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B2.6 The Council has an existing Economic Development Strategy covering a period 1998 – 2001. Work has commenced on the development of a new Sustainable Economic Framework for the District looking forward to 2011. This framework recognises the continuing high dependence on service sector employment and highlights the need to ensure adequate land and buildings are made available to meet future economic and employment needs in key growth sectors. It seeks complementary action across four policy strands as set out in Quick Guide 6. The Bath & North East Somerset EconomyB2.7 Within the national and regional context, Bath & North East Somerset has experienced, in recent years, a relatively prosperous and buoyant economy. Unemployment rates are low compared with national and regional rates and there has been considerable demand for commercial space, particularly in the City of Bath. The District's high quality environment is a considerable asset in attracting and retaining employers. It is anticipated that the workforce within the District will continue to grow over the Plan period.
B2.8 Employment in the District is dominated by the public sector, with over a third of employment being within the public administration, education, defence and health sectors (see Diagram 4). However, it is not anticipated that there will be significant employment growth in these sectors over the plan period and the number of jobs in these sectors may even contract. Tourism is also an important provider of jobs with around a quarter of all employment being within the distribution, hotels and restaurant employment sectors. Other important employment sectors are banking, finance and insurance which contribute around 15 % of all jobs in the District as does manufacturing. B2.9 It is anticipated that the sectors offering greatest opportunity for employment growth over the plan period are retail, business and professional services and tourism. There is also considerable potential for growth in computing/high technology sectors, particularly generated through the Universities. B2.10 The performance of the manufacturing sector is likely to be mixed with growth in some companies anticipated but overall employment is expected to continue to decline slowly. This has more significance for the southern part of the district which has a greater proportion of its workforce in that sector. B2.11 As is the case nationally, the health of the agricultural sector has worsened and the considerable decline in farm incomes is masked by the low overall levels of unemployment in rural wards. Agriculture has been a fundamental influence on the character of rural landscapes and its current problems raise long term implications for the appearance of the countryside as well as rural poverty. B2.12 The overall economic success within the District is not experienced uniformly. Some wards, especially within Bath, experience comparatively high levels of deprivation and unemployment (see Diagram 5). Improving opportunities for all to find work is essential in overcoming poverty. B2.13 Furthermore, within the District, there is a dependence on a relatively small number of large employers whose local operations are susceptible to national decisions. The Local Plan has a key role in ensuring that development land is available for a diverse range of economic activities both in type and size of business. Travel to WorkB2.14 Bath is the largest employment centre in the District with almost 70% of all employees in the District working in the City. It also serves as an employment centre for parts of adjoining districts such as West Wiltshire, Mendip and South Gloucestershire. The RPG and Structure Plan seek to maintain Bath's economic role in line with Government guidance on urban regeneration. Bath has the benefit of being accessible by a range of transport modes including bus and train. Furthermore the local employment opportunities in Bath help maintain local sustainability with 78% of the local workforce finding work in Bath. B2.15 Bristol also provides a significant source of employment for B&NES residents, particularly from the Keynsham area. Elsewhere in the District, the towns of Keynsham, Midsomer Norton and Radstock are also employment centres but experience significant levels of out-commuting. Employment Land ObjectivesB2.16 Based on this strategic and local policy context, the Local Plan's overarching objective for Bath & North East Somerset is to achieve more 'Balanced Communities'. For employment issues in B&NES, this means ensuring:
B2.17 The policies in this section set out the planning policies which seek to achieve these objectives in relation to office and industrial uses. Other policIes in the Local Plan also have a considerable impact on the District's economy and employment generation. MAINTAINING A VIBRANT ECONOMYB2.18 In seeking to maintain and enhance the economic prosperity of the District, it is necessary to ensure that there is both sufficient and readily available land to meet economic development needs. Employment generating development should take place in locations which accord with sustainable development objectives such as reducing the need to travel, and on sites which can be readily developed. There should also be a priority on using brownfield land over greenfield where possible. Provision of employment land must be seen within the wider context of the provision of land to meet other social and environmental needs within the Local Plan theme of Balanced Communities. B2.19 Many existing employment sites within the urban areas as well as in the villages offer opportunities for local employment. In Bath for instance, the availability of employment provides jobs for over three quarters of the City's workforce (1991 Census). B2.20 Bath, in particular, has limited land available for development of any type, particularly employment uses. The City is an important employment centre and is the centre of a relatively good bus and rail based public transport system. Whilst its economy has generally been buoyant, there remains pockets of high unemployment in certain wards. B2.21 Furthermore, the City is characterised by a pattern of residential uses intermingled with industrial, commercial and community uses. This juxtaposition of uses makes a significant contribution to the City's character but also facilitates shorter journeys to work as well as walking and cycling. B2.22 A number of employment sites have been lost to other uses in recent years. Pressure to find land for housing should not prejudice the objective of balanced communities by leading to the reduction in this mix of uses and opportunities to work locally. B2.23 Similar patterns of land-use are also a feature of some other settlements in the District. However, in many of the villages, there are a limited number of employment sites. Once these are lost, there are very limited opportunities to identify local replacements. The ongoing loss of local employment sites exacerbates problems of out-commuting and reliance on the private car thereby undermining social and economic vitality. B2.24 Employment sites become available for redevelopment from time to time and, in some cases, the re-use of these sites for mixed-use schemes would not undermine opportunities for people to work locally. In such cases, the mix of uses should include opportunities for significant long term employment generation. B2.25 Very occasionally, there may be sites where continued employment use is no longer viable or there may be insurmountable conflicts with other uses. In such circumstances, alternative uses may be acceptable. B2.26 Nevertheless, care must be taken to ensure the existing stock of employment land is not eroded in a way that undermines the local economic base or sustainability. The District Council will put great weight on the benefits to the community that a local employment site offers in terms of sustainable travel to work, both now and in the future. B2.27 Furthermore, the redevelopment of employment land for mixed uses or other uses in the short term should not lead to the need to release greenfield sites in the longer term to make up for shortages of opportunities for economic expansion. B2.28 In order therefore to ensure land is available for economic development needs, to maintain social and economic vitality, to conserve local character and to provide opportunities to walk and cycle to work, existing and committed employment land will be safeguarded for employment use unless there are particular reasons to allow otherwise. This is in line with Policy 30 of the JRSP.
EMPLOYMENT OPPORTUNITIES & GENERAL DEVELOPMENT SITESB2.29 As stated in para B2.16, the Council is seeking to ensure sufficient land exists to sustain a diverse and buoyant economy. At the same time JRSP Policy 31 seeks to limit the release of new greenfield sites for employment development. The Local Plan approach is therefore to retain existing employment land for employment uses and sometimes mixed uses (Policy ET.1 above) and to release greenfield employment land only where necessary. B2.30 The JRSP does not set out a target requirement for employment land for the District. The Local Plan employment land provision is based on the objective of sustaining a buoyant and diverse local economy, moving towards 'Balanced Communities' and seeks to implement the Local Plan’s locational strategy. Opportunities and needs vary across the District as described below. BathB2.31 In Bath, due to topography, the Green Belt and other environmental constraints and the demands of other development, there are very limited opportunities to identify new employment land. The operation of Policy ET.1 above is the Council's primary approach in ensuring land is available to meet economic development needs. There are also three large redevelopment opportunities in the City which can make a significant contribution to retaining and stimulating employment growth during the Plan period. These are at Western Riverside, MoD Foxhill in Combe Down and at Rush Hill in Odd Down (see Policy GDS.1). B2.32 However, because of the contamination and land ownership issues at Western Riverside and the MoD's review of its sites, only part of this land will be available in the early part of the Plan period. This emphasises the need to examine carefully those proposals which entail the loss of employment