"A Borough for Success"
Rugby Borough Development Plan
Adopted Local Plan - July 2006 - Written Statement - Chapter 8
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ECONOMIC DEVELOPMENT
8.1 Economic development employment uses are considered to be Use Classes B1, B2 and B8 as defined in the Town and Country Planning (Use Classes) Order 1987:
B1 Business – Offices, research and development and light industry appropriate in a residential area.
B2 General industrial – Industrial processes other than those within Use Class B1.
B8 Storage and distribution – Use for storage or as a distribution centre, including open-air storage.
*Use Class B3 – B7 have recently been deleted
Current Situation
8.2 The Structure Plan sets a requirement of at least 144 hectares of land to meet all employment needs within the Borough between 1996 and 2011. This includes a Major Investment Site (MIS) at Ansty to meet the West Midlands regional needs, which can be up to 50 hectares in size, a 40 hectare site already has planning permission in this location.
8.3 At 1st April 2005 progress towards the Structure Plan employment land allocation was as follows:
Table 6: Employment land development since 1996
| Structure Plan requirement | 144 Ha |
| Completed | 65.24 Ha |
| Under Construction | 2.42 Ha |
| Available With Planning Permission | 61.51 Ha |
| Available Without Planning Permission | 10.00 Ha |
| Total | 139.17 Ha |
Employment Issues
8.4 During the 1980s Rugby experienced a decline in employment in the manufacturing sector. However, this has since been offset by a growth in other employment sectors, principally in warehousing and distribution activities, as the Borough’s transportation links have proved attractive to inward investors. Unemployment levels in the local economy illustrate this shift in employment. In 1982, 15.4% of the workforce was unemployed, whilst in 2004 unemployment had decreased to 1.6%.
8.5 The prime employment sites around Rugby were rapidly developed in the late 1980s and early 1990s. The Swift Valley and Swift Park estates are fully developed, while Valley Park is nearing completion and Central Park is progressing steadily. Importantly, all these sites are situated strategically near to Junction 1 of the M6 motorway.
8.6 In March 2004 nearly 7 percent of employment premises were vacant, with the majority being industrial premises. This is consistent with the national average. These vacant premises include newly completed developments in addition to vacancies in more established employment areas. Thus, readily available premises exist across a range of sizes and a variety of tenures.
8.7 Furthermore during the current Structure Plan period to 1st April 2004, over 23 hectares of employment land had been lost to alternative uses. The need to regenerate derelict and declining areas is important, however there is also a need to protect existing employment sites from development to alternative uses to maintain the foundations of a robust employment base, and to maintain a balance between employment land and other land uses.
8.8 The Structure Plan explains that land is required to meet the increase in service sector employment, a proportion of which will be accommodated in town centre locations. This provision has so far not been met in Rugby, only 14 percent of new employment completions have contained any service sector function in April 2004. Therefore, additional land needs to be identified specifically for offices to meet this shortfall, and ideally should be located near to the town centre.
8.9 The majority of employment sites are provided within or on the periphery of the urban area. There are however, key rural employment locations situated at Ryton on Dunsmore, near to Shilton and Church Lawford, in addition to individual companies located on significant sites within the rural area, such as Rolls Royce at Ansty and the Peugeot Car Plant at Ryton on Dunsmore.
8.10 The rural area also has potential for small-scale employment generation either within villages or by the conversion of suitable buildings within the countryside. However, the majority of development is expected to occur within the urban area.
Policy ED1 – Employment land allocation Provision will be made for the development of approximately 31ha of new employment land in the Borough in the period 2005 - 2011. |
Explanation
8.11 The Council recognises that the Structure Plan expresses the employment land requirement in gross terms. On that basis, the redevelopment of an existing employment site for similar uses contributes to meeting the requirement. Similarly, the loss of employment land to other uses does not have to be compensated for as the Structure Plan has made allowances for such losses based on assumptions, trend, unemployment figures and structural changes to the economy at a County level.
