Supplementary Planning Guidance
SAFEGUARDING LAND FOR
BUSINESS AND INDUSTRY
Approved June 2006
Supplementary Planning Guidance Safeguarding Land for Business and Industry (Approved by Council 22 June 2006)
Cardiff Supplementary Planning Guidance
Safeguarding Land for Business and Industry
Contents
Page Number
1
1
Introduction
2
Policy Context
2
3
Scope of Guidance
4
4
Policy Criteria Used to Assess Planning Applications
6
5
Protected Employment Areas
11
6
Sites With Alternative Land Use Potential
13 Appendices
A
Wales Spatial Plan
15
B
National Economic Development Strategy
16
C
South East Wales Development Strategy
17 D
Development Plan Policies
18
E
The Cardiff Unitary Development Plan
20
F
Use Classes Order (Business & Industrial Uses)
22 G
Consultation on Draft SPG
23
H
Consultation Representations and Responses
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Introduction
1.1 This Supplementary Planning Guidance Note (SPG) relates to policies
concerned with the alternative use of business, industrial and warehousing
land in the existing development plan for Cardiff. The SPG has been drafted
in response to the increasing numbers of applications for the alternative use of
business and industrial land. It is intended to identify the developments to
which the policies apply, and provide advice to prospective applicants and the
general public on the criteria against which proposals for the alternative use of
business, industrial and warehouse land will be considered.
1.2 This guidance has been the subject of consultation as outlined in Appendix G
and Appendix H identifies the main changes made in response to the
comments received. It was approved by the Council on 22 June 2006.
1.3 The Welsh Assembly Government supports the use of SPG to set out detailed
guidance on the way in which development plan policies will be applied in
particular circumstances or areas1. SPG must be consistent with development
plan polices and national planning policy guidance. It may be taken into
account as a material planning consideration in planning decisions.
1.4 Policies in existing development plans to which this SPG relates are identified
in Appendix D.
1.5 The Council placed the Cardiff Unitary Development Plan on deposit in
October 2003. However, following introduction of the European SEA (Strategic
Environmental Assessment) Directive, in May 2005 the Council resolved, with
the agreement of Welsh Assembly Government to cease preparation of the
Cardiff UDP and commence preparation of a Local Development Plan (LDP).
The relevance of the UDP to this guidance is addressed in Appendix E.
1
Unitary Development Plan Wales (NAW, February 2001) paragraphs 2.12- 2.16
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Policy Context
National Policy
2.1 Planning Policy Wales (PPW) sets out the Government’s planning policies in
Wales. In terms of the economy, it states that authorities must ensure that:
"......sufficient land suitable for development for enterprise and employment
uses and well served by infrastructure is designated for employment use so as
to meet both identified and as yet unidentified needs; and that new
development for enterprise and employment uses is located and implemented
in accordance with sustainability principles."
2.2 In terms of planning for sustainability, PPW sets out a number of policy
objectives which are directly relevant to this SPG. These include : locating
developments so as to minimise the demand for travel; promoting access to
employment areas; and, promoting quality, lasting, environmentally-sound and
flexible employment opportunities.
National Economic Development Objectives
2.3 "People, Places, Futures", The Wales Spatial Plan sets out a strategic agenda
for the country for the next 20 years covering a range of policy sectors. A
number of action points are developed for each area of Wales, Cardiff being a
key part of the South East - The Capital Network area.
The key
considerations in terms of Cardiff's economy are detailed in Appendix A.
2.4 The National Economic Development Strategy
- "A Winning Wales",
published by WAG, sets out a national vision for economic development :
"To achieve a prosperous Welsh economy that is dynamic, inclusive and
sustainable, based on successful, innovative businesses with highly skilled,
well-motivated people."
2.5 The key objectives and priorities which derive from this strategy are detailed in
Appendix B.
Regional Policy
2.6 The South East Wales Economic Forum's South East Wales Development
Strategy sets out the issues which require addressing in order to retain a
prosperous and competitive region.
Local Planning Policy
2.7 Relevant development plan policies are listed in Appendix D. In particular, this
guidance relates to policy 36 of the Local Plan and policies E1 and E3 of the
South Glamorgan (Cardiff Area) Replacement Structure Plan. Policies 37 and
38 of the Local Plan are also relevant.
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Local Economic Development Objectives
2.8
Cardiff Council's Economic Development Strategy and Economic
Development Plan set out aims and objectives for the continued economic
growth and regeneration of the City.
2.9 The key aims of this policy framework are to :
• sustain and enhance a modern, diverse and globally competitive economy,
able to increase and spread future prosperity throughout the City, its
hinterland, and all Wales; and,
• create and enhance sustainable economic opportunities for Cardiff, its
communities and its citizens.
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cope of Guidance
3.1 The SPG provides guidance on the assessment of alternative development
proposals on business, industrial and warehousing land. It applies to all land
within the B1, B2 and B8 Use Classes Order (Appendix F) and therefore
includes commercial office space.
3.2 Business, industrial and warehousing land includes:
• land identified for such use on the Local Plan Proposals Map; and,
• land in existing use for B1, B2 and B8 purposes.
3.3 The guidance relates to applications for the change of use of this land to
alternative proposals such as housing, retail and leisure. It specifically
expands on criteria contained in development plan policies designed to assess
demand and need. Chapter 4 provides further details of the type of supply
information expected from Agents/Applicants.
3.4 Taking into account demand and need considerations, the guidance identifies
2 main types of employment location, strategic employment sites and locally
important employment sites, which the Council will seek to retain for B1, B2
and B8 purposes. Chapter 5 provides further details.
