EMPLOYMENT

Introduction

14.1 Creating and keeping jobs is a major concern of everyone. A continued change to the structure of employment away from traditional manufacturing to service industries and part-time working has placed stress on Colchester’s job market. The Borough is therefore keen to encourage a wide range of jobs and employment opportunities.

14.2 At the same time, concerns about promoting sustainable development in the future mean that the recent trends of decentralisation of employment land need to be re- assessed.

14.3 The Plan’s main role, therefore, is to identify new land which may be needed and also to set out criteria for controlling job-creating development within the rest of the Borough.

Objectives

14.4 The Plan’s objectives with regard to employment are as follows:

(a) To maintain and promote the Borough’s existing broad economic base and its role as a major employment centre in so far as this is compatible with the strategic objectives of the Local Plan;

(b) To balance the requirements of economic development and job creation with the need to ensure that the Borough’s environment and historic character are safeguarded and enhanced;

(c) To improve job opportunities by encouraging some growth of appropriate types of employment in suitable locations in local urban centres;

(d) To diversify rural job opportunities by considering appropriate types of employment in suitable rural locations compatible with the other objectives of the Local Plan;

(e) To locate new employment in locations convenient to main residential areas so as to promote the use of non-car modes of transport;

(f) To maximise the potential for alternative means of transport for goods and services when considering employment development;

(g) To promote the highest possible standards of environmental quality for new developments and to improve the environment of existing employment areas wherever possible.

Policies

DEVELOPMENT CONTROL CONSIDERATIONS

14.5 It is important to note that all policies contained within this chapter must be read alongside the overall Development Control Policy (DC1). This policy sets out the standard planning criteria applicable to all forms of development. The relevant criteria will be used to assess the suitability of any proposal in addition to the following detailed policy guidance.

GENERAL – EMPLOYMENT ZONE DISTRIBUTION AND PROVISION

14.6 This policy proposes a strengthening of Colchester’s role as a sub-regional employment centre, both to provide jobs for the Borough’s growing population and for those in neighbouring areas who look to Colchester for work, and in order to reduce out- commuting. The majority of jobs will be located in the main urban areas of Colchester and Stanway.

14.7 The Council considers that locating the majority of new employment in those areas exploits the maximum use of the existing patterns of transport and other infrastructure and supporting services. Thus, the Plan designates Employment Zones (EZs) within the Colchester Central Colchester Inset and at Severalls Park, Cuckoo Farm (south of A12), Hythe/Whitehall Road, Peartree Road, Tollgate, Tiptree and West Mersea. (Details of these sites are set out in Table 5.) Provision is also made in Policy L17 for the development of the community stadium site at Cuckoo Farm for Employment Zone uses should the development not proceed.

14.8 In addition to these EZs, the designation of Regeneration Areas (RAs) within the Colchester Central Colchester Inset, Colchester Garrison and The Hythe should also assist in increasing available jobs, as will the significant amount of shopping, leisure and other service uses to be found in the Central Colchester Inset and other locations.

14.9 The low take-up rate for employment land during the last Plan period has meant a large surplus in land availability. Even if the average rate for new development was to increase significantly above recent historically high levels (around 2ha per annum), it is unlikely that all the land designated in the previous Adopted Plan would be used.

14.10 In addition, land within the RAs needs to be taken into account. The total amount of undeveloped land designated as Employment Zone, both carried forward and “new” sites, is some 98ha, which is considered more than sufficient to cater for likely demand within the Plan period. Existing developed EZs will also make a contribution from redevelopment and changes of use. The size and distribution of sites, some already developed, will allow for a wide range of new developments and uses throughout the urban areas of the Borough.

14.11 The Council recognises that the Plan’s provision is marginally below the Structure Plan allocation. However, given past take-up rates, this is considered unlikely to hinder economic development of the Borough. Nevertheless, the Council will monitor the situation carefully and will bring forward additional land where required.

Types of Employment Within Employment Zones

14.12 It is anticipated that the service and high technology sectors are likely to continue to provide a growing proportion of new jobs. However, it is considered important that an adequate mix of jobs from all sectors of the economy, both service and manufacturing, is maintained in order to provide for a properly balanced local economy, avoid over- dependence on one sector and provide job opportunities for the whole population of working age.

