Bath & North East Somerset Local Plan Revised Deposit 2003

Chapter B2. Economy, Tourism & Agriculture

BACKGROUND

Policy Context

National Planning Guidance

B2.1 As set out in PPG1, a key objective of sustainable development is the maintenance of high and stable levels of economic growth and employment and to ensure that the benefits of economic growth can be shared by everyone (see Overall Strategy section).

Regional Guidance

B2.2  The Regional Planning Guidance (RPG) highlights the potential of the Northern sub-region, within which B&NES Bath & North East Somerset lies, to continue as a major focus of economic growth. It anticipates that economic expansion in this part of the region is likely to be above the regional average. At the same time, it emphasises the need to manage development pressures so that the environmental qualities of the South West are conserved, both for their own sake and to underpin the region's attractiveness as a place to live and work.

B2.3 The South West Regional Development Agency has prepared a strategy for the South West which seeks to promote business competitiveness, increase productivity, and address problems of skills shortages, social exclusion and physical decay.

B2.4 The JRSP provides a strategic locational strategy which guides the broad location of employment generating development. Particularly relevant JRSP policies are 1, 2, 6, 30, 31 and 32. The implications for the detailed location and scale of new development are set out in the Overall Strategy section of this Local Plan.

Local Policy Context

B2.5 A long term vision for the District's future is described in the Local Agenda 21 Strategy for B&NES Bath & North East Somerset, Change 21.  Key points highly relevant to the District's economy are summarised in Quick Guide 5.

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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. The Council has a 10 year Economic Strategy "Towards 2013 - A Thriving Sustainable economy for Bath & North East Somerset" covering the period 2003 – 2013. 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 Economy

B2.7 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.

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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 Higher Education sector.

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 particularly in Bath but also in Radstock, 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 and international 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.

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Travel to Work

B2.14 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 Bath & North East Somerset 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 Objectives

B2.16 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 the District, this means ensuring:

• a range of opportunities in terms of size and location are available for employment land development;

• retention and enhancement of opportunities to work locally;

• the economic role of Bath as a major business and employment centre is retained and enhanced;

• sufficient employment land is available in the Norton-Radstock area to enable regeneration and in Keynsham to provide greater opportunities for residents to work locally;

• there are sufficient employment opportunities in rural areas to sustain and enhance economic vitality; and

• land is available and well-located to encourage regeneration.

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.

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MAINTAINING A VIBRANT ECONOMY

B2.18 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. This approach is reflected in Policy GDS.1 which allows for mixed-use schemes on a few large sites where there are greater benefits to the community and there is long term benefit to the economy.

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.

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B2.28A The Business Location Requirements Study 2003 (BLRS) provides an analysis of local employment trends up to 2011, how much land the market will demand and what types of site will be in demand. The study addresses the demand for office and industrial uses which are referred to as business space uses. The Local Plan uses this as a basis for defining the types of business uses which are the subject of Local Plan employment land safeguarding policies. Quick Guide 6B sets out in detail the Local Plan definition of business use. These different business uses generally, although not always, occupy different types of premises. Offices occupy office type accommodation, industrial and distribution activities occupy factories and warehouses, and other business space uses occupy a range of similar sites and premises specific to their need eg coach depots, car hire and builders’ yards.

District-Wide

B2.28B The study concludes that between 2001-2011 industrial employment in the District will fall by 1,200 jobs (10%).  Office sectors are expected to expand providing 1,200 extra jobs (6%). Non-business space activities will grow by 4,600 jobs (11%).  The distribution of these changes throughout the District and anticipated changes in floorspace requirements are set out in Table 1A.

Table 1A: Employment Change and Floorspace Requirements (sq. ms.) 2001-2011

B2.28C In Bath, where the greatest pressures for redevelopment of employment land exists, the floorspace figures are further influenced by continuing losses of business space floorspace to other uses.  Based on recent trends for office sectors, this is estimated to be 1,500 sq ms per annum and for industrial sectors 4,500 sq ms.  In addition, where there is a net requirement for additional floorspace, a 50% allowance for choice and variety is needed to ensure future economic growth can be realised.

B2.28D Policies in this section of the Local Plan therefore aim to ensure that an adequate supply of industrial and office sectors floorspace is available to meet the projected requirements during the Plan period.  They include all employment uses other than those defined as non-business space sectors as set out in para B2.28A above.  It therefore includes a range of sui generis uses as well as the usual B1, B2 and B8 uses.  Between them, the industrial and office sectors require a range of types and sizes of business premises.  Safeguarding such a range is essential if the economy is to retain vitality and diversity.  

