Strategic Policy S5: Retail and active frontages
The City Corporation will seek to make the City’s retail areas more vibrant, with a greater mix of retail, leisure, entertainment, experience, culture, and other appropriate uses across the City. The City will work with the Business Improvement Districts (BIDs), landowners, operators, and other partners to enrich the ‘ground floor economy’, encourage active frontages and to provide different offers across different parts of the Square Mile, informed by their character, function and potential.
The City will seek to improve the quantity and quality of retailing and the retail environment in the City of London, promoting the development of the City’s four Principal Shopping Centres (PSCs) and the wider distribution of retail by:
1. Focusing new large-scale retail development in the PSCs and encouraging a vibrant retail offer across the Square Mile.
2. Supporting proposals that contribute towards the delivery of additional retail floorspace across the City to meet future demand up to 2040.
3. Requiring major retail developments over 2,500m2 gross floorspace to be located within or near PSCs. Where suitable sites cannot be identified within PSCs, sites immediately adjoining the PSCs should be considered. Other areas of the City will only be considered where no suitable sites are identified within or adjoining the PSCs.
4. Requiring a Retail Impact Assessment for schemes outside PSCs of 2,500m2 gross floorspace and above. The cumulative impact of retail floorspace will be taken into account in the assessment of planning applications.
5. Focusing comparison and convenience shops within the PSCs, with a broader mix of retail and other active, publicly accessible frontage uses on the peripheries of the centres.
6. Supporting the provision of retail uses that provide active and publicly accessible frontages at street level across the City where they would not detract from the viability and vitality of the PSCs.
7. Supporting a greater diversity of retail uses in all areas, and encouraging contextual approaches for the provision of different types of retail use.
8. Retail and other relevant uses will be encouraged to open at evenings and weekends, particularly in and around areas where there are key attractions.
Reason for the policy
6.1.0 The City’s retail offer has seen significant challenges in recent years as a result of the Covid-19 pandemic and changing working patterns, as well as notable retail growth in the Liverpool Street area, bolstered by the opening of the Elizabeth line. Over the longer term, evidence shows significant demand for growth in retail uses in the City. The City’s growing working population and the increasing number of visitors, as well as the Square Mile’s high accessibility by public transport, create significant opportunities for improvement to the retail offer, complementing the wider vision for the City to become a destination of choice for visitors.
6.1.1 Four Principal Shopping Centres (PSCs) are identified in the City Plan. They provide a variety of comparison and convenience shopping in the City of London: Cheapside, Moorgate/Liverpool Street, Fleet Street and Leadenhall Market. Cheapside is considered to be the City’s ‘high street’ and has seen significant retail development in recent years. Moorgate/Liverpool Street PSC has potential to accommodate further retail floorspace.
6.1.2 A Retail Needs Assessment undertaken in 2023 identified a need for approximately 192,200m2 of additional retail floorspace up to 2040. This is an aspirational target based principally on projected employment and visitor number growth in the City. Although the City experienced a reduction in footfall and reduced retail activity as a result of the Covid-19 pandemic, significant growth is forecast over the life of this Plan.
6.1.3 The distribution of retail activity throughout the week has also changed, with a shift from a five day a week focus around meeting
the needs of workers, to more hybrid working and a concentration of worker-based activity in the middle of the week, although this pattern may shift again depending on workplace attendance. Both domestic and international visitor numbers are expected to grow, in part building on the City Corporation’s actions to enhance the City as a leisure and cultural destination, and this trend will support further retail demand and growth.
6.1.4 Alongside changes in patterns of demand, the rise of multichannel retailing and experiential consumption are changing how stores operate and the nature of the consumer experience, which will impact the type, scale and use of stores.
6.1.5 The PSCs are recognised in the London Plan as ‘CAZ Retail Clusters’ that accommodate a range of other commercial uses alongside the retail function (Figure 5). Outside the PSCs, retail units are dispersed across the City.