14.13 To this end it is considered necessary to control those uses that often represent higher value development, and it is considered important not to allow such uses to take up a disproportionate amount of employment land and thus displace or prevent the establishment of possibly lower value uses that will constitute an important part of the local economy.

14.14 It is also considered important to provide a variety of sizes and types of business units that can cater for small and growing businesses. These are recognised as having an important part to play in the local job market and economy. Whilst such units can sometimes be accommodated outside EZs within urban areas, they can cause amenity, traffic and design difficulties. In order to promote the provision of these small units, agreement will be sought within EZs of over 5ha for 10% of the area to be set aside for units that have a maximum floor area of 100 sq m. Their location within EZs will generally be preferable as their impact will already have been taken into account by the land allocation.

14.15 In order, therefore, to achieve a satisfactory balance of uses within EZs for the reasons set out above, the following guidelines will be applied (note – separate policies will apply to Regeneration Areas):

(a) 50% of each Zone should provide for light industry (within B1) and for B2 and/or B8 uses (as defined by the Use Classes Order 1987);

(b) the sale of vehicle parts will generally be limited in range to bulkier items such as exhausts, tyres and batteries;

(c) indoor leisure uses are those such as roller-skating, ice-skating and indoor cricket which require to be housed in wide-span warehouse-style buildings and which could not be located in the Town Centre. In considering proposals for indoor leisure development and conference and exhibition centres in EZs, regard will need to be given to the availability of sites on the edge of the Town Centre that could accommodate such uses. These uses should occupy no more than 10ha in total of the proposed allocation;

(d) a limited retail element of up to 10% of the total unit floorspace may be permitted where:

(i) the retail goods are manufactured on the same premises;

(ii) the sale of goods is to trade customers with business such as builders’ merchants.

(e) services clearly directed at businesses and workers in an employment zone, such as banks, restaurants and crèches, may be permitted.

14.16 The Council wishes to keep to these guidelines in order to:

(a) maximise the number of job opportunities in the Employment Zones;

(b) ensure that a proper balance is maintained between industrial and other commercial uses;

(c) safeguard the role of Colchester Town Centre as the prime location for offices, indoor leisure and cultural facilities;

(d) avoid the need to develop “greenfield” sites other than those allocated in the Plan.

14.17 In seeking to achieve the aims of this policy, the Council does not wish to foster any but the highest appropriate standards of design and layout in the area of new economic activity. It is equally concerned to safeguard the amenities of existing users and uses, as in the case, for example, of disturbance from increased traffic flows.

Employment Land Provision and Appropriate Uses

 

EMP1 Provision is made for 98ha of new land for employment uses to be developed between 1996 and 2011. This provision will be mainly within the Employment Zones, as defined on the Proposals Map, where the following uses will be considered appropriate: (a) Business (B1), general industrial (B2), storage and distribution (B8); (b) Display, repair and sale of vehicles and vehicle parts, including cars, boats and caravans; (c) Indoor sports uses, exhibition centres and conference centres; (d) A limited element of retailing where this is ancillary to another main use under (a) ; (e) Services specifically provided for the benefit of businesses based on, or workers employed within, the Employment Zone. Additional provision is made outside Employment Zones, as set out in Policies EMP2, EMP4, EMP5 and EMP6.

DEVELOPMENT OUTSIDE EMPLOYMENT ZONES

14.18 It is recognised that locally based employment within the urban areas of Colchester and the other main settlements of Wivenhoe, West Mersea and Tiptree contributes much to the economic well-being of these areas and to the Borough as a whole.

14.19 Many local businesses are long established and are an important part of the community, as well as providers of local jobs. The continuation of local employment is also useful in promoting sustainable development. Problems can arise, however, when companies wish to expand or new sites are proposed. Many businesses are within residential areas and traffic (especially heavy goods vehicles) can cause significant local problems. In considering proposals, the Council will explore how and if mitigating measures could be implemented to solve existing or anticipated problems.

