Seale Hayne Rural Economy Centre Feasibility Study
1
Final Report
EXECUTIVE SUMMARY
1.1
Overview and Context
1.1.1
Seale Hayne College was established in 1912 and became fully operational providing
education and training for the agricultural industry in 1920. In this capacity it
established a high reputation. Over the past century agriculture has changed radically
– as has the role of the College. At its prime, in excess of 1000 full time students
attended the Seale Hayne campus, resulting in considerable traffic movements
across the local highway network. The site also generated considerable expenditure
that was invested into the local economy.
1.1.2
Changes within the University structure announced in 2002 enabled a transfer of the
academic studies undertaken at Seale Hayne to the Social Science and Business
Faculty and the Science Faculty at the Plymouth site. All studies will cease at Seale
Hayne at the end of the summer term in 2005.
1.1.3
The decision to vacate the site results in the site being surplus to long-term academic
requirements and therefore an asset of the University that requires a strategy to be
established to ensure that maximum capital receipts are secured on disposal. The
manner in which the University must manage its estate must accord with financial
accountability, guidance and best practice issued by the Higher Education Funding
Council of England (HEFCE), National Audit Office (NAO) and the Public Accounts
Committee (PAC). These financial arrangements are reflected in the terms of
reference of the Steering Committee established to oversee and adopt the findings of
this Feasibility Project and the scope of works of the Study Project Brief.
1.1.4
Given pressures to promote re-use and/or redevelopment at Seale Hayne in the
period 2001-2011 as part of the Teignbridge Local Plan, the University needed to
protect its long-term position. A submission made on behalf of the University in 2002
referred to a potential Rural Economy Centre at the site. The University were
committed at that point to investigate associated deliverability issues. At the time of
the Local Plan submission, no clear brief was prepared to inform the likely size,
tenant mix or deliverability of such a concept. This is the purpose of the Feasibility
Study Report.
1.1.5
The University consider that the redevelopment and re-use strategy for the future of
the Seale Hayne site be informed by a specially convened Steering Committee
comprising Governors of the University, selected individuals with an interest in the
site and rural affairs and representatives of Teignbridge District Council. This Steering
Committee first met on the 25th June 2004.
1.1.6
In advance of the June 2004 Steering Committee, Committee Members were
presented with a Draft Project Brief and Background Planning Strategy papers
prepared by the appointed team of advisors in conjunction with direction from the
University. The Committee approved the preparation of the Feasibility Study, subject
to the tenant demand study concentrating upon the opportunities for a rural based
cluster development, in addition to, and as well as, a more traditional employment
development (business park etc).
1.2
The Project Brief
1.2.1
In April 2004, the University of Plymouth commissioned a consultant team to
undertake a feasibility study concerning the creation of a Rural Economy Centre
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January 2005
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Seale Hayne Rural Economy Centre - Feasibility Study
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(REC) on the site of the Seale Hayne Campus, near Newton Abbot. The site is owned
and currently occupied by the University of Plymouth. The study is therefore prepared
to inform the strategy to be adopted to maximise capital receipt of disposal and to
investigate the potential for the site to retain a role in the rural economy.
1.2.2
The scope of works identified in the Brief covers all material planning and property
market considerations relevant to the delivery of a Rural Economy Centre. However,
in the event that the feasibility study was to show that there was no tenant demand
for a Rural Economy Centre, it was important that the study addressed the technical,
environmental, planning and engineering issues which could be applied to other
forms of development.
1.2.3
The appointed team of advisors have, therefore, produced a report which covers town
planning, environmental, infrastructure and commercial property reports which
combine to form a robust analysis of the opportunities raised by the development and
capacity of the Seale Hayne site to accommodate alternative forms of development.
1.3
Communication
1.3.1
The University acknowledges the importance of establishing meaningful and effective
communication with members of the public and third parties in addressing significant
developments associated with its operations. It is important to note however that
there needs to be a commonly agreed land use strategy or options) with which to
consult in order to obtain constructive comments: there being only limited benefit in
engaging with third parties on a development strategy which, following detailed
investigations, is not considered to be a viable proposition.