3.5 Strategic employment sites have the following characteristics:
• allocated in the development plan
• contained in the Council's landbank
• required in order to fulfil the Council's economic development aims and
objectives as set out in the Corporate Plan, Economic Development
Strategy and Economic Development Plan
• accessible to the rail freight facilities
• accessible to port facilities
• direct access to M4 motorway and existing/proposed primary road
network
• accessible to Cardiff International Airport
• accessible to public transport links to the city centre / Cardiff Bay via
bus and train links
3.6 Locally Important Employment Sites have the following characteristics:
• accessible to local workforce by a range of modes of transport,
including walking, cycling, and public transport, as well as the private
car
• well located to existing and proposed residential areas
• in areas of high unemployment
3.7 The guidance recognises that for some sites, their sole use for business and
industrial purposes may no longer be viable. In such cases the Council will
adopt a more flexible approach and, where appropriate, will seek to secure a
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mix of land uses, including business/industrial provision, before considering
purely residential schemes. Further information is contained in Chapter 6.
3.8 The SPG also provides further information on landuses which may not be
suitable as part of mixed use schemes (e.g., transport depots and utilities
infrastructure) and complementary facilities in employment areas (e.g.
crèches, gyms, food kiosks, cafes etc).
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Policy Criteria Used To Assess Planning Applications
4.1 All proposals for the alternative use of existing and proposed business and
industrial land will be considered against 2 main criteria:
• whether there is demand for business, industrial or warehouse use on
an application site
• whether there is a need to retain the land for business, industrial or
warehouse use
Demand
Requirements from Agent/Applicant
4.2 When submitting an application for the alternative use of business, industrial
or warehousing land, the Applicant or Agent will be expected to provide a
statement to the Council to ascertain how long a particular site has been
marketed for employment use and the degree of interest.
4.3 Demand information from the Agent or Applicant usually takes the form of a
marketing report or correspondence from the relevant property agent. The
content should include :
•
•
•
•
details of existing occupiers, if any;
if appropriate, the length of time a property or site has been vacant;
the type of use which the property/site has been marketed for;
the amount of interest in the site during the marketing period - this
should detail the number of queries, the type of use sought, and if
known, the reason for not pursuing the initial query; and,
• whether the relocation of existing occupiers to other suitable
accommodation will be facilitated
Council's Demand Assessment
4.4 The Council’s Policy and Economic Development section hold a record of
individuals and organisations who have contacted the Council seeking
employment land and premises in Cardiff. The information provides a monthly
monitor of business and industrial demand in Cardiff and can be analysed by
size, employment sector and source and as such is one measure of market
demand for business, industrial and warehousing space in the City. A
separate database, compiled in association with commercial property agents,
monitors actual take-up rates as a consequence of the initial inquiry. This
data source will also be referred to when considering demand for alternative
use of employment land. Further details on the database can be obtained from
the Council's Policy and Economic Development section (tel: 029 20872661).
4.5 The Council's Policy and Economic Development section will also refer to
market surveys and current research in order to assess the potential demand
for investment on particular sites. Again, further details can be obtained by
contacting 029 20872661.
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4.6
T
he Council's Corporate Plan, Economic Development Strategy and Economic
Development Plan outline the key economic aims and objectives of the
Council and its partners. It recognises that the availability of land to facilitate
the expansion of existing firms and the attraction of new investors is a major
consideration if these aims and objectives are to be achieved.
4.7 A number of key strategic sites and premises are identified which contribute to
the aims and objectives of the Council's Economic Development Strategy.
These include sites at Callaghan Square, Celtic Gateway and Capital
Business Park. Other strategic sites across Cardiff will also contribute towards
meeting the goals of the Economic Development Strategy, the locational
characteristics of such sites are detailed in paragraph 5.4.
4.8 The Strategy identifies a number of higher value sectors which are considered
of key importance to the development of Cardiff's economy. These are
considered important for the main following reasons :
• ability to add value to the Cardiff economy;
• economic development potential;
• strategic importance to the continued stability and diversity of Cardiff's
economy;
• the potential for both current and future market growth; and,
• generate sustainable local employment for the citizens of Cardiff.
4.9 Market reports and the Economic Development Strategy indicate that Cardiff
should be aiming to attract higher value business and industry. Cardiff is well
placed to attract such occupiers for a number of reasons including: capital city
status; image; infrastructure; access to labour; skills base; and living
environment.
4.10 Higher value occupiers will require specific locations. The following table
provides a broad indication of the types of location which key sectors of the
economy require.
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Business/Industrial
Sector
Advanced Engineering
Requirements
•
•
•
Freight/Distribution
Electronics
Food and Drink
•
•
•
•
•
•
•
•
•
Biotechnology
•
Media/Publishing
•
•
•
•
Headquarter/Prestige
Office Occupiers
4.11
Safeguarding Land for Business and Industry
•
High quality manufacturing space in a business
park environment, close to main suppliers
High quality laboratory space for specialist testing
and product development
Expansion space and support for existing occupiers
in situ
Distribution space located near the M4
Distribution space located near to the Rail Freight
Terminal
Space near a large labour pool
High quality units in a business park environment
Space in close proximity to suppliers
High quality laboratory space for specialist testing
and product development
Small scale manufacturing units for niche local food
processing and packaging
Medium/large scale warehouse premises near to
strategic roads
Medium/larger units for the wholesale manufacture
of foods
Space within a high quality business park
environment
Demand for warehousing facilities for storage
Small workshop units for businesses starting up in
the creative industries
ICT infrastructure
Demand for industrial units with space for the
production of materials within a high quality
business park environment
Demand for highly accessible city-centre/Bay
accommodation
It is important to ensure that there are sufficient employment sites in these
locations of the right quality in order to ensure that Cardiff’s existing and future
economic development requirements can be satisfied.