14.20 Nevertheless, the Plan seeks, where possible, to encourage small-scale businesses that fit into the local environment and make a positive contribution to local jobs. (See Table 4.)

Development Outside Employment Zones Within the Main Urban Areas

 

EMP2 Outside designated Employment Zones, small-scale development to serve local employment needs within the urban areas of Colchester (including the Town Centre), Tiptree, Wivenhoe and West Mersea will be permitted provided that it is in accord with the scale and character of the local area.

FINGRINGHOE BALLAST QUAY

14.21 The Council has decided to start the process of closing the Harbour to commercial shipping, which will ultimately allow redevelopment/regeneration of the various commercial quays as necessary. This process is unlikely to be complete until 2002. Fingringhoe Ballast Quay is the only remaining operative quay in the Borough. It is less constrained in that it lies downstream of the Barrier. It is, however, used solely to serve the nearby sand and gravel pit.

14.22 It is expected that the commercial use of Fingringhoe Quay will continue after closure of the remainder of the commercial harbour. Whilst the Council welcomes this use, it is also important, given the area within which the Quay is located and the road access to it, that expansion for more general port activity does not take place. In this context, the Council is promoting both a wide-ranging management plan for the Colne Estuary and a regeneration initiative for East Colchester, both of which will assist in deciding on the long-term future of the river.

EMPLOYMENT USES IN THE COUNTRYSIDE

14.23 The provision of local jobs to service the rural area can be of great value to the economy and in terms of sustainability.

14.24 Traditional agricultural employment has dramatically reduced but in recent years rural diversification from farming has led to greater job opportunities for country dwellers. Many rural businesses also employ people living in town who effectively “commute”, thus to some extent reversing the centralisation of jobs to the urban areas. The large tracts of high quality protected countryside and agricultural land within the Borough, together with an often inadequate road network, are significant factors in controlling the provision of employment in the rural areas.

14.25 Commercial development in the countryside has to some extent been polarised to both ends of the quality spectrum.

14.26 The growth in leisure/tourism and IT has led to pressure for uses within the countryside which benefit from its environment or require such a location – such as extensive sports facilities, country clubs and hotels – or from uses which are not location-sensitive – such as those based on IT and small businesses run from home. Many of these uses can fit well into the villages or existing farm complexes (Policy CO10 gives specific guidance on agricultural diversification), but some can cause significant harm from traffic or large-scale new buildings in the landscape despite the inherent quality of the development. This will be particularly true within the extensive areas of protected countryside.

14.27 The opposite end of the commercial development spectrum includes the many small industrial uses, such as engineering, haulage and storage, which have developed over the years, mainly within isolated buildings or on former airfield sites. These tend to be smaller scale individually, but their impact on the immediately surrounding areas is often significant. Unacceptable levels of heavy vehicle traffic are often linked to these uses, causing particular problems on rural roads. Conversely, these uses can offer valuable services to local communities. Policy EMP4 gives general guidance with specific criteria for employment development within the countryside.

14.28 It is proposed that new sites should be concentrated within village envelopes. Outside village envelopes and the rural business sites (EMP5), development will be limited to appropriate changes of use or small-scale extension of existing complexes of buildings or replacement buildings within such complexes. The use and scale of any development will be compatible with the local area. The Policy allows the change of use of individual buildings where this would ensure the retention of an isolated building that meets the criteria in PPG 7. This is likely to be a particularly important issue in sensitive locations or where there is likely to be a significant environmental impact.

14.29 There are several existing commercial complexes accommodating authorised but limited industrial and commercial uses. They have been identified to ensure a reservoir of sites to provide rural employment and are listed in Policy EMP5 and are shown on the Proposals Map. It is proposed that these complexes be recognised and defined as rural business sites where expansion of existing uses or new development could be accommodated, subject to adequate controls. The type of use, scale, location and quality of any buildings and traffic impact will need to be acceptable before any consent will be granted.

14.30 There are other areas of the Borough where more isolated businesses have grown up in an ad-hoc manner but where consolidation of expansion is not considered desirable. A particular problem area is Boxted Straight Road, where a number of commercial uses have become established. Several of these have the benefit from temporary planning permissions and/or personal permissions. Some rationalisation could be of benefit to the area’s environment. There are continuing pressures for the establishment of further commercial uses and, if unchecked, this could lead to the loss of any remaining rural character in the area. Policy EMP6 sets out criteria for controlling development in this area.