Office Sectors in Bath 

B2.28E While policies ET.2 and GDS.1 make provision for new office development, these together with other potential windfall sites are not all likely to come forward in the short to medium term due to market conditions.  Even as part of mixed use sites, the construction of speculative office development is not guaranteed as has been witnessed over the last 10 years.

B2.28F It is therefore important that until economic conditions result in new supply coming forward on strategic allocations in GDS.1 in the longer term, particularly Western Riverside , office supply is safeguarded.  The BLRS confirms that the preference is for city centre sites which are accessible and provide a variety of accommodation and it will be important to prevent any substantial losses of City centre sites during the Plan period.

B2.28G Pressures for uses have in the past resulted in the loss of office floorspace and residential values continue to create pressure for change of use of the existing stock of offices located within and adjacent to the central area of the city. Policy ET.1A therefore safeguards existing office floorspace in a defined core office employment area, within the central area of Bath .

Industrial Sectors in Bath

 B2.28H Bath contains three large multi-occupied core industrial locations which are located in the River Avon , A4/A36 corridor in the western part of the City.  They consist of Lower Bristol Road , Locksbrook Road and Brassmill Lane , which have a total area of some 21 hectares.  The BLRS recognises that industrial sector employment will fall during the 2001-2011 period. This is the equivalent of about 4 hectares.

B2.28I If the recent historical rate of industrial losses of approximately 1 hectare per year (1996-2001) continues, it is clear that the supply will shrink faster than demand.  In addition, there has been no development of new industrial floorspace since the 1980s.  Together, these factors suggest that industrial sectors could be forced out of Bath by a combination of higher land values, need to accommodate non business space activity and lack of alternative site provision.  This will result in reduced local employment opportunities and likely increased outward commuting.  Because of the local and indigenous nature of many of the small to medium sized businesses, employment land allocations in the Norton-Radstock and Keynsham areas are unlikely to attract significant relocations from Bath .  Closure of larger companies in Bath has seldom resulted in relocation to other parts of the District.

B2.28J There is a strong case to safeguard these core employment sites in order to retain sufficient land to meet industrial sector demand. However, the Lower Bristol Road core area has become run down over a long period of time. With older buildings and dereliction, there is a need to regenerate the area through the provision of mixed-use developments, including the provision of offices, housing, non business space activity, community facilities and transport infrastructure. It also presents the opportunity to enhance both the important A36 'gateway' route into the City and the riverside area.  This site is therefore allocated under Policy GDS.1.  Policy ET.1B safeguards for employment uses the Locksbrook Road and Brassmill Lane core employment sites.

Small Employment Sites in Bath Outside Core Employment Areas

B2.28K Outside these core sites, there are also a range of small employment sites spread throughout the City, often located within residential areas.  For policy purposes, these are defined as being 0.4 hectares or less in area.  Frequently in fairly low-grade but appropriately functional and relatively inexpensive accommodation, surveys have indicated that small sites provide local jobs and services and meet local markets.  These factors, together with reducing the need to travel and contributing to mixed-use environments, mean that such sites are important in meeting sustainable development objectives. Also occupiers may not be able to afford the cost of alternative replacement accommodation and there are few opportunities for alternative provision.

B2.28L Monitoring has indicated that a number of these small sites have been developed or have come under pressure for residential development in recent years, with no replacement.  Policy ET.1C therefore safeguards such sites from development except where exceptional circumstances apply.

Other Employment Sites in Bath

B2.28M There remain a limited number of existing or former employment sites over 0.4 ha in area in Bath which fall outside the scope of Policies ET.1A, ET.1B and ET.1C.  These tend to be large freestanding sites which contribute to the mix of uses in the area and make a valuable contribution to employment. Some of the larger sites have fallen out of use and have been allocated for mixed-use development, e.g. at Rush Hill.  Should others come forward for development in the Plan period they could provide opportunities for mixed-use developments incorporating employment uses. Any proposal will be assessed against Policy ET.1D.

Office Sectors - Keynsham, Norton-Radstock and Rural Areas

B2.28N Outside of Bath, the demand for office development is of a much smaller scale and there are opportunities in the two towns to meet demand on sites allocated in Policy GDS.1.  Whereas the Somerdale site allocated at Keynsham meets more than local need, its locational advantages present the opportunity for a high profile campus which could attract demand from a much wider catchment, helping to increase local jobs and reduce outward commuting.