1.3.2
Notwithstanding the importance placed upon communication by the University, in the
event that the University is to promote a development option(s) for the campus, the
provisions of the 2004 Planning and Compensation Act encourage proponents of
major developments to engage with members of the community and local
stakeholders in advance of submissions to Local Planning Authorities.
1.3.3
A detailed “Communication Matrix” has been prepared which suggests the most
appropriate and effective way of consulting and engaging with the particular interests
and groups. The information contained in the matrix is, therefore, available to the
University to begin a detailed consultation programme should redevelopment, reuse
or disposal options be pursued.
1.4
Planning Policy Framework
1.4.1
Teignbridge District Council made a strategic decision in early 2004 to abandon the
draft Local Plan 2001-2011 in favour of the new Local Development Framework. The
development of major sites will be considered in the form of site-specific policies
which will need to have due regard to the overall development strategy for the area.
At the time of writing, the Council has not published the “options and issues paper” for
the general development strategy that will inform the development of individual
development sites.
1.4.2
In order to maximise the chances of securing major development at Seale Hayne, it
will be important to promote an integrated and deliverable development scheme to
the Council in parallel with the preparation of their Local Development Framework. It
is suggested that this be achieved through the preparation of a Development Brief in
the event that a defined development scheme emerges as a result of the REC
Feasibility Study.
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1.4.3
In relation to the application of planning policy, the Seale Hayne Campus is located in
the open countryside where restrictive land use planning policies apply. On first
inspection therefore, the policies of the adopted local plan applied to areas of open
countryside are not helpful to the comprehensive redevelopment of the Seale Hayne
campus. The site is remote from existing settlement boundaries where the Council
have made it clear (during discussions in 2004) that they would not support a
considerable net increase in new build activity. Their view is that such proposals
would promulgate an unsustainable development form.
1.4.4
Given that the concept of a Rural Economy Centre requires a critical mass to be
achieved (for marketing purposes and the attraction of key occupiers), the Council
have not offered satisfactory comfort that a Rural Economy Centre would be
welcomed in land use planning terms.
1.4.5
The Local Plan does, however, contain polices concerned with the conversion of
existing buildings (rural or otherwise in a rural setting). These offer opportunities for
alternative uses, the delivery of which would be subject to market demand and the
ability of the University to promote an integrated and strong planning to support a
planning application(s).
1.4.6
The uses identified as acceptable include those listed in Policy ENV7, namely,





Purposes ancillary to agriculture,
Community, recreation or tourist facilities,
Crafts, light industrial or related business uses,
Holiday accommodation
Those uses that would otherwise be of benefit to the local rural economy
1.4.7
In the event that a Rural Economy Centre cannot be delivered on site, by virtue of
either land use planning objection, or lack of tenant demand, the promotion of a mix
of uses along the lines suggested above could satisfy planning policies.
1.4.8
The Project Study Brief anticipated a potential scenario that a Rural Economy Centre
was not considered to be a viable proposition. If the study findings were such that the
delivery of a REC was considered unviable, the Brief required an investigation of
tenant demand from a more “traditional” form of employment use, such as that within
the office and industrial sectors. The demand for space at Seale Hayne from such
employers was carried out as part of the tenant demand survey.
1.4.9
It is not the purpose of the feasibility study to investigate more unique forms of
development and land activities that might be accommodated within the Seale Hayne
Campus – the Brief was firmly based upon testing the feasibility of a defined Rural
Economy Centre concept. It is not the purpose of this feasibility study therefore to
predict every potential user who might express an interest in taking all or part of the
campus for their own purposes. Interest from developers and investors, that might
include “unique purchasers”, could emerge in line with the implementation of any
future disposal strategy for the Seale Hayne site.
1.4.10 The remit of the Consultant team, as set out in the Brief, excluded advice or guidance
to the University in relation to aspects of future disposal. Issues relating to any
decision to dispose of the site will be the subject of a separate decision making
process, informed as appropriate by bespoke advice at the behest of the University.