8.12 However, given the considerations identified in the explanation of employment issues, in particular the desire to provide an adequate range and choice of development sites, as well as maintaining past Borough rates of development, a total of 31 hectares of employment land will be provided for in the period 2005 - 2011. Table 7 below shows how the Local Plan provision for employment land meets the Structure Plan requirement. The provision for windfall employment development was informed through analysis of employment developments over the Structure Plan period since 1996, and includes extensions, redevelopments and new employment developments that are not allocated in the Plan. In seeking to avoid an over provision of windfall employment developments, the Council will closely monitor annual windfall completions. If significant over provision appears likely having regard to both planning consents already granted and completions, the Council will consider the imposition of restrictions on the granting of planning permissions for windfall employment development, including temporary moratoria (except local needs developments).
8.13 The Local Plan provision marginally exceeds the Structure Plan requirement over the 15 year Structure Plan period. However, it is considered necessary to provide for this amount of employment development for a number of reasons:
• The additional sites ensure the provision of employment opportunities
on a choice of sites at a range of locations;
• Recognising the contribution that small, possible mixed use developments
can have in promoting sustainable development; and
• The Council’s desire to encourage and provide for farm diversification
schemes and support the rural economy.
Table 7: Provision for employment land in Rugby 2004 – 2011
| Allocated sites in Rugby town (ED2) | 14ha |
| Additional land at Ansty (ED3) | 10ha |
Provision for windfall employment development |
7ha |
| Total | 31ha |
| Residual WASP requirement 2004 - 2011 | 15ha |
| Overall provision 1996 – 2004 | 160.17 ha |
| Balance of provision | +11% |
Explanation
8.14 Malpass Farm is an allocation carried forward from the previous Rugby Borough Local Plan (Adopted June 1997). It has remained undeveloped because of poor road access. However, the construction of the Western Relief Road will enhance the opportunities for development of this restored land. This site is important for its flora and fauna and must be protected from harm during and after development. The chalk and clay spoil mounds in the south-western corner of the site are identified as a Site of Importance for Nature Conservation (SINC). The Malpass Farm site is particularly suited to general industrial use (Use Class B2), because of its physical separation from residential areas, although offices (Use Class B1) and storage and distribution (Use Class B8) will also be acceptable.
8.15 Approximately 2 hectares of the Leicester Road site and 1 hectare of the Livestock Market site are allocated specifically for offices (Use Class B1) to meet the shortfall in the Borough for this type of employment use. These are brownfield sites in sustainable locations being within easy reach of the town centre and accessible by public transport, cycle and pedestrian facilities. These sites are considered opportunity areas (Policies A1 and A2) for mixed-use development. The proposed relocation of the Warwickshire College to the Leicester Road site will occupy some 3 hectares that was to be allocated for employment use.
Policy ED3 – Major Investment Site Planning permission will be granted for a major employment development at Ansty of up to 50 hectares, as defined on the proposals map provided the following criteria are met: 1. The development is part of a comprehensive scheme that
will assist in diversifying and restructuring the economic base
of the Region; and Development on the MIS will be strictly controlled to ensure that they support these objectives |
Explanation
8.16 The Ansty location is identified in the Structure Plan and the West Midlands Regional Spatial Strategy (WMRSS) as a Major Investment Site (MIS). The purpose of a MIS is to meet the potential for accommodating very large-scale investment by single users with an international choice of locations in order to help diversify and restructure the Regional economy.
8.17 Part of the site (40ha) currently has an extant outline planning permission for the development of a High Technology Business Park, which is currently expected to be occupied in part by the Marconi Company as the lead investor. However, if the extant permission eventually only occupies part of the High Technology Business Park site due to restrictions on gross floorspace/traffic the remaining capacity of the land will be reviewed.
8.18 Specifically regarding Ansty, paragraph 7.44 of Policy PA8 in the WMRSS states that if the Marconi proposal is not forthcoming as a MIS the Regional Planning Body should reassess its designation. This could include consideration as to whether part of the site should be used as a science park to serve both the Coventry and Nuneaton Regeneration Zone and the Coventry, Solihull and Warwickshire High Technology Corridor.