14.31 The plan seeks to protect existing employment sites in the countryside. These are often under pressure for alternative more profitable uses, but their loss will reduce the pool of employment opportunities in the countryside.

14.32 One of the major factors in assessing employment proposals will be the number of local jobs likely to be created or preserved by the development. The Council will seek information of this issue when considering planning applications and will wish to be satisfied that the proposal is justified in terms of local job creation and/or retention. The submission of a business plan, along similar lines to an agricultural appraisal for a farm worker’s dwelling, may be requested.

14.33 In granting planning permission, conditions may be imposed in accordance with Circular 11/95, limiting the permission to the use applied for on a personal basis or on a time- limited basis. All proposals will be determined taking account of the provisions of Policy DC1.

Employment Uses in the Countryside (General)

14.34 There may be occasions when a group of farm buildings on the very edge of a village envelope and Conservation Area containing several listed buildings detract from the setting of the high quality environment by virtue of their scale or design. In such circumstances, the overall appearance of the Conservation Area may be enhanced if those buildings were to be improved through a change of use or possibly through the replacement of some buildings. The change of use or development of such sites is seen as an additional opportunity to provide rural employment only, in a location where the otherwise strict application of the village envelope and countryside policies would not permit development. Any new buildings will not exceed the footprint of the original building and must reflect the design and character of the surrounding area. The Council is of the view that such sites are likely to be few in number because of their nature.

 

EMP4 Industrial and commercial development will be located in accordance with the principles set out in the Employment Hierarchy (Table 4). (a) Development of new sites will be located only within the village envelopes (see Table 2) and will comply with the principles set out in the Employment Hierarchy (Table 4). (b) Development anywhere else in the countryside (other than those sites listed in Policy EMP5 but including complexes on the periphery of village envelopes, as set out in Table 2) will be limited to appropriate changes of use or small- scale extension within the existing site of existing complexes of buildings, as follows: (i) Within such complexes, replacement buildings will be allowed only where there would be a benefit to the appearance of the area or site; and (ii) Replacements will be no larger than existing structures. Revised siting will be permitted only where this would be of environmental benefit; and (iii) New buildings within these complexes, either to replace existing buildings or to accommodate expansion of enterprises, may also be acceptable provided that they satisfy sustainable development objectives and are of a design and scale appropriate to their rural surroundings. (c) Changes of use of isolated individual buildings will be allowed only where this would ensure the retention and preservation of a heritage building or a building of a permanent or substantial construction and which has a form, bulk and design in keeping with its surroundings. Replacement of such buildings will not be allowed. Proposals for development under clauses (a) , (b) and (c) above will be granted planning permission only if the following criteria are met: (d) The proposed development can be shown to be creating or keeping local employment opportunities; (e) The use(s) and/or development are compatible with the character and scale of the settlement concerned and, where appropriate, the surrounding rural areas. Proposals within the Boxted Straight Road Special Policy Area will be dealt with under Policy EMP6.

Boxted Straight Road – Special Policy Area

 

EMP6 Within the area around Boxted Straight Road, as defined on the Proposals Map, the following principles will apply: (a) Renewal of temporary permission will be granted subject to: any consent being made personal to the applicant; there being no current or likely future planning problems; environmental benefits being secured. (b) Temporary permissions will not be renewed where unacceptable problems exist and where these cannot be overcome by condition and/or planning agreements; (c) No further permission on new sites or the expansion/consolidation on existing ones will be granted.

Employment Sites in the Countryside

 

EMP 7 Development of existing employment sites within the countryside for a non- employment use will not be permitted.

Table 4: Hierarchy of Employment locations

Table 5: Employment Zone Land Availability (as at December 1999)

Note: 1. University Research Park area excludes land west of Boundary Road, which is likely to be used largely for Employment Zone uses.

Note: 2. Cuckoo Farm (south of the A12) excludes the site of the proposed community stadium.