Need
4.12
If demand has been established on a site for business, industrial or
warehouse use, this is taken as evidence of a need to retain the site for such
purposes. The site or premises evidently performs a role in meeting economic
development requirements and should be protected from alternative land
uses.
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4.13 Where demand has not been established, the need to retain a site for
business, industry or warehouse will be assessed against a range of criteria.
These include locational considerations and levels of local unemployment.
Evidently, published unemployment levels are unlikely to be challenged but
there may be considerations relating to the locational factors outlined below
which the applicant would wish to submit as supporting information.
Location
4.14 One of the overriding principles which underpins national planning guidance
and development plan policy is the promotion of sustainable development. In
terms of employment land, there are a number of key policy objectives, implicit
in development plan policies, which derive from PPW, and include :
• locate developments so as to minimise the demand for travel, especially by
private car;
• promote access to employment;
• foster social inclusion by ensuring that full advantage is taken of the
opportunities to secure a more accessible environment for everyone ....this
includes helping to ensure that development is accessible by means other
than the private car; and,
• promote quality, long-lasting, environmentally-sound and flexible
employment opportunities.
4.15 Sites and premises which are highly accessible by public transport, walking
and cycling and which remain viable locations for business, industrial and
warehouse development will be unsuitable for single use alternative
development proposals.
4.16 There is a particular need to retain offices and other employment uses with a
large workforce, where they are well located to non-car based modes of
transport. The city-centre and city centre fringe are particularly accessible and
provide an important pool of employment for large numbers of Cardiff's
residents.
4.17 A large number of employers in the city-centre are located within walking
distance of major public transport nodes such as Central bus station, Cardiff
Central rail station, and Queen Street rail station.
4.18 In order to ensure that these employment opportunities are sustained and
enhanced, there is a need to retain sites and premises in these locations.
4.19 Outside the city centre, there is also a need to retain sites, accessible by a
range of transport options, in employment use. Unless such sites are
protected, employment opportunities will increasingly become restricted to
locations with limited or no means of access other than the private car. The
consequences of such a land-use pattern include: an increase in travel to work
times; increased air pollution; increased congestion with a subsequent impact
on staff morale and business performance; and, increased social exclusion of
groups without access to the private car.
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4.20 These sites are considered particularly important as they:
• provide viable employment opportunities for a substantial walk-in
catchment;
• are well located in terms of access to regular public transport
services; or
• are well located in terms of the City's cycle routes
4.21 Other, more strategic sites, which employ persons from a wider catchment
area, are also important in terms of accessibility criteria. These sites are
important for a number of reasons, including:
•
•
•
•
•
access to rail freight facilities;
access to port facilities;
direct access to M4 motorway and primary road network;
access to Cardiff International Airport;
access to public transport links to the city centre via bus and train links.
Local Unemployment Levels
4.22 Cardiff has recently benefited from a strong economy which has resulted in
low unemployment rates. However, there are still parts of Cardiff which suffer
from deprivation. Southern areas of the City suffer particularly from a range of
deprivation indicators including higher unemployment levels.
4.23 The provision of local job opportunities will be a very important consideration
when assessing need in relation to the alternative use of viable employment
sites located in areas of high unemployment. Such employment sites not only
provide potential job opportunities for the immediate community but can also
contribute towards minimising the need for car travel.
4.24 The Council's Policy and Economic Development section produce a Monthly
Employment Statement which provides information on unemployment levels.
For further information, please ring 029 20873205.
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Protected Employment Areas
5.1 All proposals for the alternative use of existing and proposed business and
industrial land will be assessed against development plan policy. This will
particularly involve consideration of demand and need issues as outlined in
Chapter 4.
5.2 Based on an overall assessment of demand and need issues, with reference
to sections in Chapter 4, two categories of employment location have been
identified which the Council will seek to retain for business, industrial and
warehouse use. These employment locations can be classified as strategic
employment sites and locally important employment sites.
5.3 Applications for the alternative use of these sites will only be considered
where it can be demonstrated that the site is no longer a suitable or viable
location for business, industrial or warehousing use taking into account:
operational needs of B1, B2 and B8 occupiers; environmental constraints; and
amenity considerations.
Strategic Employment Sites
5.4 High priority will be given to the retention of strategic employment sites for
such use and proposals for alternative use are unlikely to be permitted without
strong justification. These employment locations have some of the following
characteristics :
• allocated in the development plan;
• contained in the Council's landbank;
• required in order to fulfil the Council's economic development aims and
objectives as set out in the Corporate Plan, Economic Development
Strategy and Economic Development Plan;
• accessible to the rail freight facilities;
• accessible to port facilities;
• direct access to M4 motorway and existing/proposed primary road
network;
• access to Cardiff International Airport;
• access to public transport links to the city centre / Cardiff Bay via bus
and train links.
Development Plan Allocations
5.5 Development Plan allocations are listed in Policy 33 of the Local Plan and
defined on the Local Plan Proposals Map. These allocations have been
selected specifically to meet the County's requirement for business, industrial
and warehousing land across the development plan period.
5.6 The City of Cardiff Local Plan, although with a 2001 "end date" continues in
force under transitional provisions. Local Plan allocations not yet taken up will
be reviewed, in line with advice in PPW, through the Local Development Plan
process. Until this time, residual allocations in the City of Cardiff Local Plan
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remain designated land for Cardiff's employment needs and should therefore
be protected.
Landbank
5.7 Sites which have received planning consent for business, industrial and
warehousing purposes but are as yet unimplemented, form the Business and
Industrial Landbank. The Landbank provides employment sites to meet
Cardiff's future economic growth. The Cardiff Business and Industrial
Landbank Monitoring report is produced annually and can be obtained from
Strategic Planning (tel: 029 20873456).
