised works within a prescribed period as set out in the notice. Failure to comply with the enforcement notice is a criminal offence and can result in prosecution of a property owner before the Magistrates Court. The above legal process also applies to cases where no planning application is submitted and the Council has to take enforcement action to uphold its decision and ensure the unauthorised works are removed.

5.11 In the case of retrospective proposals, the Council should continue to use its

enforcement powers to ensure compliance with its adopted planning policies and guidance. However, the Council is able to apply some discretion to how this is applied and, in light of the government statements to encourage joint working with businesses, this may be an area Members wish to comment upon. It is recognised that a property owner will need to incur costs in implementing a revised scheme of security measures. There are options to specify a longer time period for compliance within an enforcement notice, or delay the issuing of a notice, where the owner has agreed and indeed makes a revised planning application for revised shutters. In making this second application, there must be written evidence from the owner of the intention to carry out the revised scheme and that this will be implemented and the unauthorised alterations removed within a prescribed period. This would form a condition of the planning permission. The Council could take account of the likely costs of compliance in prescribing a suitable period of time for compliance. However, the failure of the owner to then carry out the work would result in enforcement action either through a breach of planning condition, which carries no right of appeal, or by an enforcement notice.

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5.12 If there is to be any flexibility applied to the issue of security shutters, it is important that any process discourages owners from carrying out work without the benefit of planning permission. The above process, if adopted as an interim measure during the current economic climate, could still be seen as a deterrent. Additional costs would continue to be incurred by property owners in removing any existing unauthorised shutters. Members are also advised that any future changes to set local planning application fees may include a discretionary surcharge to be paid for retrospective applications, designed to recover the Council’s costs in enforcement and monitoring work.

6. FINANCIAL IMPLICATIONS 6.1 The preparation and adoption of the local guidance and changes to procedures

outlined above can be implemented from existing resources. Members will be aware that the use of enforcement powers, if not applied appropriately, can carry some financial risks. In such cases, these will continue to be outlined to Members.

7. LEGAL IMPLICATIONS 7.1 There are no significant legal implications. There is a statutory process to be

followed in respect of the consultation and adoption of this Supplementary Planning Document.

8 CONCLUSIONS 8.1 Members are asked to consider the content of this report and the attached

design guidance. There is merit in updating the Council’s existing planning guidance relating to shop fronts and security shutters to make the planning process clearer for applicant’s and to promote greater working with the Police at the pre planning application stage. However, in Officers’ view the Council’s current planning policies in respect of shop fronts and shutters continue to work well. They are robust and enforceable and are being given weight by Planning Inspectors at appeal. Similar policies in force in other Local Authorities are also being upheld at appeal and other neighbouring authorities are not proposing any policy relaxations in these areas. Some flexibility in the application of the Council’s enforcement powers could however be considered by Members if it was felt to be appropriate. However, it is suggested this would need to be exercised with caution and only in cases where there is a clear willingness on the part of the property owner to remedy the breach of planning control through submitting a revised planning application and to then completing the approved work within an agreed time period.

For further Information and Background Papers: For further information about this report or access to any background papers please contact Mark Robinson, Chief Planning Officer on 01706 924308 or Andrew Eadie on 01706 922081

Peter Rowlinson Service Director Planning and Regulation Services

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DESIGN GUIDELINES FOR SHOP FRONTS INCLUDING ASSOCIATED

ADVERTISEMENTS AND SECURITY SHUTTERS / GRILLES

DRAFT GUIDANCE NOTE

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This supplementary planning document is intended to provide clear and concise guidance

to businesses, developers and planning officers in terms of shop front design, associated

advertisements and security measures. It is an updated version of the ‘Design Guidelines

for Shop Fronts and Associated Advertisements Supplementary Planning Guidance’

produced in February 1995.

Introduction

The Council is committed to promoting the vitality and viability of the borough’s town

centres and other retail areas, with a wide range and choice of shops, activities and

facilities. Crucial to the success of this is ensuring a safe and attractive environment that

enhances the quality of life of residents and visitors and attracts investment. The Council

recognises that shop fronts and associated displays can add to the richness and character

of retail centres but can be vulnerable to vandalism and theft. Measures to make retail

centres more secure, particularly at night, can however have a detrimental impact on the

character of an area.