As such, this feasibility report does contain references or recommendations
concerning disposal options and marketing.
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January 2005
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1.5
Environmental Considerations
1.5.1
There are no designated sites within the study area. However, two wildlife sites exist
within the wider Seale Hayne site. The mosaic of habitats within the study area has
the potential to support a number of breeding bird species.
1.5.2
The main landscape elements of significance include the Devon Hedgebank systems
and farm woodlands, which act as boundary and shelter features. A number of
viewpoints have been identified which will be affected by development proposals.
However, with sensitive screening, adverse impacts could be significantly reduced.
1.5.3
Unless planned and delivered in a sensitive manner, redevelopment of the
agricultural landscape surrounding the site has the potential to cause detrimental
impact – development changing the character of the wider area. This could be
mitigated to varying degrees of success by strategic landscaping and planting.
1.6
Highway and Engineering Issues
1.6.1
The highway assessment highlights the general inadequacy of the minor roads linking
the campus to the main road network. This is likely to be a limiting factor on potential
redevelopment.
1.6.2
The College itself, when fully operational, generated a significant amount of traffic
movement. It is considered, by application of employment to floorspace density
ranges, that that this level of movement would equate to a new office use of
approximately 11,450sqm or a business park use of 17,930sqm. It is suggested that
these figures be used as a guide to the size of development that could come forward
without a requirement to carry out highway improvement works beyond the immediate
vicinity (i.e. beyond Forches Cross).
1.6.3
If the development is kept within these limits it has been confirmed that the Highway
Authority would require a contribution to an improvement to the Forches Cross
junction. There detailed nature of works (junction design) required is unknown and
hence it is difficult to estimate a cost. On the basis that traffic flows associated with
the development would be around the same level as previously experienced it has
been agreed that Seale Hayne would not be expected to fund the full cost of a
scheme and hence a contribution of around £50,000 is suggested at this point in time.
1.6.4
If a form of development is proposed which significantly increases traffic flows then a
detailed Transport Assessment will be required to demonstrate the impact of the
increase. This Assessment will cover the highway network generally westwards out to
the A38 via the A382 and A383 and generally eastwards to the road linking the A382
and A383 within Newton Abbot. The Highways Agency require that junction testing
should consider the situation 15 years beyond the completion of the development and
this takes into account background traffic growth unrelated to the development. This
is a particularly onerous requirement.
1.6.5
It is difficult to envisage the scale or practicality of carrying out works to achieve a
further capacity increase at the Drumbridges Interchange (A38/A382). It is suggested
that the cost could be considerable and influence the price a developer may offer for
the site as part of any disposal advice. Discussions with the Highways Agency have
confirmed that that the westbound on-slip is shorter than desirable due to the
presence of the minor road junction further to the west. Should the Highways Agency
require improvements to the Caton Interchange (A38/A383), the cost is likely to be
very substantial.
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1.6.6
The full cost of improving Forches Cross would fall on the Seale Hayne development.
As no scheme has been identified – primarily because there is no obvious or cheap
solution – a conservative estimate would be £250,000-£500,000.
1.6.7
The overall cost for the improvement to the local road network could be in the range
£450,000-£900,000. This could be called for with even a modest increase in traffic
generation.
1.6.8
As far as can be estimated at this stage, the contributions towards highway
improvements (depending on the level of development within the campus) is set out
below:

development with a similar level of traffic generation as Academic use - £50,000.

development with a minor increase in traffic generation - £450,000-£900,000.

development with a significant increase in traffic generation (i.e. a resultant
development of over 11,500sqm office use, or 18,000sqm business park use (or
combination of uses resulting in similar traffic flows) are likely to be considerable. Any
amendments to the A38 junctions are likely to be extremely expensive.
1.6.9
Further detailed cost schedules will need to be prepared in conjunction with any
detailed design work to alter existing or create new access junctions. The figures
referred to in this report are initial feasibility estimates and will need to be
corroborated by technical studies in line with specific development or re-use
proposals. Should the development industry come forward with land use proposals
for the Seale Hayne site, developers/investors will wish to ensure that an accurate
cost and planning risk register is undertaken in relation to their specific proposals.