8.19 Developments on the MIS will be strictly controlled. In particular, large-scale speculative development that can be more appropriately accommodated within the town centre and warehousing-only developments will not be permitted.
8.20 Being a rural location in the Green Belt, the MIS development must be of good quality design, which incorporates sustainable development principles, and has a low visual impact on the surrounding area. Furthermore, to ensure the needs of people in accessing site, the new development should avoid encouraging dependence on car use, and must therefore be well served by public transport and incorporate traffic management measures.
Policy ED4 – Major developed sites in the Green Belt Planning permission will only be granted for the redevelopment, including partial redevelopment or infill development, for employment purposes, of the sites listed below and defined on the proposals map where: 1. New building, in the form of redevelopment, does not
result in built development occupying a larger area than was previously
the case, or the height of existing buildings being exceeded, unless
there would be an overall landscape benefit.
|
Explanation
8.21 Major employment sites in the Green Belt make a major contribution to the economy of the Borough as a whole. These sites are specifically identified on the Proposals Map and Policy ED4 allows for the redevelopment and infill for employment purposes on these sites. These sites remain in the Green Belt but limited development may in certain circumstances be permitted.
8.22 Other policies in this Local Plan permit the conversion of existing buildings for employment uses and their extension within the Green Belt. However, additional limited infilling at existing major employment sites could help to further secure jobs and prosperity without prejudicing the Green Belt. In this context, infilling would mean the filling of small gaps between existing buildings. Alternatively partial or complete redevelopment for suitable employment uses may be required if the business is to continue to operate within its present site.
Policy ED5 – Retention of existing strategically significant employment sites The following sites, as defined on the proposals map, will be retained for employment purposes for the use classes indicated. Development for other purposes will not be permitted.
Principal cross references: ED1, ED2, ED7, ED9 |
Explanation
8.23 Policy ED5 identifies those existing employment sites that are strategically important to the Borough and/or in locations where other uses would be unacceptable. The retention of such sites is an essential complement to the allocation of new employment sites, and seeks to minimise development of greenfield land for employment use. The sites provide a range and mix of uses that maintain the local economy, and employ people from the Borough and surrounding area. Proposals for the extension of existing employment uses within these sites, and the redevelopment of the site for such uses, will be permitted.
Policy ED6 – Retention of other employment land Planning permission will not be granted for development that would result in the loss of buildings or land that are in, or were last in, employment uses (Use Class B), with the exception of those sites that have been allocated for development under other policies contained within this plan. Development or redevelopment for other uses will only be allowed where the following criteria are met: 1. The applicant can demonstrate that there is no reasonable
prospect of employment use continuing, resuming or being attracted;
or |
Explanation
8.24 It is important that the Borough retains the diversity of businesses it currently possesses, so as to provide a wide spectrum of employment opportunities. That being the case, applicants seeking to take land or buildings out of employment uses are required to demonstrate that there is little prospect, in business and marketing terms, of such uses continuing, resuming or being attracted to the site. Such demonstration will include proof of appropriate marketing of the site over a reasonable period of time, at a price that reflects its current use, and that no reasonable offer has been refused.
8.25 The only other reason when a redevelopment to uses other then B Class uses would be appropriate is when the continuation of employment uses would cause demonstrable harm to the environment or local amenity.
Policy ED7 – EMPLOYMENT DEVELOPMENT WITHIN RUGBY URBAN AREA The development of employment generating enterprises will be permitted within Rugby Urban Area in accordance with Policies S1 and S2 of this plan. Proposals for the extension or redevelopment of existing employment sites for employment purposes within the urban area will be permitted. Principal cross references: ED1, LR1 |
Explanation:
8.26 The Borough Council recognises the importance of maintaining a sound economic base and encouraging a wide range of employment activities. Therefore, proposals for new employment developments, or for the extension or redevelopment of existing employment sites for employment purposes are encouraged since this will help to maintain and enhance the diversity of the local economy.