The advice in this document is intended to strike a balance between security and visual

impact. In this document we set out clear guidance in respect of the design of shop fronts

and associated advertisements and security measures, both in terms of outlining good

practice and setting out what is and is not likely to receive planning permission and listed

building consent.

It is not the intention to be overly prescriptive, rather it is hoped that guiding principles

and possible solutions can be used to treat certain design problems which will allow the

developer, architect or shop fitter flexibility whilst respecting the building frontage and

the street scene.

In cases where due account has not been taken of these guidelines and other relevant

Council policies, or where applications are not submitted with sufficient information to

properly assess the proposal, planning permission and other consents such as

advertisement consent and listed building consent is likely to be refused.

Street-level frontages to restaurants, banks, offices and other commercial uses are

included here within the general definition of ‘shop front’.

This guidance expands upon and adds detail to the following policies of the Council’s

adopted Unitary Development Plan:

(i) Policy BE/2 (Design Criteria for New Development).

(ii) Policy BE/4 (Advertising signs on buildings or business premises).

(iii) Policy BE/5 (Shop Fronts).

(iv) Policy BE/14 (Alterations and extensions to listed buildings).

(v) Policy BE/17 (New Development Affecting Conservation Areas).

Upon adoption of the Core Strategy, the guidance will relate to:

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Policy E1 - Establishing thriving town, district and local centres

Policies P1 to P3 – Improving Design, Image and Quality of Place.

This guidance also relates to the principles outlined in the Council’s Oldham and

Rochdale Design Guide Supplementary Planning Document.

This guidance also takes into account national policy and guidance contained within the

following documents:-

Planning Policy Statement 4: Planning and Sustainable Economic Growth

Planning Policy Statement 5: Planning for the Historic Environment

Ministerial Statement: Planning for Growth

National Planning Policy Framework (consultation draft)

What consents are needed?

In most cases shopfronts and associated advertisements require the permission of the

Council as Local Planning Authority. Whether planning permission is required for a

new shop front or alterations to existing shop fronts depends on whether the works

are considered to comprise ‘development’ under Section 55 of the Town and Country

Planning Act 1990. The rules governing whether consent is required to display

advertisements are contained in the Town and Country Planning (Control of

Advertisements) Regulations 2007 (as amended).

These rules are complex. If you have any doubt about whether or not you may

require planning permission and/or advertisement consent please contact the

Council for further advice. Further, if the building in question is listed, you will

need Listed Building Consent whether or not planning permission is required.

Below are some general points for assistance:

• All new shop fronts require planning permission.

• All external shutters and grilles require planning permission. (This may also

include any replacement shutters or grilles)

• Alterations or extensions to existing shop fronts will also normally require

planning permission if, in the view of the Local Planning Authority, they will

materially affect the appearance of the building.

• Repairs and minor alterations which do not materially affect the appearance of

the building will normally only require consent if the building in question is

listed.

• Listed Building Consent will be required (in addition to any other consent

which may be required) for any works which in the view of the Local

Planning Authority affect the character or historic interest of a listed building.

Examples include, but are not limited to, the removal or replacement of

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features, repainting in a different colour, the fixing of security shutters or an

alarm box, and installing blinds and advertisements.

• Advertisement Consent is often required for the display of signs, including

most illuminated signs.

• Conservation Area Consent is only required for the total or substantial

demolition of unlisted buildings or structures within a conservation area and

therefore is unlikely to be relevant to this type of proposal.

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SECTION 1: SHOP FRONTS – GENERAL DESIGN

Shop fronts – principles of good design

In the past, buildings on the same street (often constructed at different times and in

different styles) visually acknowledged each other’s existence and often shared common

features – for example a strong vertical emphasis, a symmetrical façade, similar

proportions, a simply detailed upper elevation with a complex base, and varying height

and roofline. These principles of visual inter-relationship hold good today, and the

Council will expect all proposals for shop fronts and advertisements to reinforce the

positive character of their location. Where existing shop fronts already contribute

effectively to the character of their location, the Council will normally expect their

retention and restoration, particularly where the subject is located within a conservation

area and/or the building is listed or its loss would adversely affect the setting of a heritage

asset.