Such costs and liabilities will ultimately assist their financial offer to the University.
1.7
Overview of Rural Cluster Developments in the UK
1.7.1
The first phase of research was an overview of rural cluster developments in the UK.
Various common themes were found in the majority of other rural cluster
developments and considered in more detail within two specific case studies. One
particular point of relevance was that university involvement a factor in these
schemes although it was seemingly not vital for success.
1.7.2
Based upon the analysis of the various schemes a suggested definition for a Rural
Economy Centre was arrived at, this being not dissimilar to a science/research park
but with the focus of the tenant mix on businesses supporting, researching or
administering the rural economy.
1.7.3
Consideration of the planned rural science and technology park at Stoneleigh Park in
Warwickshire revealed that this proposed scheme was likely to satisfy national
demand and, therefore, any scheme at Seale Hayne it could realistically only be a
regional centre of excellence. Bearing in mind the definition of a Rural Economy
Centre, competition for tenants would come from existing and planned business,
science and research and development parks. On completion of the Rural Cluster
Research paper, the recommendation to the University was to proceed to the
property market survey to assess the strength of local competition.
1.8
Local Property Market Survey
1.8.1
The property market survey, undertaken by Savills, looked at the supply/demand
balance for office and industrial space in Exeter, Plymouth and more locally to Seale
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January 2005
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Seale Hayne Rural Economy Centre - Feasibility Study
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Hayne. It was found that there is sufficient office and industrial accommodation in
both Exeter and Plymouth, not only at present but also in the pipeline for the future.
The only possible exception is in Exeter where it may be difficult to accommodate a
single very large-scale office space requirement. It was also evident that there are
already existing high quality science and business parks with capacity in the region.
These include Plymouth International Business Park, Tamar Science Park. There are
also plans for a new science park in Exeter.
1.8.2
More locally there is a demand for smaller areas of space but not to the degree that
there is a significant imbalance between the current supply and demand. There is
always demand for start up and incubator units although this demand is, to some
extent, satisfied by various schemes.
1.8.3
In the light of the supply/demand balance, there is no realistic prospect for any form
of successful speculative development. There is a fine balance in the market with no
obvious unsatisfied demand. If a Rural Economy Centre were to work at Seale
Hayne it would need to identify a unique selling point (USP) in order to be able to
attract tenants. The tenant demand study was, therefore, carried out to determine the
locational criteria of potential occupiers of space.
1.9
Tenant Demand Study – Property and Perception Survey
1.9.1
A survey of over 3,900 businesses across the region revealed that the majority of
office occupiers are relatively small, on average occupying less than 2,500 sq ft, and
these prefer to remain close to their established base. The majority of respondents
who were considering additional space were seeking new or modern buildings but at
an in town or edge of town location.
1.9.2
The survey was clear that there is not a significant amount of unsatisfied demand for
business accommodation, including expansion space. In addition, the scale of this
demand and the rents that occupiers are prepared to pay for new space are not
significant enough to stimulate speculative development away from the major
town/city centres. The demands from rural related businesses are not significant
enough to justify a substantial development to cater for their business
accommodation needs. Whilst the Seale Hayne site does satisfy some key locational
factors, it is let down by poor accessibility which will act as a barrier to success. The
survey also indicated that linkage with a university is deemed relatively unimportant.
1.10
Project Conclusions
1.10.1 The Consultant Team is satisfied that the work programmes adopted in accordance
with the requirements of the Project Brief have been delivered. The Brief was agreed
by the University and Steering Committee and reflects the Terms of Reference of the
Steering Committee. This final report incorporates, where appropriate and relevant to
the delivery of the project brief, issues raised by representations submitted by third
parties. The report also takes into account comments received in relation to a Draft
Progress Report issued to the Steering Committee Members in December 2004.