Locally Important Employment Sites
5.8 Proposals for single, alternative land uses on locally important employment
sites are unlikely to be permitted without strong justification. Such sites have
some of the following characteristics :
• accessible to local workforce by a range of modes of transport,
including walking, cycling, and public transport, as well as the private
car;
• well located to existing and proposed residential areas;
• in areas of high unemployment
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6
S
ites With Alternative Land Use Potential
6.1 It is recognised that not all business, industrial and warehousing land remains
well located for such purposes. There will be a number of sites across Cardiff
where their sole use for business and industrial purposes is no longer viable.
In such cases, and where this is demonstrated by the Applicant/Agent, the
Council will adopt a more flexible approach and, where appropriate, will seek
to secure a mix of land uses. Where mixed use development is considered
appropriate, any subsequent increase in land values can be used to secure
improved, modern business/industrial facilities which can potentially offer
higher employment densities.
Mixed Use Development
6.2 Where there is no demonstrable demand for business, industrial or
warehousing development, and where there is no overriding need to retain a
site solely in such use, mixed use development will be sought.
6.3 Mixed use development comprising a balanced approach to employment,
housing and community facilities will particularly be favoured. Such mixed use
schemes will need to secure a reasonable proportion of business and
industrial units, appropriate to each location and circumstance.
6.4 Mixed-use development proposals involving housing and employment will
need to demonstrate that the resulting residential amenity levels are
satisfactory and that there would be no unacceptable impact on the operating
conditions of existing and proposed businesses.
6.5 Schemes involving residential accommodation should also ensure that
necessary community facilities are accessible or can readily be provided on
the site. Contributions may be sought from developers towards the provision
of necessary facilities. Open space and affordable housing provision in
particular will need to be addressed, the relevant policy framework is provided
in Appendix D.
Residential Development
6.6 The Applicant or Agent should explain why mixed use development, including
a reasonable proportion of business and industrial space is not feasible on a
particular site. Where this is satisfactorily demonstrated, preference will be
given to residential development, supporting WAG's objective of securing new
residential development on previously developed land.
6.7 Residential development proposals will need to demonstrate that the resulting
residential amenity levels are satisfactory and that there would be no
unacceptable impact on the operating conditions of existing and proposed
businesses.
6.8 Residential schemes should ensure that necessary community facilities are
accessible or can readily be provided on the site. Contributions may be
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sought from developers towards the provision of these community facilities.
Open space and affordable housing provision will need to be addressed.
Alternative Land Uses Unsuitable for Mixed Use Schemes
6.9 Some development proposals may involve uses which are appropriately
located on business, industrial or warehousing land and which are unsuitable
as part of mixed use schemes. Such uses will mainly include developments
such as transport depots and utilities installations.
Complementary Uses in Employment Areas
6.10 The provision of child-care, open space, food, drink and leisure uses, of an
appropriate nature and scale within existing and new office, industrial and
warehousing developments is supported by development plan policy.
6.11 The complementary provision of food, drink and leisure uses will be
acceptable where there is an absence of such facilities in employment areas
and where such facilities provide a service to meet the needs of employees.
Appropriate leisure facilities may include gyms and indoor fitness facilities.
Appropriate food and drink uses may include kiosks, cafes and snack bars.
6.12 However, larger food, drink and leisure facilities which would be equally
attractive to non-employees would not be appropriate in existing and new
office, industrial and warehousing developments. Such proposals would have
to be assessed against relevant development plan policies.
Other Land Use Proposals
6.13 Other proposals for the alternative use of employment land will be assessed
against relevant development plan policy.
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Appendix A - Wales Spatial Plan
South East - The Capital Network
Vision
• "An innovative skilled area offering a high quality of life - international yet
distinctly Welsh. It will compete internationally by increasing its global visibility
through stronger links between the Valleys and the coast and with the UK and
Europe, helping to spread prosperity within the area and benefiting other parts
of Wales".
Key Propositions:
• The success of the area relies on Cardiff developing its capital functions,
together with strong and distinctive complementary roles of other towns and
cities.
• The linked challenges of low economic activity rates, skill levels and poor
health need to be tackled to address social exclusion and improve economic
performance in a lasting way.
Key Area Actions:
• Increase the transport capacity of the corridors and gateways to Europe and
beyond. This will include capacity enhancements on the M4 and A465
corridors through the Trunk Road Forward Programme as well as the
development of routes from Cardiff International Airport.
• Development should be avoided in areas vulnerable to future flooding in the
light of estimates of the impact of climate change following the advice in TAN
15 Development and Flood Risk.
• Employment site provision reviewed in consideration of this Plan and the WDA
Property Strategy to bring forward new proposals and reallocate sites where
necessary, optimise the potential of existing sites and develop proposals for
the location of a Premier Business Park in South East Wales.
Relevant National Actions:
• Increasing levels of economic activity, supported through the policies in "A
Winning Wales", " Learning Country" and "Reaching Higher", and the Welsh
Assembly Government's Report on Raising Economic Activity Rates (July
2004).