Sometimes elements of earlier shop fronts remain behind the fascias and pilasters of later,

less appropriate frontages. Documentary or photographic evidence may provide further

support for a scheme of reinstatement of the original in preference to wholesale

replacement.

Suggest a photograph here to illustrate this (Bluebell Hotel?)

Advertisements need to be considered as part of the shop front design. Often the business

activity of the trader can be expressed in the form and style of the design, within the

overall character of the building and the street – leaving the signage to play a supporting

role, rather than a dominant one. Signage should be designed so as to be intrinsic to the

design of the overall shop front.

Detailed design guidance

Shopfront design includes the following basic elements, each of which has its own visual

and practical function:

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Pilasters – emphasise the vertical division between shopfronts;

Fascias – provides the space for advertising;

Cornice – gives a strong line at the top of the shopfront and sheds water away from the

building;

Stallriser – provides protection at ground level;

Doorway – provides a visual focus sometimes emphasised by the doorway being

recessed

These classic elements provide a general framework for the visual arrangement of the

shopfront, within which geometry and proportions can be developed.

Pilasters

Vertical emphasis within the general framework can be achieved through the pilasters.

Their generally slender upright form, and the use of strong vertical profiling within their

width, can both contribute to relating the shopfront to the rest of the building façade and

to reinforcing the special identity of the shopfront itself. The visual role of the pilasters

can be further developed by stepping them forward slightly from the building plane.

Fascias and Cornice

It is important to consider the fascia as just one of a number of elements within the shop

front capable of projecting the identity of the business taking place or retailer. The result

should be that the shop front should convey the ‘advertising’ message as a whole, and

that the form and extent of lettering and signage itself can be less dominant.

Fascias should not be over dominant and should be seen in context with the other

elements in the shop front which collectively can be equally powerful in projecting

character and identity over the wider area of the shop front as a whole.

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Excessively deep fascias should be avoided. The depth allocated within the framework

should not normally exceed 18 inches (450 mm), except for a small minority of wide

frontages where retaining the scale and proportions of the building elevation as a whole

would provide the only justification for the increase.

The fascia and cornice should not extend above the height established in the original shop

front design where this is still evident, and in all cases there should remain a separation

between the top of the cornice and the cills of the first floor windows appropriate to the

scale and proportions of the building elevation.

Horizontal emphasis may be added to the shopfront design through the effective use of

the cornice, either to counter-balance vertical emphasis derived elsewhere or, like the

pilasters, to underline the limits of the shopfront. Terminating the pilasters under the

fascia (as opposed to the use of corbels or decorated ends to the fascia), and projecting

the cornice slightly further forward will provide additional emphasis.

Stallrisers

Together with the fascia and the cornice, the stallriser is the other principal element of

horizontal emphasis. A stallriser should almost always be utilised in shop front design, so

as to avoid the use of glazing down to the ground which, unless designed very carefully,

often looks unsatisfactory when viewed with the building elevation as a whole.

Its height may vary substantially within the general framework from around 16 inches

(400 mm) to as much as the mid-height of the door, according to the use of the shop and

the designer’s intention. Its effect therefore in terms of emphasis, and of adding

‘substance’ to the shopfront as a whole is highly variable, and it should be used as a

significant design tool within the overall composition.

A fairly recent development is the role of the stallriser as a defence against ‘ram raiding’.

Such physical protection as may be required should be made within the stallriser itself,

although materials used externally should be sympathetic with those used on the shop

front as a whole. Bollards, or other anti-vehicle measures within the highway, are

generally not a good design solution but may, if attractively designed, be preferable in

some areas.

Brick or stone faced stallrisers to match the rest of the building / area are usually

preferable, as timber will weather quickly and need replacing.

Doorway

The position of the entrance doorway can be influenced by a wide range of factors,

including the internal layout of the shop. The role of the doorway as a visual focus,

however, and as a unifying element within the overall shopfront composition, should be

considered carefully. If the upper elevation of the building is symmetrically ordered, and

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particularly where it has a strong vertical emphasis, there are good reasons in favour of a

single centrally-located doorway or, where more than one entrance/exit position is

required, of locating them equally from the centre position.