8.27 The Borough Council will assess the potential merits and drawbacks of permitting such developments. These will include the effect on the surrounding environment, traffic assessments, parking and loading provision, and impacts on public health and safety.
8.28 Proposals for the redevelopment of redundant employment sites for other employment purposes will be permitted, provided that they conform to the wider employment strategy of the Local Plan.
Policy ED8 – Employment development outside Rugby Urban Area Employment proposals outside the Rugby Urban Area, within the Main Rural settlements, or the defined settlements of Long Lawford and Dunchurch will be permitted where: a) The total site area is less than 0.2 hectares; Proposals within Long Lawford and Dunchurch that do not accord with the above will only be permitted where they comply with Policies S1 and S2 of this plan. Proposals within Main Rural Settlements, defined on the Proposals Map, which do not accord with the above, will only be permitted where it is demonstrated to be meeting an identified local need. Proposals within Local Needs Settlements, defined on the Proposals Map, will only be permitted where it is a demonstrated to be meeting an identified local need or complies with Policy ED9. In all cases priority will be given to meeting identified local needs on previously developed sites. Principal cross references: ED1, ED9, LR1 |
Explanation:
8.29 The Borough Council considers it essential to encourage the development of, and provide for, a wide range and choice of employment sites and opportunities throughout the Borough to help sustain rural communities. Therefore, in addition to those sites specifically identified for employment use, new small-scale employment development will be encouraged within settlements, where this is compatible with other policies in the Local Plan. In particular, any potential use must not detract from the character of the local area with respect to landscape and amenity. Importantly, the transport impacts of any proposal must be fully mitigated. The Warwickshire Landscape Guidelines provide useful information on the manner in which development and activities can be incorporated successfully.
8.30 The approach of the Local Plan is to concentrate the majority of developments in the Rugby Urban Area. Beyond that, it is proposed to allow developments in the most sustainable locations. Therefore, Policy ED8 seeks to allow small-scale windfall developments in Long Lawford, Dunchurch and the Main Rural Settlements. These settlements, outside the urban area, are considered to be those that offer the greatest sustainability benefits. The approach of this Local Plan is to limit the amount of new development in rural locations to that which is meeting local needs. Where a Parish Plan (or equivalent) has been produced by a local community the Council will consider this as a material consideration in the determination of planning applications in rural locations. In particular, where a Parish Plan exists the Council will expect applicants to show how their development is meeting the requirements of the Parish Plan in accordance with Policy GP16. Where the Parish Council has undertaken a Local Needs Survey, in accordance with Borough Council guidance, it will be necessary for a developer to demonstrate that meeting an identified need is unviable before other employment development will be considered. Such demonstration will include proof of appropriate marketing of the site over a reasonable period of time, at a price that reflects the identified need, and that no reasonable offer has been refused.
8.31 Proposals for employment developments outside of these sustainable locations but within defined Local Needs Settlements, or for large scale developments within the Main Rural Settlements will be required to demonstrate that there is an identified local need within the settlement. The Borough Council has produced a companion guide in support of this approach to indicate how planning applications for rural employment developments will be considered. It is worth emphasising however, that as the Local Planning Authority, the Borough Council is responsible for making decisions on planning applications. Therefore, in the absence of a Parish Plan (or equivalent) the Council will consider applications in the light of all submitted evidence. However, it is expected that where a Parish Plan (or equivalent) has not been prepared, applicants will prepare their proposals taking into account the Borough Council’s companion guide.
Policy ED9 – Employment development in the countryside and local needs settlements With the exception of those sites that have been allocated for development under other policies contained within this plan, new build employment developments will not be permitted in the countryside. Proposals for the extension, conversion, or redevelopment of buildings for alternative employment uses, will be permitted on existing employment sites in the countryside and local needs settlements. Principal cross references: ED1, ED8, LR1 |
Explanation
8.32 Sufficient land is allocated to meet employment needs of the Borough. Furthermore, the approach of the Local Plan is to concentrate the majority of developments in the Rugby Urban Area. Beyond that, it is proposed to allow developments in the most sustainable locations or within settlements where there is an identified local need. Therefore, new build employment developments will not be permitted in the countryside.