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Appendix B - The National Economic Development Strategy, "A
Winning Wales"
Vision
• To achieve a prosperous Welsh economy that is dynamic, inclusive and
sustainable, based on successful, innovative businesses with highly skilled,
well-motivated people
Key areas for action
• increase the knowledge, research and development, and innovation capacity
in all parts of the Welsh economy
• help more people into jobs to bring down our levels of economic inactivity
• build on our considerable strengths in manufacturing
• increase the number of jobs in financial and business services
• encourage the development of our country's green economy
• promote opportunities for Welsh companies to develop international trade
• support the social enterprise sector which can bring growth and opportunity to
disadvantaged communities in particular
• exploit to the full the potential of our major ports and encourage Cardiff International Airport to act as an international gateway • contribute to the UK Government's target to increase by 80% the amount of
freight moved by rail and to improve the efficiency and quality of the way we
move freight by road
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Appendix C - South East Wales Development Strategy, South East
Wales
Vision
The South East Wales Economic Forum's vision for South East Wales is: A region on the way to becoming one of the most prosperous in Europe, and providing opportunities for every individual, enterprise and community to share in that prosperity. Key Propositions • South East Wales will develop very strong business and academic links to the
high-growth, high-innovation, knowledge economies of Europe. This will be
facilitated by significant improvements in rail, road and air links, as well as by
very generous broadband connections and by academic success and
cooperation
• Within 10 years, South East Wales will have seen the emergence or
transformation of a limited number of key sectors, featuring innovative firms
generating sustained profits growth for investment. Between them they will
have significantly improved the region's growth rate
• Cardiff will be regarded as a true European capital, with an international
reputation and an international outlook, and rooted in a capital region which
fully represents the future as well as the traditions of Wales.
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Appendix D – Development Plan Policies
City of Cardiff Local Plan Policies (Adopted 1996)
Policy 36 “Alternative Use of Business, Industrial and Warehousing Land”
“Proposals for alternative use of existing and proposed business, industrial and
warehousing land will be assessed against the following:
i. the demand for and the need to preserve a range and choice and
quality of sites available for business, industrial and warehousing
development;
ii. considerations of scale, location, design, amenity and transportation;
iii.
within Cardiff Bay, approved proposals arising from area planning
briefs”
Policy 37 “Safeguards For Residential Amenity and Existing Industrial Areas or
Operational Docks”
“Where existing industrial areas or operational docks abut proposed residential sites,
appropriate amenity safeguards will be required in the design and layout of the
residential development, to ensure an acceptable standard of residential amenity
without compromising the operating conditions of the existing enterprises.”
Policy 38 “Land Within the Operational Docks”
“Land within the operational docks, as defined on the Proposals Map, will be
maintained, and developed for port-related industry”.
Policy 24 “Affordable and Special Needs Housing”
"Provision for an element of affordable housing and for housing for special needs
groups will be sought on all new housing sites of more than 50 dwellings where there
is evidence of need which can be satisfactorily met on the site and where site
conditions allow. The precise scale will vary from case to case and will be a matter of
negotiation."
Policy 31 “Residential Open Space Requirement"
"Provision of a satisfactory level and standard of open space will be sought on all
new housing developments, based on a minimum of 2.43 hectares of recreational
open space per 1,000 projected population. In assessing particular requirements
regard will be had to evidence of the extent and nature of need in the locality."
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South Glamorgan (Cardiff Area) Replacement Structure Plan (adopted 1997)
Policy E1 “Business and Industrial Sites”
“A range and choice of sites for business and industrial purposes should be provided
and protected, giving priority to the development of sites which have received
planning permission or which are allocated in the development plan, particularly
within the existing and proposed urban areas at Wentloog and Cardiff Bay. Any new
sites which are necessary:
i. to provide suitable employment uses within or adjacent to areas of
unemployment, deprivation and social stress; or
ii. to provide for inward investment,
should be accessible by public transport, comply with the locational requirements of
Policy MV1 and other development plan policies”.
Policy E2 “Community Workshops”
“The development of community workshops, training facilities and other forms of
community enterprise in areas of high unemployment, deprivation and social stress
will be favoured”
Policy E3 “Protection of Business and Industrial Land”
“Land allocated or identified for business and industrial purposes in the development
plan will be safeguarded for such use subject to other development plan policies.”
Policy E5 “Office Development”
“Office Development larger than 1,000 square metres will be favoured within the
Principal Business Areas of Cardiff City Centre and Cardiff Bay.”
Policy H5 "Affordable Housing"
"Within the overall level of housing provision set out in Policy H1 priority will be given
to facilitating the provision, in accordance with other development plan policies, of
affordable housing in appropriate locations"
Approved by Cardiff Council
19 22 June 2006
Cardiff Supplementary Planning Guidance
Safeguarding Land for Business and Industry
Appendix E – The Cardiff Unitary Development Plan
The Cardiff Unitary Development Plan was placed on deposit in October 2003.
Following introduction of the European SEA (Strategic Environmental Assessment)
Directive in 2004 and subsequent up-dated guidance from the Welsh Assembly
Government on development planning, the Council has sought the agreement of the
Assembly to cease preparation of the Cardiff UDP and commence preparation of a
Local Development Plan (LDP).
Guidance issued by the Welsh Assembly Government in respect of LDPs indicates
that where a UDP has been put on deposit it may remain a consideration in
development control decisions until such time as an LDP has been placed on
deposit. Generally, the weight to be attached to policies in emerging UDPs depends
on the stage of plan preparation, the degree of any conflict with adopted plans, and
the number and nature of any objections and/or representations in support of the
policy.
The following policies of the deposited Cardiff UDP have some relevance to this
SPG:
Policy 1.E “The Economy and Employment”
“The economy and employment base of Cardiff will be enhanced by:
a. promoting the provision of new offices within the Central and Waterfront
Business Areas and district centres;
b. providing 220 hectares of land for industry and warehousing, including new
allocations in South Cardiff, Wentloog and St Mellons and safeguarding
existing industrial and warehousing land for which there remains a need or
demand and which remains well located for such use;
c. promoting the provision of new and improved retail facilities of an
appropriate scale within the Central Shopping Area and district and local
centres in accordance with the retail hierarchy and retail strategy;
d. promoting the provision of major sports and visitor facilities within the
Central and Waterfront Business Areas and around the Bay waterfront”.