Consideration should also be given to linking the geometry of the shopfront more

formally to that of the upper elevation, for example to align doorway width and position

with upper windows (more usually) or brickwork/masonry (occasionally), particularly

where the building character is strong.

Although there are good examples of asymmetrically organised shop fronts, a centrally

arranged design often works best, particularly on widths involved in most shop fronts.

The power of a doorway as a visual focus is considerably strengthened if it is recessed.

Recessed doorways can provide an invitation to pedestrians to enter the shop, as well as

providing shelter from inclement weather. They may also provide the means of enabling

a gradually ramped access into the shop, so assisting access. It is recognised, however,

that internal space constraints, or the special architectural or historic character of the

building may limit the possibility of providing such a feature.

Glazing

The development of plate glass and the ability to create large single areas of glazing

particularly within wider frontages increases the options to use previously imposed by the

fragile nature of the material. The aim, however, should be to use horizontal and vertical

subdivision to reflect the geometry and proportions of the other principal elements of the

shop front and those of the building as a whole. Without this, the visual impression is one

of an unsupported building ‘floating’ on large areas of uninterrupted glass. Glazing offers

considerable scope in organising the geometry and proportions, and changing the

character and style of the shop front. Glazing panels within doors should generally relate

to the height of the stallriser.

Use of third dimension

Stepping back the principal elements such as the fascia, pilasters and stallriser, in a series

of closely spaced planes parallel to the building frontage will enhance any design and this

should be done wherever practicable. Approached from the front this adds ‘light and

shade’ and provides visual emphasis to the individual elements. Progressing along the

street, it provides relief and texture to the building elevation.

To be illustrated with some photographs

Lettering and signage

It is important to consider the fascia as just one of a number of elements within the shop

front capable of projecting the identity and culture of the retailer. The result should be

that the shop front should convey the ‘advertising’ message as a whole, and that the form

and extent of lettering and signage itself can be less dominant.

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Hanging signs can be a means of supplementing this information and at the same time

they can provide an attractive feature within the street, particularly if of a highly

graphical form based on traditional principles. However, not more than one such sign

should appear on each elevation, and any projecting sign should be sited so as not to

exceed in height the height of any fascia sign.

In some areas, the use of over hanging signs may be unacceptable due to the need to

maintain highway and pedestrian safety. This is an issue which would be assessed by the

Council in determining any application for advertisement consent.

Although house styles and colours may have been adopted by a retailer, both will need to

be applied with discretion, particularly in sensitive locations such as Conservation Areas

and on or near Listed Buildings, and with respect to the guidance otherwise provided in

this note.

Blinds and canopies

Blinds and canopies can sometimes be detrimental to architectural and townscape

qualities, and those which do not contribute to these elements, as well as those which are

not conducive to public safety, will not be granted planning permission or advertisement

consent. Canopies and blinds made from shiny plastic are rarely successful in

contributing positively to the character of a street or building, and would not normally be

acceptable.

Illumination

Internally illuminated box fascia signs can often look obtrusive and ungainly. In

circumstances where they are acceptable they should be set within the framework of the

shop front so that their forward projection is kept to the absolute minimum, and only the

letters or logos should be illuminated.

Externally illuminated hanging or projecting signs will nearly always be preferable to

internally illuminated projecting box signs.

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SECTION 2: SECURITY SHUTTERS AND GRILLES

Introduction

The Council is committed to improving the prosperity of the borough and the quality of

its environment. In particular, it is considered important to establish thriving town centres

and ensure that the borough is an attractive place to live, work and do business. Equally,

it is also recognised that businesses may require security measures to protect their

premises. However, the design and appearance of any security measures need to be

carefully designed as sometimes such measures can be detrimental to the visual quality of

buildings and areas.