land. KeynshamB2.33 Keynsham has high levels of out-commuting. The 1991 census showed that 79% of the town's workforce commuted elsewhere for work. A key objective for Keynsham during the plan period is to identify land for employment generation opportunities. There are opportunities for redevelopment within the grounds of the Somerdale (chocolate factory) site primarily for employment uses. In addition, land will also be available for employment development as part of the carefully designed, mixed-use development scheme at South West Keynsham as set out in Policy GDS.1. Norton-Radstock areaB2.34 In the Norton-Radstock area, employment opportunities have not kept pace with past residential development and over half of the town's workforce commute elsewhere to work (1991 census). In addition around 37% of the local workforce is employed in manufacturing for which limited growth or even decline is anticipated over the Plan period. B2.35 In line with the JRSP therefore, the strategy for this area is aimed at regeneration to foster a range of new local employment opportunities. The Local Plan seeks to ensure that a variety of type and size of development sites are available. Only around 2.5 ha of land with planning permission for development remains at Westfield Industrial Estate and very little brownfield land is available for redevelopment within Norton Radstock or neighbouring villages. There is some scope for limited development within the grounds of St. Peter's factory at Westfield. B2.36 Land is allocated for development within Use Classes B1, B2 and B8 on the western edge of the urban area at Old Mills. This is likely to be a phased development in view of the infrastructure requirements. Some land is also available for business development as part of the mixed-use scheme proposed on land south of Charlton Park. B2.37 Planning permission for 6 ha of employment land exists at Peasedown St. John as part of the comprehensive development scheme. This is supplemented by a further 5 ha allocated on adjoining land. There are also development opportunities at the printing factory site at Paulton. Summary of commitmentsB2.38 Land identified for employment generating development for the Plan period is set out in Policy GDS.1. This amounts to a total of around 50 ha. Some of this will only be available during the latter part of the Plan period due to infrastructure requirements and development phasing. However, over half this development would be on existing employment sites. Almost 90 % of additional employment land is in the Norton-Radstock area, reflecting the need in this area for economic regeneration. The specific development requirements of these sites are set out in Policy GDS.1 (See Diagram 6).
OTHER EMPLOYMENT DEVELOPMENT IN URBAN AREASB2.39 The locational strategy identifies urban areas of Bath in particular, but also Keynsham and Norton-Radstock as the principal locations for new development. They provide the greatest scope for reducing commuting by car, being the locations best served by public transport and with the most potential for walking and cycling. B2.40 Focusing new employment in these areas also facilitates the objective of urban regeneration. Provision is made in the Local Plan through Policies ET.1 and ET.2 for land for economic development. However, other schemes may be acceptable within the urban areas particularly if they are accessible by modes of transport other than the private car (Policy T.1), do not harm residential amenity (Design Policies) and have appropriate access, parking and servicing (Policy T.26). B2.41 At Bath and Keynsham, the Green Belt boundaries limit opportunities adjoining the urban areas. At Norton-Radstock, opportunities for development adjoining the urban area are provided for in Policy GDS.1. Policy ET.3 enables further development opportunities to come forward within urban areas.
A BUOYANT RURAL ECONOMYB2.42 In rural areas, the JRSP seeks to encourage economic and social vitality. In line with JRSP Policy 32, there are opportunities for small-scale business and industrial developments in locations well related to villages, especially those settlements which are more accessible by a range of transport modes. These villages are identified in Local Plan Policy SC.1 and fall within categories R1 and R2 of that policy. Such development can encourage rural diversification but must be compatible with the scale, character and appearance of its surroundings (Policy ET.4). Greater restrictions apply in Green Belt (R3) villages. B2.43 In addition, where existing rural buildings become available, the Council supports their re-use, particularly to provide business opportunities (Policy ET.9). Farm diversification schemes are also encouraged as set out in Policy ET.8.
B2.44 In line with Government guidance and the JRSP, strict control will be exerted over new building in the 'open countryside'. The need to retain the openness of the Green Belt is also a consideration (Policy GB.1). However, there are opportunities for the re-use of rural buildings for employment uses (Policy AG.5). Replacement building will be permitted under certain circumstances and where this involves a building of a similar size on the same site.