Policy 2.5 “Land for Industry and Warehousing”
“Land is allocated for industry and warehousing at the following locations:
a) Cardiff Docks
approx 16 hectares
b) Wentloog Corporate Park
approx 20 hectares
c) St Mellons Business Park (extension) approx 10 hectares
d) Ingleside, Pontprennau
3 hectares
Approved by Cardiff Council
20 22 June 2006
Cardiff Supplementary Planning Guidance
Safeguarding Land for Business and Industry
Policy 2.37 “Change of Use of Industrial and Warehousing Land”
“Development of industrial or warehousing land for other uses will only be permitted
if:
a. the land is no longer well located for industrial or warehousing use; or
b. there is no need to retain the land for industrial or warehousing use having
regard to the demand for such land and the requirement to provide a range
and choice of sites available for such use; and,
c. there will be no unacceptable impact on the operating conditions of an
existing business”.
Policy 2.38 “Provision of Complementary Facilities in Office, Industrial and
Warehousing Developments”
“Provision for open space, leisure, food and drink, and child-care facilities will be
appropriate in office, industrial and warehousing developments”.
Policy 2.23 "Affordable Housing"
"Where there is evidence of need, provision for an element of affordable housing will
be sought in all developments containing 25 or more new dwellings or with a site
area of or exceeding 1 hectare."
Policy 2.26 "Provision for Open Space, Recreation and Leisure
"Provision for open space, recreation and leisure facilities will be sought in
conjunction with housing developments"
Objections were received at deposit to all policies listed above apart from Policy 2.38
which received no representations.
Approved by Cardiff Council
21 22 June 2006
Cardiff Supplementary Planning Guidance
Safeguarding Land for Business and Industry
Appendix F – Use Classes Order (Business and Industrial Uses)
B1*
(a) Offices not within A2 (i.e. Financial & Professional Services)
(b) Research and development, studios, laboratories, high tech
(c) Light Industry
Permitted change to B8 (where no more than 235 sqm)
* A B1 use must be capable of being undertaken “in any residential area without detriment to the
amenity of that area by reason of noise, vibration, smell, fumes, smoke, soot, ash, dust or grit”.
B2
General Industrial Permitted change to B1 or B8 (B8 limited to no more than 235 sqm) B8
Wholesale warehouse, distribution centres, repositories
Permitted change to B1 (where no more than 235 sqm)
Approved by Cardiff Council
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22 June 2006
Cardiff Supplementary Planning Guidance
Safeguarding Land for Business and Industry
Appendix G – Consultation on the Draft SPG
Consultation on this guidance was undertaken between 14 February and 14 March
2006. A Press Notice was placed in the South Wales Echo on Tuesday 14 February
2006 and notices and copies of the draft guidance were placed in all Cardiff Libraries.
The draft guidance was also published on the Council's website.
Letters notifying that consultation was being undertaken on the draft guidance were
sent to Cardiff Councillors, the Welsh Assembly Government, Environment Agency,
Countryside Council for Wales, Community Councils in Cardiff and the following who
are known to have a general interest in planning in Cardiff, or a potential interest in
this guidance.
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
Arup
Associated British Ports
Atkins
Baker Associates
Barton Willmore Planning Partnership
Boyer Planning
Business in Focus
Business in the Community Wales
Cardiff Bus
Cardiff Chamber of Commerce
Cardiff Cycling Campaign
CBI Wales
CDN Planning
Coda
Commission for Racial Equality
Country Land and Business Association
Development Planning Partnership
DLP Consultants
DTZ Pieda Consulting
Entrepreneur Action Ltd
Enviros Consultancy
Federation of Small Businesses
Friends of the Earth
GL Hearn Planning
GVA Grimley
Halcrow
Harmers Ltd
Hepher Dixon ***
Home Builders Federation ***
John Robinson Planning & Design
Lovell Partnership
Mason Richards Planning
MVM Planning
Nathaniel Lichfield & Partners ***
Approved by Cardiff Council
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22 June 2006
Cardiff Supplementary Planning Guidance
•
•
•
•
•
•
•
•
Safeguarding Land for Business and Industry
Network Rail ***
Robert Turley Associates
RPS Group plc ***
Stride Treglown Town Planning
Venture Wales Ltd
Welsh Development Agency ***
Welsh Federation of Housing Associations
White Young Green Planning
Comments specifically or generally relevant to the draft guidance were received from
the above consultees indicated *** and also from
•
George Wimpey plc
Approved by Cardiff Council
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22 June 2006
Cardiff Supplementary Planning Guidance
Safeguarding Land for Business and Industry
Appendix H – Consultation Representations and Responses
REF1 REPRESENTATION
General No mention of the WDA's Property Strategy
COUNCIL RESPONSE
CHANGES TO SPG
Implications of the WDA Property Strategy
No change
have been checked with Policy & Economic
Development. It is considered that the
overarching strategic framework is
provided by the National Economic
Development Strategy "A Winning Wales",
already referenced in the SPG.
4.2
Important to consider suitability of the site for modern
business and industrial requirements. Many older
business/industrial sites may not meet criteria for up
to date requirements
Considered that an assessment of the
suitability of the site for modern
business/industrial requirements will be
informed by the results of marketing and
the request for reasons for unsuccessful
marketing.
No change
4.15
Business/Industrial sites in accessible locations may
be suitable for residential development.
Para 4.15 refers to sites which remain
viable for business, industrial and
warehouse use. In such cases, where
these sites are in highly accessible
locations, it is important that they are
retained to provide sustainable
employment opportunities. But intention is
not to exclude mixed use schemes, where
appropriate.