B2.28O Norton-Radstock and the rural areas are more likely to attract small scale office development.  In rural areas, this is likely to be through conversions, rural diversification or redevelopment of existing industrial sites.  Existing office uses in Keynsham, Norton-Radstock and Rural Areas are subject to safeguarding Policies ET.1C and ET.1D.

Industrial Sectors - Keynsham, Norton-Radstock and Rural Areas

B2.28P As for Bath, a decline in industrial sectors is identified in Keynsham, Norton-Radstock and the rural areas. 

B2.28Q At Keynsham, there is only a limited existing supply of industrial sites, with the Somerdale Chocolate Factory and the Ashmead Park Industrial Estate in the east of the town providing the bulk of industrial sector floorspace.  The retention of these sites and other employment use is essential if the large scale of outward commuting is to be tackled.

B2.28R Allocations and existing commitments in Norton-Radstock (see paras B2.35-2.36) would indicate an oversupply of land. However, Norton-Radstock still retains a strong industrial presence, with over 25% of the workforce (approximately 5600 people) employed in manufacturing where printing, packaging, engineering and electronics are important sectors. Whilst there has been a gradual decline in industrial employment since 1993, when just over 7000 people were employed, there remain a number of thriving and relatively modern trading estates, notably in the Westfield and Radstock Road areas.  The Coomb End area also maintains a strong employment presence at Radstock, but its particular environmental problems need to be addressed through a separate regeneration strategy (see para B2.41 and Policy ET.3A).  In addition, a number of larger industrial sites at Welton and Norton Hill retain significant employment from established companies.  For the town to retain its employment base, these areas, together with small more isolated sites, need to be subject to safeguarding policies.  This will accord with the JRSP strategy to enhance economic development opportunities in the area and help reduce the need to travel.

B2.28S In rural areas and villages, industrial sites also provide significant industrial sector employment. They vary from large sites within or adjoining villages such as the Printing Works at Paulton, to freestanding industrial estates in the countryside, e.g. Hallatrow and Burnett Business Parks and Clutton Hill Farm. Some of these are a result of conversions of buildings formerly in other uses or consist of long established industrial sites. They often provide relatively low-cost premises and make an important contribution to providing employment in rural areas. There is continuing pressure to redevelop sites within villages for housing, which if uncontrolled will undermine the objectives of providing local employment opportunities in rural areas, contrary to Local Plan objectives on providing balanced communities.  It is therefore considered necessary to continue to safeguard existing industrial sector sites in Keynsham, Norton-Radstock and rural areas through Policy ET.1D.

B2.28T This notwithstanding, in some cases development of appropriate sites could provide modern offices or industrial units as part of a comprehensive mixed-use scheme. Many of the sites within or immediately adjoining settlements are therefore excluded from Housing Development Boundaries in recognition of the need to retain employment uses and economic vitality. However, Policy HG.4 recognises that if a site is no longer to be retained for employment use under Policy ET.1D or other Local Plan policies, then residential development forming part of a mixed-use scheme may be acceptable outside the Housing Development Boundary.

B2.28U As in Bath there are also a range of small sites outside larger employment estates which contribute to meeting sustainable development objectives.  These will be subject to Policy ET.1C and if an alternative use is considered appropriate, Policy HG.4 may apply.  

EMPLOYMENT OPPORTUNITIES IN AND GENERAL DEVELOPMENT SITES

 B2.29   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 as part of a mixed uses scheme (Policy Policies ET.1A-D 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.

Bath

B2.31   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 Policycies ET.1A-D above is the Council's primary approach in ensuring land is available to meet economic development needs for the Plan period.  There are also, in particular, three four 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 (site B1), land at Lower Bristol Road (site B12), MoD Foxhill in Combe Down (site B2) and at Rush Hill in Odd Down (site B3) (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.

Keynsham

B2.33   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 The most important such opportunityies for employment development in the town is 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.  Therefore, whilst a mixed-use scheme is considered acceptable, the site is proposed primarily for employment uses as set out in Policy GDS.1/K1.

Norton-Radstock area

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 Development at Westfield Industrial Estate is nearing completion and very comparatively 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 & B8 for employment uses on the western edge of the urban area at Old Mills.  This will be the prime employment development opportunity in the area for the Plan period.  The Local Plan also allocates a smaller site at the former Sewage Works at Welton Hollow for employment uses as well as allowing for the rounding off of Midsomer Norton Enterprise Park . 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 11 ha of employment land exists at Peasedown St. John, originally as part of which originated through the comprehensive development scheme. This is supplemented by a further 5 ha allocated on adjoining land. There are also significant redevelopment opportunities at the printing factory site at in Paulton. 