How the policy works
6.1.6 In applying this policy and others in this chapter, retail includes shops, cafes and restaurants, and services for use by the general public such as hairdressers, banks and building societies, shoe repair and dry cleaning (ie those uses covered by use class E(a)(c)). Other uses within Class E, such as gyms and health centres and nurseries (use classes E(d)-(e)) can also be suitable in retail areas, as can a range of other community and cultural uses and those frequented by members of the public, such as public houses, wine bars or drinking establishments. Together this plan refers to all of these uses as active frontages or active frontage uses, provided the design of the premises creates a frontage that
Retail 6
facilitates the visual and physical permeability of the building. For safeguarding, nurseries (use Class E(f)) do not usually provide an active frontage but they can be suitable in retail areas as they provide a valuable service and bring vibrancy to an area.
6.1.7 There are further opportunities to develop the City’s retail offer, allowing for a broad mix of retail and other suitable facilities while maintaining a predominance of comparison and convenience retail uses. The role and status of the four PSCs will be strengthened, encouraging further retail development, enhancing the retail offer in the City, supporting its primary business function and the growing cultural activity within the City. Improvements to the retail offer outside of the PSCs, including pedestrian links will encourage visitors and shoppers by creating a welcoming and vibrant environment.
6.1.8 Major retail development, defined as development over 2,500m2 gross floorspace, should locate within PSCs, but where suitable sites are not available sites on the edge of the PSCs should be considered before other areas of the City. Smaller scale retail development will be encouraged throughout the City, where it provides an active frontage and facilities which meet the needs of the City’s working population, visitors or local residents. Particular encouragement will be given to convenience retail uses near to residential areas that serve the needs of residents.
6.1.9 Active frontages should be provided at street level across the City. Retail uses may be permitted on upper floors of major commercial developments, including in tall buildings, where they provide additional facilities which are accessible to the public and office occupiers.
Policy RE1: Principal Shopping Centres
1. Principal Shopping Centres (PSCs) are designated frontages defined on the Policies Map. Sites or buildings that form part of a designated frontage are considered to be part of the PSC in their entirety.
2. The role of the PSCs as concentrations of comparison and convenience shopping will be retained. The loss of existing ground floor retail frontages and/or floorspace will be resisted and additional retail provision of varied unit sizes and frontage lengths will be encouraged, supported by complementary uses that increase footfall and provide active frontages. Where planning permission is required, proposals for changes between retail uses within the PSCs will be assessed against:
a. the contribution the unit makes to the function and character of the PSC;
b. maintaining an active frontage; and
c. the effect of the proposal on the area in terms of the size of the unit, the length of its frontage, the composition and distribution of retail uses within the frontage and the location of the unit within the frontage.
Reason for the policy
6.2.0 Concentrating major new retail development in or near PSCs will ensure that their vitality and viability is maintained and will provide an opportunity to focus retail facilities in the most appropriate areas of the City, enhancing these as shopping destinations for City residents, workers and visitors. In accordance with the definition of PSCs set out in this policy, a sequential or retail impact assessment will not be required for retail development on any site or building that contains a designated frontage in a PSC.
6.2.1 Retail uses within the PSCs are predominantly comparison and convenience uses and the City Corporation considers that this predominance should continue, supported by other town centre uses that provide activity at street level and create a welcoming and attractive environment for people to shop, access services and spend leisure time.
6.2.2 Following changes to the Use Classes Order introduced in September 2020, existing shops, premises providing financial and professional services to the public, and restaurants and cafes can be converted to a range of other Class E commercial, business and service uses without planning permission, unless there are specific planning conditions attached to a site which prevent this. Where planning permission is required for changes between retail uses, the City Corporation will require the provision of active retail frontages onto the street and will also assess the contribution the unit makes to the character of the PSC as a whole and its frontage; for example, retail units that are large or in prominent locations should be retained in retail use. The net loss of ground floor retail uses to non-retail uses within the identified PSC frontages could compromise the vitality of the PSCs and will be resisted.
How the policy works
6.2.3 Proposals for additional retail development in the PSCs should incorporate a range of unit sizes and frontage lengths to help provide a more diverse retail offer, whilst retaining a predominance of comparison and convenience shopping uses. Retail uses can generate significant numbers of delivery trips and retail development proposals will be required to demonstrate how delivery and servicing requirements have been addressed in the design process.
6.2.4 Each PSC in the City has an individual character, which is described below, and will be considered in the implementation of policy:
Cheapside
6.2.5 Cheapside has been the City of London’s principal marketplace and high street since early medieval times, and the City Corporation will work with partners including the Cheapside BID to reinforce its role and character as the City’s high street, maintaining a predominance of comparison goods retail including fashion and clothing outlets.