Amend para to , "will be unsuitable
for single use alternative
development proposals"
1
Reference to paragraph in Consultation Draft of SPG
Approved by Cardiff Council
22 June 2006
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Cardiff Supplementary Planning Guidance
Safeguarding Land for Business and Industry
Retention of city centre and city centre fringe sites
must be supported by Council to ensure public
transport network is reliable and efficient.
Noted but outside the scope of this SPG.
No change
Flexible approach to sites with alternative land use
potential is welcomed but "sequential test" of mixed
use then residential is not supported - proposals
should be assessed on their merits.
Aim is to create sustainable, mixed use
developments on employment sites where
there is no overriding demand or need to
retain the site solely in business/industrial
use. This approach accords with national
planning guidance contained in PPW.
No change
Other than Churchill Way, now developed
for offices, the Local Plan does not
allocated land for business/industrial use in
the City Centre Principal Business Area.
Office development is directed towards the
PBA but there is a recognition that
residential and obviously retail uses are
appropriate. Central Square/Callaghan
Square/Dumballs Rd have all been
developed for a mix of uses although the
importance of retaining/developing office
floorspace in these locations should be
recognised.
No change
General Allocated development plan sites close to public
transport interchanges may be suitable for residential
development - redevelopment which includes mixed
uses such as resi/retail can generate employment
and indirect economic benefits when compared to
traditional industry.
Approved by Cardiff Council
22 June 2006
26
Cardiff Supplementary Planning Guidance
General Retention of warehousing/other industrial uses which
do not employ significant numbers is an inefficient
use of centrally located land compared to other
businesses/mixed uses.
4.15
Higher density development around stations can
support station improvements and interchange works.
Network Rail has aspirations to improve the
concourse and piazza area by a resi/commercial
development. Concern that para is too restrictive as
sites highly accessible by public transport are also
suitable for mixed use developments. Consider
deletion of para 4.15.
Safeguarding Land for Business and Industry
Accepted that modern businesses can be
more efficient in terms of employment
densities and land take. The SPG aims to
ensure that employment areas which are
still viable for employment uses are
retained. In this context each proposal will
be considered on its merits but para 4.3
does recognises that there may be scope
for the relocation of existing occupiers.
No change
Para 4.15 refers to sites and premises
which remain viable for business, industrial
and warehouse development and which
are subject to proposals for alternative
landuses. There is a need to retain
accessible, sustainable employment
opportunities - the intention is not to
preclude mixed use schemes but seek to
ensure that viable employment provision is
retained in these areas. Amend para
Amend para to , "will be unsuitable
for single use alternative
development proposals"
Approved by Cardiff Council
22 June 2006
27
Cardiff Supplementary Planning Guidance
Safeguarding Land for Business and Industry
General Document does not fully reflect structural changes in
SE Wales economy. Demand assessments required
in the event of applications for alternative uses
should take a wider view.
Policy approach recognises that proposals
for the alternative development of
employment land will come forward but that
they should be assessed with regards to
demand and need. The SPG accepts that
some sites may no longer be suitable for
single, employment uses and in response,
promotes mixed use development then
residential development as potential
options. The dynamic nature of the
economy means that it is difficult to single
out particular sectors or types of
employment uses which may currently be
struggling/growing. The policy framework
is designed to take such structural changes
into account (through demand/need
assessments) when development
proposals come forward.
No change
General Scope of SPG should be wider to reflect the vital and
growing importance of higher education to Cardiff's
economy.
Acknowledge the potential impact of
higher education on Cardiff's economy but
note that the SPG aims to provide detail on
policies in the development plan which
specifically refer to business, industrial and
warehousing land.
No change
Approved by Cardiff Council
22 June 2006
28
Cardiff Supplementary Planning Guidance
Safeguarding Land for Business and Industry
General Document fails to refer to most relevant section of
PPW - "Some local planning authorities have
allocations of land for employment and other uses
which cannot be realistically taken up in the
quantities envisaged over the lifetime of the UDP.
LPA's should therefore review all their non-housing
allocations when preparing their UDPs and consider
whether some of this land might be better used for
housing or mixed-use development or no longer be
designated for development." Para 7.2.7 of PPW
refers to sites with extant, but unimplemented,
permissions for commercial/retailing being suitable
for housing. SPG should acknowledge that national
policy actively encourages use of employment land
that is not needed within the development plan
period. The purpose of the SPG is to ensure this
process is controlled in an appropriate manner.
Para 7.2.1 of PPW relates to designating
land for employment needs when preparing
or reviewing their UDPs. Para 7.2.7 relates
to commercial and retail uses. Chapter 6
of the SPG recognises that not all
business/industrial/warehousing uses
remain well located for such purposes - the
SPG aims to provide detail on the policy
context for releasing employment land no
longer viable for such use - it covers all
existing land not just development plan
allocations.
No change
General SPG should refer to draft Wales : A Vibrant
Economy which will replace "A Winning Wales"
(WAVE). The document explains that one of the
priorities is to attract more high value added functions
to Wales. Council appears intent on retaining status
quo rather than adapt to changing business
requirements and structural changes.
The Council has responded to the WAVE
consultation and has raised significant
issues particularly the need to recognise
Cardiff's role as a key driver for the region
and for Wales as a whole. The existing
national economic strategy "A Winning
Wales" is referred to in the SPG.
No change
Agree, para 3.7 is unnecessary. But retain
paras 3.8 & 3.9 as they provide an
introduction to situations where a more
flexible approach to alternative landuses
will be considered.
Delete para 3.7
3.7
Fails to take account of changing employment
requirements. Site may be suitable for such uses but
if no demand, then should be released. Delete 3.7.