AGRICULTUREB2.45 Agriculture is the single most extensive land use within Bath & North East Somerset, with around 70% of the District's land area utilised for farming. In 1994 the agriculture workforce was around 2000. The trend has seen a decrease in the full time workforce and a big increase in seasonal or casual labour representing nearly 50% of the total. B2.46 As elsewhere in the country farming in the area has come under increasing pressure due to factors such as global competition, a slump in commodity prices, livestock disease, falling financial support and growing demands to manage the countryside so that its beauty and richness are enhanced. B2.47 The Local Plan emphasis is therefore to support changes in the industry to enable it to become more competitive, flexible and diverse. The policies of the Plan seek to reconcile the twin economic and environmental roles of rural areas and thus promote sustainable development. Agricultural DevelopmentB2.48 Agriculture plays an important role in the local economy and provides the basis for other economic activities in the plan area. It is the largest user of land in the District and is the use that most influences the physical appearance and character of the landscape. B2.49 The 1995 Permitted Development Order grants planning permission for certain types of agricultural development on farm units of 5 hectares or more. However, these permitted development rights cannot be exercised in many cases without the farmer or other developer notifying the Council. This notification allows the Council to decide whether or not details of the development need to be submitted for approval. In the case of holdings of less than 5 hectares permitted development rights are strictly limited. Permitted development rights do not apply when buildings, structures or works are particularly tall or large in floor area nor generally to livestock buildings, or to slurry tanks and lagoons which are located within 400 metres of housing and other ‘protected buildings’ normally occupied by people. B2.50 The distinctive character of the landscapes within the District, the relatively dense pattern of farm holdings, important historic environment, rich biodiversity and network of public rights of way combine to put great emphasis on achieving a high standard and sensitivity in the siting, design and appearance of agricultural buildings and other development. B2.51 A range of policies in the Plan will apply to agricultural development but Policy ET.6 emphasises the need to consider siting, design and appearance either under the prior notification system or normal planning applications. Policy NE.16 seeks to conserve the District's resource of valuable agricultural land.
Non-Agricultural Development on Agricultural LandB2.52 PPG7 puts forward advice on the differing effects that non-agricultural development can have on farming. Severance and fragmentation of holdings can have a significant impact on farm businesses particularly in districts like B&NES where units are generally small. Trespass and other forms of disturbance can be damaging to agriculture and the loss of buildings and other fixed equipment can reduce efficiency. B2.53 These agricultural considerations are set out in policy ET.7. The policy also seeks to minimise the potential for future conflict between new development, especially housing, and the agricultural activities of the District's many farms, for example the silage or slurry storage facilities associated with dairy or other livestock units. B2.54 Policy ET.9 lays down criteria for assessing proposals to re-use or adapt existing agricultural buildings outside defined settlements for non-agricultural purposes. Because of the relatively dense pattern of farm holdings in the District the erection under permitted development rights of replacement buildings could lead to a proliferation of structures and an erosion of landscape character and quality as a consequence. This is a further factor acknowledged in Policy ET.7.
Farm DiversificationB2.55 With the existing pressures on traditional agriculture farmers increasingly look to diversify beyond the agricultural industry in order to supplement income giving some protection against market fluctuations. B2.56 PPG7 points out that that increasingly farm diversification is vital to the viability of many farm businesses and the 2000 Rural White Paper stresses the need for planning to take a positive approach to it. In line with the Council's desire to promote the rural economy Policy ET.8 seeks to support farm diversification where it would not have an adverse impact on the environment and social and economic vitality of rural areas. B2.57 Businesses such as food processing and packing, farm shops, equestrian facilities, sporting facilities, nature trails, craft workshops, and holiday accommodation may be suitable. However businesses not normally associated with farming can be appropriate - for example information technology, and light industrial uses. Many diversification schemes can make use of farm buildings while others will utilise farmland. B2.58 Schemes are often likely to be in the open countryside away from existing settlements where new buildings are not usually acceptable. New or replacement buildings, necessary for a diversification scheme to proceed or expand may be acceptable provided they satisfy sustainability objectives of the Plan, respect their rural surroundings and are within an existing complex of buildings. Planning considerations will vary depending on location and the proposals and a range of Local Plan policies may apply including those for the Green Belt and access. As indicated in PPG13 schemes will be more acceptable where it enables access by public transport, walking and cycling.