Many modern security shutters were originally devised for the security of industrial

premises. Whilst they can be fitted relatively easily and cheaply, they are generally not

suited to use in retail areas. Solid, or almost solid, external roller shutters have a range of

negative effects which outweigh the perceived security benefits. These negative effects

include:

- A forbidding appearance that gives the impression that the area is susceptible to

crime

- The creation of unattractive ‘dead frontage’ where window shopping is precluded

during the evening

- The reduction or preclusion of internal/external intervisibility making premises

safer for criminals once inside

- Attraction of unsightly fly posting and graffiti

- The concealing of important architectural features of the premises – to the

detriment of the character of the host building and the surrounding area.

The purpose of this guidance, therefore, is to assist businesses, planning officers and

Councillors in ensuring that there is an acceptable balance which allows high levels of

security be provided for businesses whilst maintaining and improving the ambience and

attractiveness of the borough’s urban areas. This involves assessing the need for and

looking at different types and designs of security measures available, as well as carefully

considering which measures are necessary, and how these can be applied sensitively to

maintain the visual amenity and character of an area. This guidance applies to the whole

of Rochdale Borough.

Will planning permission be required?

Planning permission will normally be required for anything that materially affects the

external appearance of a building, such as external roller shutters of any kind. When the

building in question is listed, Listed Building Consent will also be needed for most

external and internal works and alterations, including the installation of external or

internal shutters or other security measures. Where listed building consent is also

required, applicants are advised that an application for listed building consent should

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accompany the application for planning permission, so enabling the impacts of the

proposals to be properly considered.

If you are in doubt about whether or not something requires planning permission or other

consents such as Listed Building Consent, you are advised to contact the Development

Management Service.

Further information is also available on the Council’s web pages at: www.rochdale.gov.uk/planning

Security issues

It is important to carefully consider a range of security measures, including design

measures, if it is felt that there are security issues at a premises. It may often, for instance,

be equally if not more important to secure the rear of the premises than the front. Some

types of glass can provide more security than others, and anti-shatter film is another

measure which could be considered (however these may not be appropriate in listed

buildings, conservation areas, or where historic glass is in situ). Measures such as good

lighting, CCTV cameras and alarms can all help to increase security and do not normally

require planning permission.

Perhaps surprisingly, more traditional-style shopfronts using classical principles of

shopfront design such as those outlined earlier in this guidance, can be more secure than

modern designs with extensive panes of glass. Features such as stallrisers, mullions and

glazing bars can make it much harder for thieves and vandals to break windows and enter

premises; smaller areas of glass are harder to break and cheaper to replace. Security

issues mean that it is all the more important that traditional designs are preserved or re-

instated wherever possible.

Planning considerations - general

Solid external roller shutters are severely detrimental to street scenes, creating a ‘fortress’

atmosphere and dead frontage, and projecting roller shutter boxes are highly disruptive to

the building line and street scene. Solid shutters can also be detrimental to security by

concealing the fact that there may be criminals inside, who have gained access to the

premises from the rear, are easy targets for graffiti, and reinforce the fear of crime. Thus:

- In all areas of the borough, planning permission or listed building consent will

not normally be granted for the installation of solid, or almost solid, external

roller shutters, nor for external shutter boxes, on the fronts of shops.

Many ‘perforated’ roller shutter designs have similar impacts to solid shutters, and

therefore are equally unacceptable. However, some perforated external roller shutters and

open-style grilles, whilst providing increased security, create more interest by allowing

some window shopping, thus encouraging more active streets, and also enable greater

surveillance. Thus:

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- Perforated roller shutters, appropriately painted to match the colour of the shop

front, may be acceptable where there is a proven and demonstrable high security

risk based on security issues specific to the building, business or area rather than

a generalised fears*. In these circumstances, only shutters with a high proportion

of ‘open’ lattice to solid shutter will be permitted.

- Perforated shutters must be designed so that housing is concealed behind the

fascia, and runners are concealed behind pilasters. External shutters shall not

extend to ground level to not conceal any staleriser, and shall retain pilasters,

fascia details or other architectural features.

- External lattice, ‘brick bond’ and open chain link grilles will normally be

acceptable outside Conservation Areas and on buildings other than Listed

Buildings, subject to the submission of details to ensure that matters such as the

grille thickness and colour are appropriate.

*Supporting information must be provided with the application which sets out details of

the security risk, what other security measures have been considered besides shutters,

why these are deemed unsuitable, and why alternatives such as internal shutters or lattice

grilles cannot be used.