Approved by Cardiff Council
22 June 2006
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Cardiff Supplementary Planning Guidance
4.13
Unclear if Council will use own evidence on need or if
a separate exercise to determine need will be
undertaken. Needs clarification as little point in
applicant preparing evidence if Council had
determined there was need.
4.13
Text implies that even where there is no demand
applicants have to meet other criteria before a site is
released - fails to accord with advice in PPW which
only requires the site to be no longer needed.
4.15
Text implies that residential & other uses do not need
to be located in highly accessible locations
Safeguarding Land for Business and Industry
The criteria used to assess need are
provided as a guide to
developers/applicants in order that there is
an awareness of the type of issues which
will be considered by the Council when
determining applications. The
unemployment data are published statistics
but agents/applicants may wish to provide
their evaluation of locational criteria as
supporting information.
The SPG relates to policies in the Local
Plan and Replacement Structure Plan
which require proposals to be assessed
against the demand for and need to
preserve a range, choice and quality if
employment sites.
Text states that employment sites in highly
accessible locations which remain viable
for business/industrial/warehouse use are
unsuitable for alternative development
proposals. Where such locations are no
longer viable for employment use, it is
accepted that a mix of alternative landuses
such as residential may be considered
appropriate.
Approved by Cardiff Council
Clarify para 4.13. "Evidently,
published unemployment levels
are unlikely to be challenged but
there may be information relating
to the locational factors outlined
below which the applicant would
wish to submit as supporting
information."
No change
See previous alteration
22 June 2006
30
Cardiff Supplementary Planning Guidance
6.3
Text requires a reasonable proportion of business
and industrial units yet for the site to be released it
would have to be proven that there was no demand
for such uses on the site.
General Recognise that a range of employment sites must be
safeguarded to meet requirements for Cardiff.
Potential employment creation through
redevelopment/change of use apps on underused
employment sites must be recognised. Flexible
approach must be upheld.
General Document should explain need for SPG given date of
adoption of local plan policies
Safeguarding Land for Business and Industry
Seeks to secure a reasonable proportion of
business/industrial units on sites where
there is no demonstrable demand or
overriding need to retain a site solely in
such use. However, there may be
demand/need to retain the site for modern
employment use as part of a mixed use
scheme.
Noted
No change
Amend Introduction
Add to Introduction - "The SPG
has been drafted in response to
the increasing numbers of
applications for the alternative use
of business and industrial land. It
is intended to.......
Approved by Cardiff Council
No change
22 June 2006
31
Cardiff Supplementary Planning Guidance
Policy No acknowledgment of up-to-date guidance in PPW
Context and development plan, particularly para 9.2.6 of PPW
- "maximising the use of appropriate previously
developed land for housing development can assist
regeneration and at the same time relieve pressure
for development on Greenfield sites". Policy EV2
encourages regeneration of derelict or degraded land
in urban areas for residential use. Policy H1
prioritises housing development in urban areas.
4.2
More emphasis required on the role of the Council in
terms of demonstrating there is realistic prospect of
land being taken up during the plan period or that
redevelopment for other uses would undermine
national, regional, local strategies for economic
development.
Safeguarding Land for Business and Industry
SPG promotes mixed use schemes before
residential only schemes on sites with
alternative land use potential. This accords
with PPW objectives for promoting
sustainable residential schemes, para 9.1.2
- LPAs should promote "mixed use
development so communities have good
access to employment and services".
Structure Plan Policy EV2 relates to the
regeneration of derelict or degraded urban
land particularly in Cardiff Bay for
employment, retail, leisure, tourism and
residential - the SPG relates to the
alternative use of existing/identified
business/industrial land. Policy H1 of the
Structure Plan provides a dwelling
requirement and gives priority for
residential development of sites in Cardiff
Bay and the redevelopment of suitable
cleared sites in the urban area in order to
meet this requirement. It is not considered
that these policies have a significant impact
on the SPG.
No change
Section 4 sets out the criteria against which No change
proposals for the alternative use of
employment land will be assessed. There
is no onus of proof on the Council or the
applicant, rather information will be
required from both parties in order to inform
the policy assessment.
Approved by Cardiff Council
22 June 2006
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Cardiff Supplementary Planning Guidance
4.14
Greater emphasis should be given in the document to
ensure that where use for
business/industrial/warehouse development is not
viable, re-use for alternative development is
encouraged
Safeguarding Land for Business and Industry
Section 6 of the SPG is clear that not all
business, industrial and warehousing land
remains well located for such use and
consequently provides guidance on
appropriate alternative land uses.
General Document should recognise that modern employment Noted - amend para 6.1 to reflect this
densities are higher and less land intensive, enabling statement.
surplus employment land to be encouraged for
alternative uses. Enabling elements of residential
development can help provide better employment
facilities.
General Document should acknowledge that some locations
are not best suited for employment use. E.g. urban
sites close to residential areas are not best suited for
light industry or noisy, travel intensive uses given
residential amenity conflicts.
No change
Additional sentence at para 6.1 "It is recognised that where mixed
use development is considered
appropriate, any subsequent
increase in land values can be
used to secure improved, modern
business/industrial facilities which
can potentially offer higher
employment densities.
No change
Emphasis should be on ensuring that
alternative use proposals on employment
land are carefully assessed so that
unreasonable constraints are not placed on
existing enterprises. Any new
business/industrial sites will need to be
carefully sited in order to minimise conflict
with existing landuses but the focus of this
SPG is to ensure that where alternative use
proposals are considered acceptable, there
is no unacceptable impact on existing
business/industrial uses.
Approved by Cardiff Council
22 June 2006
33
For more information please contact:
The Strategic Planning Manager Cardiff Council, CY1 County Hall, Atlantic Wharf, Cardiff CF10 4UW Email: developmentplan@cardiff.gov.uk