Re-use of Rural BuildingsB2.59 PPG7 advises that the re-use and adaptation of existing rural buildings has an important role in meeting the needs of rural areas for commercial and industrial development, as well as for tourism, sport and recreation. It can reduce demands for new building in the countryside, avoid leaving an existing building vacant and prone to vandalism and dereliction, and provide jobs. It advises that re-use should apply both to traditional and modern buildings provided that their form, bulk and design are in keeping with their surroundings and they respect local building styles and materials. B2.60 Structure Plan Policy 32 encourages the re-use especially for farm diversification. B2.61 In order for re-use to be acceptable a range of environmental issues will need consideration including impact on character of the area, the historic environment, wildlife, Green Belt and accessibility. The creation of a curtilage around a newly converted building, especially residential, can have a harmful effect on the character of the countryside and the setting of the building with the introduction of domestic structures and open storage. The Council will therefore consider the withdrawal of permitted development rights when granting permission for conversions. B2.62 Proposals for re-use of complexes of rural buildings with a large aggregate floor area or especially large individual buildings can have an unacceptable impact, whether individually or cumulatively, on the environment. They can result in dispersal of employment or residential activity, which could prejudice economic or social vitality of the existing towns and villages. This level of development will generally be resisted.
Farm ShopsB2.63 Farm shops can provide a useful service and assist in farm diversification. Planning permission for farm shops is not usually needed for farms selling their own produce. Permission is required for the sale of food or goods produced elsewhere or if it has been processed. B2.64 In many cases, the provision of farm shops can provide an alternative form of local shopping as well as supporting the rural economy. However they might also have an adverse impact on the viability of existing village shops. There are also issues related to their accessibility and impact on the environment and other policies in the Plan apply. Conditions may be imposed or legal agreement sought to limit the range and source of goods to be sold.
TOURISM/VISITOR ATTRACTIONSTourist AttractionsB2.65 Tourism makes a major contribution to the economy of B&NES and its continuing growth generates a range of job opportunities. In recent years there has been around 1 million staying visitors and around 2.8 million day visitors to the area each year, who contribute over £195 million annually to the local economy. There are around 6,500 jobs in the tourism sectors. B2.66 Bath especially, with its historic and architectural heritage as recognised by its World Heritage Site status, has a vibrant tourist economy. The revival of the Spa in Bath will provide a unique opportunity to develop sustainable, year-round tourism. The high quality landscapes of the district is recognised in its two Area of Outstanding Natural Beauty (AONB) designations, the country pubs, and the network of long distance footpaths also provide a tourist draw. B2.67 Tourism, nationally and internationally, is likely to grow, as is the competition from other traditional and emerging tourism destinations. In addition to the unique opportunity offered by the re-opening of Bath Spa and the potential of other ‘health tourism’ initiatives, it is important to be alert to new opportunities to maintain Bath’s position as a premier destination and to foster tourism in other parts of the District. B2.68 Norton-Radstock, as the centre of the former Somerset coalfield and its railway system has a unique heritage, which is displayed and interpreted at the Radstock Museum in the restored Market Hall. The redevelopment proposals in central Radstock have the potential to foster tourism growth and to support developments such as the Sustrans cycle trail and an Arts & Crafts Centre. The Tourism Development Plan for Norton-Radstock highlights the opportunities of developing a series of walking trails, which begin and finish in Norton-Radstock and link with established trails, such as the Limestone Link (see Policy SR.9). B2.69 Successful tourism depends on a high quality environment, which can act as a positive force for environmental protection and enhancement. It is therefore essential that a balance is maintained between realising the benefits of tourism and conserving the environment and amenity of residents. B2.70 A draft Tourism Strategy for Bath & North East Somerset has been completed for 2001-2006. The 'Vision' and Primary Aims for tourism are set out in Quick Guide 7.