1.10.2 The basis upon which the Feasibility Study has been prepared is the 2002 decision of
the University to transfer academic studies from Seale Hayne to Plymouth – this
decision therefore resulting in the Seale Hayne campus being surplus to the longterm academic requirements of the University. As such, the University is required to
ensure that a strategy is adopted that secures maximum capital receipt on disposal in
accordance with best practice guidance. This report is therefore designed to present
the findings of a bespoke series of work programmes which test the feasibility of
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January 2005
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Seale Hayne Rural Economy Centre - Feasibility Study
Final Report
developing the Seale Hayne site as a Rural Economy Centre (and a traditional
business park in the event that a Rural Economy Centre is not considered to be a
viable proposition.
1.10.3 The conclusions to be drawn from both the local property market survey and tenant
demand survey is that there is insufficient demand for significant amounts of new
business space and that demand that does exist is at relatively low rental levels. This
applies to general occupiers of space as well as to rural related businesses.
1.10.4 Reference is made above to the need to establish a USP for any proposal at Seale
Hayne if it is to have any chance of success. The USP would need to be one, or a
combination of, the most important factors affecting business location as revealed by
the tenant demand study. However, the unchangeable physical factors of the site its distance from existing centres, lack of accessibility and constraints of the existing
buildings on the site (including site topography) - mean that it is not possible, without
incurring significant costs, to establish a satisfactory USP to overcome the lack of
unsatisfied demand and attract a sufficient number of occupiers to Seale Hayne.
1.10.5 In light of the above Savills recommend that any form of speculative development at
Seale Hayne, be it in the form of a Rural Economy Centre or more traditional form of
business space, should not be contemplated. There is not the demand in the current
market for a Rural Economy Centre at this kind of location.
1.10.6 Similarly, there is no significant demand for conventional types of business space at a
site such as Seale Hayne that is subject to the negative locational factors previously
referred to. Any demand that does exist for business space is of an extremely smallscale nature and at low rental levels. Any scheme catering for this form of demand
would therefore be likely to suffer from low rental returns, high management costs
and significant periods of rental voids. These would all combine to make any scheme
unviable.
1.10.7 Our property research and studies have therefore revealed that neither a Rural
Economy Centre nor a more conventional multi occupancy occupation (business
park) at the Seale Hayne site is feasible or viable. Notwithstanding this, the Seale
Hayne site does have potential for alternative uses but these are likely to be specialist
in their nature. Identification of possible alternative uses beyond a Rural Economy
Centre or traditional multi occupancy use of the site is beyond the scope of this
feasibility study. It is understood that discussions between the University and
interested parties such as Teignbridge District Council will continue in the pursuit of
an appropriate and economically attractive land use and/or disposal strategy for the
Seale Hayne site.
1.10.8 The information contained within this Feasibility Study can be utilised by the
University in the pursuit of an agreed future strategy for the Seale Hayne campus
site. Whilst the concept of a Rural Economy Centre or more traditional business park
has been questioned, the University is required to pursue a strategy that secures
maximum capital receipt on disposal in accordance with best practice guidance
issued by HEFCE, National Audit Office and Public Accounts Committee.