Rest Of The District

B2.37A The only allocation outside of Bath , Keynsham and the Norton-Radstock area is the requirement for the provision of workshops as part of the Former Radfords site at Chew Stoke, as described in para C1.39.  Elsewhere, smaller-scale employment opportunities will be facilitated by Policies ET.3-ET.9.  

Summary of commitments

 B2.38   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). The key employment development opportunities, both those with planning permission and allocations under Policy GDS.1 are shown on Diagram 6.

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OTHER EMPLOYMENT DEVELOPMENT IN URBAN AREAS

B2.39 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.

Coomb End

B2.41A In the Coomb End area of Radstock there are particular environmental problems.  This part of the town consists of a variety of intermingled uses, but notably manufacturing, residential, retail and other business uses.  The area appears rundown and neglected in parts and there are severe highway constraints which cause particular problems for pedestrians and highway safety.  These constraints also limit opportunities for new development. In light of the strategic objectives for the area of seeking regeneration and addressing the outcommuting, the Council normally seeks to limit the loss of employment and (Policies ET.1A-D).  However, it is acknowledged that the particular problems of this area should be recognised in the Local Plan and therefore an Employment Regeneration Area is designated at Coomb End.  The objective of this Policy is to safeguard the employment benefits of the area whilst at the same time providing flexibility to facilitate environmental and infrastructure improvements.

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A BUOYANT RURAL ECONOMY

B2.42 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 & 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). Any schemes coming forward under this Policy will be subject to a range of other Local Plan policies which seek to ensure sustainability in new development, e.g. policies seeking a high standard of design, that surrounding character and amenity is protected and safe access is achieved.  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.

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B2.44 In line with Government guidance and the new 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 ET.9).  Replacement building will be permitted under certain circumstances and where this involves a building of a similar size on the same site.  New development will only be permitted in the context of Policy ET.8 as farm diversification or where it involves limited expansion, intensification or redevelopment of existing premises.  In all cases it must be of a small scale and a design appropriate to its surroundings.  Such facilities should have the capacity to deal with anticipated waste output and not cause pollution or adversely affect health or safety.

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AGRICULTURE

B2.45 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 Development

B2.48 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.

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Non-Agricultural Development on Agricultural Land

B2.52 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 Bath & North East Somerset 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.

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Farm Diversification

B2.55 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  Farm diversification schemes can cover a range of new uses: businesses such as food processing and packing, farm shops, equestrian facilities, sporting facilities, nature trails, craft workshops, information technology and light industrial uses 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.

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Re-use of Rural Buildings

B2.59 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.

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Farm Shops

B2.63 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.

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TOURISM/VISITOR ATTRACTIONS

Tourist Attractions

B2.65 Tourism makes a major contribution to the economy of B&NES Bath & North East Somerset and its continuing growth generates a range of job opportunities. In recent years there has have 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 are 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 opening unique opportunity offered by the re-opening of the Bath Spa offers a unique opportunity and the potential of for other ‘health tourism’ initiatives, and associated development in the vicinity of the site.  In addition, 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.  The Council has also prepared a Local Cultural Strategy which seeks to promote and achieve cultural development within the District.  The Strategy's definition of culture includes a range of tourist attractions such as sport and leisure, the built heritage, museums, arts and entertainment, and the 'public realm' including parks and open spaces.

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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:

• Developing Bath & North East Somerset’s position as a centre for arts and culture, including the enhancement of the Theatre Royal, the Guildhall area and the provision of workshop/display space for local arts and craftspeople.

• Maintaining and developing Bath’s position as a centre of sporting excellence.

• Sensitive use and promotion of the River Avon, the Kennet & Avon Canal and the Chew Valley, and allowing for ecotourism in rural areas where it is done in a sustainable way and meets with the Local Plan’s locational strategy.

• Developing the existing network of walking and cycling routes, including an expansion of the heritage trail in Radstock.

• Coach management plan, including investigation of coach drop-off points and the possible relocation of the Coach Park in Bath.

• Safeguarding land for a museum in Keynsham,

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.

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Visitor Accommodation

B2.74 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 the rural 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.  Any scheme coming forward under Policy ET.12 must accord with a range of other policies in the Local Plan such as those which seek to protect local character and amenity, and ensure a high standard of design (e.g. Policies D.2, D.4, NE.1 and NE.12).

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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. Where appropriate, off-street parking will be sought (Policy T.26).  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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