B2.71 The Council, in partnership with the Economic Forum, is investigating the viability of a purpose built Conference Centre in Bath. If viable, such a Centre would strengthen Bath’s position as a conference destination, encourage high value, year-round business tourism and lessen the dependence of the area as a ‘leisure destination’. B2.72 Other critical factors and opportunities are:
B2.73 Schemes for the development of tourist facilities in urban areas will be acceptable provided they meet the requirements of Policy ET.11 and other Local Plan policies. In rural areas, such development will need to be balanced with the objective of conserving rural character.
Vistor AccommodationB2.74 Bath is served by a wide range of visitor accommodation types, including good quality hotels, guesthouses, hostels and self-catering properties. Recent hotel developments have assisted the restoration of historic buildings (e.g. the Royal York Hotel) and the regeneration of redundant land (e.g. the hotel development at Brougham Hayes/Lower Bristol Road). B2.75 With the advent of the Spa, growth in demand for tourist accommodation in Bath is projected to be at 2.5% a year. Based on this rate, Bath could accommodate additional hotel space without a detrimental effect on the existing accommodation supply. In the knowledge that Bath is already well supplied with smaller and medium size accommodation establishments, the ‘need’ in Bath is primarily for larger hotels. A hotel with major conference facilities or a dedicated ‘spa’ hotel would in particular make a positive contribution to the local tourism infrastructure and generate new business. B2.76 More generally, within North East Somerset, there has in particular been a growth in self-catering, farmhouse and pub accommodation, thus providing an opportunity to diversify and to support therural economy. The Tourism Development Plan for Norton-Radstock identifies that the volume of quality accommodation is limited and in the short term the emphasis should be on improving and expanding existing accommodation. B2.77 Outside Bath, there is therefore scope to encourage new developments in certain sectors, such as self-catering, pub accommodation and good quality caravan and camping facilities.
B2.78 It is important to secure a proper balance between demand for tourist accommodation on the one hand, and protecting permanent residential accommodation and safeguarding the environment and amenity of local residents on the other. This is a particular issue in Bath where the City's ability to absorb increasing numbers of visitors at peak times is limited without having a detrimental effect on residential amenity and character. B2.79 The Local Plan reflects the need to protect the existing housing stock and ensure that tourist development does not result in a reduction in the number of dwelling spaces. This is especially significant in Bath given the shortage of land available for development in the City. B2.80 A larger house in single family occupancy (i.e. 4 or more bedrooms), with adequate off-street parking within its curtilage, or with adequate on-street parking (Policy T.26), may be considered suitable for use as an hotel or guest house with an unspecified number of bedrooms. This is provided part of the property is reserved as one or more self-contained residences. B2.81 In the case of smaller houses (i.e. less than 4 bedrooms) in single family occupancy where it is proposed to use vacant bedrooms for bed and breakfast, the Council will usually seek to restrict the impact of the use on the neighbourhood in terms of noise and increased on-street parking. This will be achieved by strictly limiting the number of guests and requiring the proprietor to continue to live in the house. The proposal should therefore specify the number of bedrooms to be used for bed and breakfast accommodation. B2.82 In considering guesthouse and bed and breakfast proposals, it is important to ensure that tourism accommodation does not harm existing residential amenity, and that the character of an area is not adversely affected by insensitive parking provision or unsightly extensions. B2.83 Competition for trade can result in a large number of advertisements, and the provision of parking within front gardens can involve demolition of garden walls and the loss of trees and hedges which can detract from the appearance of an area. Noise generated by hotels, guesthouses and bed and breakfast accommodation, can be considerable and can result not only from activities within the premises but from people and vehicle related activity. This will be taken into account when determining applications (see Policy ES.12). B2.84 Access to public transport will also be a consideration, particularly in farm diversification schemes (see Policy ET.8).
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