8.33 However, it is important that rural businesses are allowed opportunities to grow and diversify. In this respect, the extension, conversion, or redevelopment of buildings for alternative employment uses, will be permitted on existing commercial sites in rural localities, since this can contribute towards employment creation and diversification. The expansion of existing employment sites in the countryside will be considered as an exception to the approach in Policy ED9 provided it has been demonstrated that the existing employment use is no longer viable and any expansion would not result in a disproportionate addition over and above the size of the original site. However, any potential use must not detract from the character of the local area with respect to landscape and amenity. Importantly, the transport impacts of any proposal must be fully mitigated. The Warwickshire Landscape Guidelines provide useful information on the manner in which development and activities can be immersed successfully into the countryside.
Agricultural & Forestry Development
Policy ED10 – Agricultural & Forestry development Where planning permission is required, development for the purposes of agriculture or forestry will be permitted provided that there is an identified and proven need for the building for the purpose proposed and: 1. The building is sited and designed to minimise its impact
on the countryside; and |
Explanation
8.34 An agricultural building can have a significant impact on the surrounding landscape. The choice of design, material and the relationship of texture and colour to existing developments, local tradition and the landscape will be important considerations.
8.35 New buildings must clearly be intended for agricultural or forestry use and should, as far as possible, relate to existing buildings in design and colour, and form part of a group rather than stand in isolation. To avoid unacceptable visual impacts, sites on skylines should be avoided. Equally there may be cases where developments should be located away from dwellings unrelated to the farm in order to avoid adverse effects on residents from noise or smell. The Warwickshire Landscape Guidelines provide useful information on the manner in which development and activities can be immersed successfully into the countryside.
Policy ED11 – Farm diversification Proposals that seek to diversify farm-based operations will be assessed against the following criteria: 1. Whether best and most versatile agricultural land is
affected; In assessing the merits of such proposals, the extent to which they would contribute to, and not conflict with, the long-term operation and viability of the existing farm holding, and their role in the implementation of Whole Farm Plans, will be taken into account. Principal cross references: ED8, ED9, ED12, TCR7, LR1, LR6, LR7, LR10 |
Explanation:
8.36 There is a need to facilitate the diversification of farm-based operations in order to support agricultural operations and to sustain the rural economy. Nationally, employment in agriculture is in decline and many farmers are finding it increasingly difficult to support themselves through agriculture alone and are seeking additional sources of income. Although farming provides few jobs itself, it has an important role in sustaining the rural economy and managing and maintaining the land. PPS7 promotes farm-based diversification, and the Rural White Paper includes a commitment to clearer planning guidance and the removal of unnecessary regulatory burden.
8.37 The Plan seeks to promote forms of diversification that are sustainable in the countryside. In particular, the utilisation of rural buildings often provides opportunities to support new businesses in the countryside. However, any potential use must not detract from the character of the local area with respect to landscape and amenity. Importantly, the transport impacts of any proposal must be fully mitigated. The Warwickshire Landscape Guidelines provide useful information on the manner in which development and activities can be immersed successfully into the countryside. Farm shops, farm-based tourism and leisure, and horse-based enterprises are examples of diversification schemes that might be suitable, providing the criteria are met.
8.38 Agriculture still plays an important role in the Borough. Consequently, it is important to ensure that diversification schemes will bring genuine, long-term benefits to individual farm operations and the wider rural area. There would be little to be gained from supporting schemes that merely disposed of the assets of the farm holding once and for all. The test of the merits of a particular proposal is the extent to which it would help to secure the long-term viability of the farm involved. The role of Whole Farm Plans are encouraged in this respect, whereby the relationship of a proposal to the wider farm operations can be fully assessed.