6.2.6 There is scope for greater weekend and evening trading and the retail needs assessment shows demand for increased retail floorspace. The City Corporation will work with the Cheapside BID to promote the area as a shopping, business and visitor destination and to support its evolution into a seven day a week destination.
6.2.7 Timed restrictions on vehicular access to Bank Junction and the potential for public realm improvements provide an opportunity to achieve greater pedestrian movement and enhance links between Cheapside and retail activity within the Royal Exchange and further east. Public realm improvements at King Edward Street will help to improve links between Cheapside and the Smithfield and Barbican area.
6.2.8 The PSC includes Bow Lane, the ground floor of One New Change, Cheapside and Poultry. The PSC frontage has been extended to include established retail premises in the area.
6.2.9 Fleet Street is an important historic thoroughfare, with a rich variety of heritage assets, that acts as the processional route to St Paul’s Cathedral. The City Corporation will work with partners including the Fleet Street Quarter BID to revitalise the area, seeking improvements to the public realm and the creation of a more distinctive retail and leisure mix, using heritage assets, meanwhile uses and development opportunities to enliven the area and create more continuous active frontages.
6.2.10 Ludgate Hill continues the processional route to the west entrance of the Cathedral, and contains retail that serves visitors and tourists. This City Plan therefore extends the PSC across Ludgate Circus up to St Paul’s Churchyard, recognising the important role the area plays in supporting the City’s visitor economy.
Leadenhall Market
6.2.11 Leadenhall Market PSC is centred on the iconic Grade II* listed Victorian market building and includes several surrounding streets. The PSC is located within the southern part of the City Cluster which accommodates a significant and growing proportion of the City’s workforce. The City Corporation will work with the EC BID and other partners to help enliven the area including at weekends and evenings, and seek to transform Leadenhall Market to become a primary destination for visitors, capitalising on its unique heritage and nearby emerging attractions such as public elevated spaces.
6.2.12 Increased demand arising from the expanding City Cluster workforce will be met through the provision of retail units in the surrounding streets. Opportunities will be taken to improve wayfinding in the area and better revealing the presence of Leadenhall Market itself, and the accessibility of the area will be improved. The PSC frontage has been extended to include established retail premises in the area.
Moorgate/Liverpool Street
6.2.13 Moorgate/Liverpool Street PSC covers a substantial area between and around two major stations. Retail demand in this PSC will continue to increase due to the improved connectivity arising from the Elizabeth line and development in and around Broadgate, supported by further retail provision along routes between Liverpool Street and Moorgate stations. There is potential for the PSC to expand its 7 day a week role, capitalising on its strong transport accessibility, its proximity for inner London residents and to nearby visitor and cultural attractions such as the Barbican, Old Spitalfields Market, Petticoat Lane, and Shoreditch. The PSC has been expanded to reflect these factors.
Policy RE2: Active frontages
1. Active frontage uses will be encouraged at ground floor level across the City provided they:
a. Do not impact adversely on the amenity of residents, workers and visitors;
b. Do not impact adversely on the operation of office premises; and
c. Would not adversely affect the vitality and viability of the PSCs.
2. The loss of existing active frontage uses will be resisted. Development that proposes their loss should be supported by evidence demonstrating that there is no demand for active frontage uses and that premises have been actively marketed for a period of no less than 12 months. Alternative uses that would support the retail environment should be provided.
3. The loss of convenience retail units located close to, or that meet, a local residential need will be resisted, unless it is demonstrated that they are no longer required.
Reason for the policy
6.3.0 Many areas of the City contain retail and other active frontage uses that add vibrancy to the area and provide valuable services and leisure opportunities for workers, residents and visitors. Evidence demonstrates that there is substantial future demand for retail floorspace in the City, driven by increased numbers of workers and visitors to the Square Mile. The loss of retail and other active frontage uses across the City would undermine the ability to meet this demand and create a more vibrant City for everyone.
6.3.1 Retail units outside of PSCs provide local facilities for the City’s workforce, enhance the City’s vibrancy, and serve the City’s residential communities. Given that most of the City’s retail provision is tailored towards City workers, it is important to retain units such as convenience stores that are within easy walking distance of the residential areas and meet the day to day needs of surrounding communities. Unless they are subject to specific planning conditions, such units could be converted to any Class E commercial, business and service use without planning permission.