Information Requirements

Planning applications for external security shutters must be accompanied by information

to support the case for increased security measures. This should set out the security risk,

(rather than a perception of risk), and provide details of what other steps to increase

security have been considered such as securing the rear of the premises, the installation of

CCTV and other lighting, and reasons for their being discounted in each particular case.

This information will be included on the Council’s local list of information requirements.

Without this information, the application may not be registered and the processing of the

application delayed.

The Council will consult Greater Manchester Police on all planning applications which it

receives for external roller shutters. The Police will be asked to comment on the security

risks of the premises, and provide guidance to the Council and to the applicant on what

other options, or additional security measures might be necessary to adequately secure

the premises

Planning considerations - conservation areas and listed buildings

Protecting the borough’s character and heritage, particularly in respect of conservation

areas and listed buildings and their settings, is a priority for the Council, because of its

importance for the quality of life of residents, the image of the Borough and potential to

attract visitors and investment. The Council recognises that there may equally be security

issues relating to businesses locating in these heritage assets, just like anywhere else,

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however we will require security measures to be sympathetic to the character and

appearance of these areas and buildings. The most effective way of securing and

protecting a listed building or a building within a conservation area is to secure and

protect its physical structure, which in most cases will best be achieved by maintaining

that building in active use.

Thus:

- In all Conservation Areas, external roller shutters will not normally be permitted.

In exceptional circumstances, perforated shutters with a high proportion of

‘open’ lattice to solid shutter may be permitted provided that they meet the

criteria outlined under ‘planning considerations – general’ above.

- External demountable grilles are the preferred option within conservation areas

and provided they are of an appropriate thickness and colour, will normally be

granted planning permission.

- External lattice, ‘brick bond’ and open chain link grilles may also be acceptable

in Conservation Areas, subject to details to ensure that matters such as the grille

thickness and colour are appropriate.

- External roller shutters will not normally be permitted on listed buildings (in

conservation areas or otherwise) or within their settings. The special character

and historic interest of a building which has led to that listing is individual to that

specific building but the importance of the façade is often a key part of a

building’s interest. Therefore listed buildings do not benefit from a ‘one size fits

all’ approach and applications for security measures will need to be bespoke and

carefully designed having full regard to existing features.

Internal shutters and grilles

When fitted internally lattice grilles have minimal impact on the street scene. They

should be open in their design rather than solid and should be removable or retractable so

that they do not affect daytime trading. Internally fitted lattice grilles and open shutters

would not normally require planning permission. Listed building consent may however

be required where these would affect the character or appearance of the listed building.

The Planning service will advise you as to whether an application for listed building

consent will be required.

Recessed shopfronts and doorways

Recessed doorways are a traditional feature of shopfronts, and lattice grilles or

demountable iron gates are often used to protect them. However, they can provide hiding

places for potential burglars/muggers and can attract other anti social activity.

Consequently, the Council may permit an open grille or shutter across the opening so as

to be flush with the shop front. These will normally be acceptable, subject to details in

respect of such matters as grille thickness and colour.

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Lead theft

A particular security issues being faced by property owners in the borough relates to the

theft of lead. Damage to the wider property is often caused by the act of metal theft and

the loss of lead can lead to water ingress and result in further damage internally. This can

apply to shop premises as well as other businesses.

The replacement of lead with substitute materials which have a similar appearance, but

do not have a high resale value and therefore do no attract theft would not normally

require planning permission. In the case of listed buildings, it is desirable to use lead on a

like-for-like basis. Listed building consent would be required to install a lead alternative

and the application would need to demonstrate that other security measures are unlikely

to prevent further attacks and the proposed alternative material is suitable.

If your property is targeted by metal thieves the incident should be reported to the police

(insert local police number) to ensure this type of crime is accurately recorded and to help

allocate future resources to tackling it. The Conservation and Design /Development

Management Team can offer advice for listed building owners on preventing metal theft

and appropriate security measures. (contact details elsewhere in guidance

-example photos – I have photographs from Butterworths Bros on Drake Street showing

the damage from lead theft. I will need to ask Louise for her permission to use them. Not

very pretty, but show a lot of damage.