Retail Sequential Test Assessments

What is a main town centre use (or retail) sequential test assessment?

For planning purposes, town centres as defined in the Scottish Planning Policy comprise a range of locations where main town centre uses are concentrated, including city and town centres, district and local centres (and so includes places that are often referred to as high streets). Local planning authorities can take a leading role in promoting a positive vision for these areas, bringing together stakeholders and supporting sustainable economic and employment growth.

They need to consider structural changes in the economy, in particular changes in shopping and leisure patterns and formats, the impact these are likely to have on individual town centres, and how the planning tools available to them can support necessary adaptation and change.

Paragraph 87 of the National Planning Policy Framework (NPPF) encourages Local Planning Authorities to adopt a sequential approach that guides proposals for main town centre uses towards town centre locations first, then, if no town centre locations are available, to edge of centre locations, and, if neither town centre locations nor edge of centre locations are available, to out of centre locations (with a preference for accessible sites which are well connected to the town centre).

This sequential approach supports the viability and vitality of town centres by placing existing town centres foremost in both plan-making and decision-taking.

A sequential test should consider locations in the following order of preference:

  • town centres (including city centres and local centres);
  • edge of town centre; and
  • out-of-centre locations that are, or can be, made easily accessible by a choice of transport modes.

The use of the sequential test should recognise that certain main town centre uses have a particular market and locational requirements which mean that they may only be accommodated in specific locations. Robust justification will need to be provided where this is the case, and land ownership does not provide such a justification.

When is a sequential test assessment required?

The sequential test is required when a 'main town centre use' is proposed in an 'out of centre' location. The test relates to retail and leisure developments (not all main town centre uses) which are not in accordance with up to date plan policies and which would be located outside existing town centres.

It is for the applicant to demonstrate compliance with the sequential test (and failure to undertake a sequential assessment could in itself constitute a reason for refusing permission). Wherever possible, the local planning authority is expected to support the applicant in undertaking the sequential test, including sharing any relevant information. The application of the test will need to be proportionate and appropriate for the given proposal. Where appropriate, the potential suitability of alternative sites will need to be discussed between the developer and local planning authority at the earliest opportunity.

What is considered a main town centre use?

Main town centre uses are: retail development (including warehouse clubs and factory outlet centres); leisure, entertainment facilities the more intensive sport and recreation uses (including cinemas, restaurants, drive-through restaurants, bars and pubs, night-clubs, casinos, health and fitness centres, indoor bowling centres, and bingo halls); offices; and arts, culture and tourism development (including theatres, museums, galleries and concert halls, hotels and conference facilities).