Policy RE3: Specialist retail uses and clusters
The City Corporation will seek to retain specialist retail uses and premises that are historically and culturally significant to the City of London.
Existing and potential clusters of retail uses that contribute to the character and vibrancy of particular areas will be supported. Development in these areas should enhance and support retail uses in the area and deliver active frontages.
Reason for the policy
6.4.0 Within the City, there are some specialist retail uses and premises that cannot be found elsewhere, such as the historic Royal Exchange and the London Silver Vaults on Chancery Lane. These uses contribute to the City’s visitor economy and to its cultural distinctiveness and should be retained and promoted.
6.4.1 The City also has number of retail clusters outside the PSCs that play an important role in bringing vibrancy to an area or that are an inherent part of the area’s character. This includes:
X Premises around Smithfield market, which is going to see substantial change as the new Museum of London relocates to this area.
X The courts and alleys around Cornhill, which require careful steps to ensure they remain (and in some cases become more) vibrant as well as improvements to wayfinding.
X Areas around Middlesex Street and Aldgate High Street, which serve residential communities as well as visitors and local workers.
Partnership working with the Aldgate Connect BID and London Borough of Tower Hamlets will be important across the wider area. Additional convenience retail in this area will be supported.
X Areas around Minories, where there is a number of hotels alongside residential communities and emerging student housing. Additional convenience retail in this area will be supported.
X Retail around the Golden Lane and Barbican estates, which play a role in serving the residential communities.
X The south side of Holborn around Chancery Lane tube, which contributes to the wider ‘central London frontage’ that the London Borough of Camden identify in their Local Plan.
X Many of the City’s main thoroughfares and areas around transport hubs include retail uses.
6.4.2 There is potential for areas along the Thames riverfront to enhance the retail and leisure offer, where this would contribute to the creation of a vibrant, inclusive and welcoming riverfront for all.
How the policy works
6.4.3 The City Corporation will work with owners, developers and occupiers to retain specialist retail uses and premises where it can be demonstrated that such uses are of historical or cultural significance. The City Corporation may attach conditions to planning permissions to ensure the retention or replacement of specialist facilities on the same site where they are impacted by development proposals.
Policy RE4: Markets
Proposals for markets and temporary retail pop-ups will be encouraged where they:
1. Are of an appropriate scale and frequency for their location;
2. Would enhance the vitality and viability of existing retail centres within or outside the City;
3. Would not have a significant adverse impact on the amenity of nearby residents or business occupiers;
4. Would not unduly obstruct pedestrian and vehicular movement; and
5. Would not involve the permanent loss of open space or harm the character of that space.
Reason for the policy
6.5.0 There is an increasing demand for temporary retail pop-ups and street food markets, which can support the local economy by generating increased vibrancy, retail diversity and footfall. These uses provide greater retail choice, enliven the public realm and increase the attractiveness of the City as a place to live, work and visit. Pop-up and meanwhile uses can minimise vacancies of retail premises while a long-term occupier is sought and may be used to animate areas where construction works are taking place.
6.5.1 Street trading in the City is regulated by the City Corporation under the City of London Various Powers Act 1987 (as amended), which restricts permanent street trading but allows street trading to take place for temporary periods in specified locations. The exception is on Middlesex Street (Petticoat Lane) Market, which straddles the boundary between the City and London Borough of Tower Hamlets, where licensed trading is permitted between 9am and 2pm on Sundays. Further information on licensing requirements is set out in the City Corporation’s Street Trading Policy which is available on the Corporation’s website.
6.5.2 Temporary street trading, where permitted under the Various Powers Act, can operate for up to 14 days in a calendar year under permitted development rights. Trading for longer periods will require planning permission. Market trading off City streets but within the curtilage of a building will similarly require planning permission if undertaken for a period of more than 14 days in a calendar year.
How the policy works
6.5.3 Proposals for markets or temporary retail pop-ups located within a building or its curtilage should be ancillary to and complement the main use of the site. When assessing proposals for new permanent markets and opportunities for pop-ups, the City Corporation will consider the potential for significant adverse impacts on the trade of retailers occupying fixed units within the vicinity, together with impacts on the amenity of nearby residents or business occupiers, on pedestrian and vehicular movement or on open spaces.