Policy ED12 – Conversion of buildings outside Rugby Urban Area Outside Rugby Urban Area, the change of use or conversion of existing buildings for employment purposes will be permitted where: 1. The building is of suitable construction and/or worthy
of retention through its historic or architectural interest or its
contribution to the character of the area; and Principal cross references: H18, ED11, LR5, LR6, LR7, LR10 |
Explanation:
8.39 The reuse of buildings for employment purposes can play an important role in meeting the employment needs of the rural areas. It can provide jobs, give renewed use to vacant buildings and reduce the demand for new buildings in the countryside.
8.40 In considering the conversion of existing buildings to employment use the Council is seeking to preserve the character and heritage of the Borough. It is therefore essential that the existing building should be of a good quality and structurally capable of conversion. If there is any doubt concerning the structural condition, evidence of this will be required to be provided by the applicant in the form of a written report by an appropriate qualified professional.
8.41 The detailed design of the conversion must retain the existing character of the building and therefore new extensions as part of the conversion must comply with other policies in this plan. Any potential use must not detract from the character of the local area with respect to landscape and amenity. Importantly, the transport impacts of any proposal must be fully mitigated. The Warwickshire Landscape Guidelines provide useful information on the manner in which development and activities can be immersed successfully into the countryside.
Policy ED13 – Livestock Market relocation Proposals for the relocation of Rugby Livestock Market from Railway Terrace will be permitted, provided the following criteria are met: 1. The site is easily accessible to the strategic road
network; Any proposal should incorporate comprehensive mitigating measures in order to overcome any adverse effects that would be caused by the development on the landscape and settlements. Principal cross references: A1, A2. |
Explanation
8.42 The Local Plan proposes the redevelopment of the existing Livestock Market site in Rugby. Therefore, it is considered appropriate to include a policy against which any site proposed for its relocation can be assessed.
8.43 It has to be appreciated that livestock markets are becoming more extensive in their operations. Operators now seek sites that are outside urban areas, primarily due to more rigorous controls applied by the EU, and which offer a high standard of accessibility.
8.44 Livestock markets can incorporate a comprehensive range of services for agriculture. These can include feed supplies, machinery, insurance, bulk trade-related retailing, as well as traditional livestock activities. Where proposals include such uses, they must be ancillary to the livestock market.
8.45 Furthermore, Policy ED13 establishes that any proposal will be judged against the principles controlling the location and form of development set out in other policies in the Plan. This policy stresses the attention that will need to be given to ensure the impact of such a large-scale form of development in the countryside is minimised. The livestock market and its potential ancillary uses could have a significant effect on the countryside. Any use must not detract from the character of the local area with respect to landscape and amenity. Importantly, the transport impacts of any proposal must be fully mitigated. The Warwickshire Landscape Guidelines provide useful information on the manner in which development and activities can be immersed successfully into the countryside.
Policy ED14 – Working from home The change of use of part of a dwelling to Use Class B1 will be permitted where this is for the use of the occupants of the dwelling and that the change of use would not have a detrimental impact on the local environment or amenity. Principal cross references: H8, H18, ED7, ED8, ED12 |
Explanation
8.46 Developments in telecommunication, decentralisation and the growth in self-employment mean that an increasing number of people are spending time working from home. This trend is expected to increase further during the Plan period and can help to provide further alternative employment opportunities especially in rural areas.
8.47 Permission is not normally required where the use of part of a dwelling for business purposes does not change the overall character of the property’s use as a single dwelling. However, in some cases, such use can create an adverse effect on the amenities of other residents and adjacent land uses due to traffic, congestion, noise or other problems generated. It is important that residential use remains the primary use of the property and that the business is ancillary to that use. Therefore, when the business use reaches a size that generates more visitors, traffic, or has a greater impact on amenity than might be expected from a residential use, planning permission for a change of use is required. Such development needs to be carefully controlled, therefore, changes of use of part of a residential dwelling to business use will only be permitted where adverse impacts are not generated, and where they are for the occupants’ use of the dwelling concerned.