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January 2005
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2
CONTENTS PAGE
1
EXECUTIVE SUMMARY ................................................................................................................ 1
1.1
1.2
1.3
1.4
1.5
1.6
1.7
1.8
1.9
1.10
OVERVIEW AND CONTEXT ............................................................................................................... 1
THE PROJECT BRIEF ...................................................................................................................... 1
COMMUNICATION............................................................................................................................ 2
PLANNING POLICY FRAMEWORK...................................................................................................... 2
ENVIRONMENTAL CONSIDERATIONS ................................................................................................ 4
HIGHWAY AND ENGINEERING ISSUES ............................................................................................... 4
OVERVIEW OF RURAL CLUSTER DEVELOPMENTS IN THE UK ............................................................. 5
LOCAL PROPERTY MARKET SURVEY ............................................................................................... 5
TENANT DEMAND STUDY – PROPERTY AND PERCEPTION SURVEY .................................................... 6
PROJECT CONCLUSIONS .............................................................................................................. 6
2
CONTENTS PAGE ......................................................................................................................... 8
3
INTRODUCTION AND BACKGROUND ...................................................................................... 13
3.1
3.2
3.3
3.4
3.5
4
OVERVIEW ................................................................................................................................... 13
CONTEXT ..................................................................................................................................... 14
FINANCIAL ACCOUNTABILITY AND MANAGEMENT OF UNIVERSITY ASSETS ........................................ 16
STEERING COMMITTEE ................................................................................................................. 16
COMMUNICATION.......................................................................................................................... 18
SITE LOCATION AND DESCRIPTION........................................................................................ 20
4.1
4.2
5
LOCATION .................................................................................................................................... 20
DESCRIPTION ............................................................................................................................... 20
PLANNING BACKGROUND ........................................................................................................ 21
5.1
5.2
5.3
5.4
5.5
6
PLANNING HISTORY ...................................................................................................................... 21
LAND USE SURVEY....................................................................................................................... 21
LISTED BUILDINGS AND CURTILAGES ............................................................................................. 22
TREE PRESERVATION ORDERS ..................................................................................................... 22
AGRICULTURAL LAND CLASSIFICATION ........................................................................................... 22
PLANNING POLICY FRAMEWORK ........................................................................................... 23
6.1
6.2
6.3
6.4
6.5
7
PLANNING AND COMPENSATION ACT 2004: PLANNING FRAMEWORK............................................... 23
COUNTRYSIDE POLICIES ............................................................................................................... 23
RESIDENTIAL POLICIES ................................................................................................................. 25
EMPLOYMENT POLICIES ................................................................................................................ 25
SUMMARY .................................................................................................................................... 26
BUILDING SURVEY INFORMATION .......................................................................................... 28
7.1
7.2
7.3
7.4
7.5
7.6
7.7
8
OVERVIEW OF BUILDING STOCK .................................................................................................... 28
PHASE 1 (1910-20)...................................................................................................................... 28
PHASE 2 (1930-40’S) ................................................................................................................... 28
PHASE 3 (1950-60’S) ................................................................................................................... 28
PHASE 4 (1970-80’S) ................................................................................................................... 29
PHASE 5 (1990’S) ........................................................................................................................ 29
SUMMARY .................................................................................................................................... 29
ECOLOGY AND NATURE CONSERVATION CONSIDERATIONS ........................................... 30
8.1
9
SUMMARY .................................................................................................................................... 30
LANDSCAPE AND VISUAL IMPACT APPRAISAL .................................................................... 31
9.1
9.2
9.3
10
DEVELOPMENT STRATEGY - OVERVIEW ......................................................................................... 31
REDEVELOPMENT OF EXISTING CAMPUS ....................................................................................... 31
DEVELOPMENT W ITHIN SURROUNDING AGRICULTURAL LANDSCAPE ............................................... 32
LAND QUALITY CONSIDERATIONS ......................................................................................... 33
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11
EXECUTIVE SUMMARY ............................................................................................................... 55
AIMS AND METHODOLOGY.......................................................................................................... 55
RESULTS FROM THE BUSINESS ACCOMMODATION SURVEY ........................................................... 56
CURRENT PROPERTY OCCUPANCY.............................................................................................. 57
SUMMARY ................................................................................................................................. 60
MEETING FUTURE BUSINESS ACCOMMODATION NEEDS ................................................................ 60
SUMMARY ................................................................................................................................. 63
RESPONSES FROM RURAL-RELATED BUSINESSES ........................................................................ 63
SUMMARY ................................................................................................................................. 65
CONCLUSIONS........................................................................................................................... 65
THIRD PARTY REPRESENTATIONS ......................................................................................... 68
17.1
17.2
17.3
18
INTRODUCTION .......................................................................................................................... 47
LOCAL PROPERTY MARKETS - EXETER ....................................................................................... 47
LOCAL PROPERTY MARKETS – PLYMOUTH.................................................................................. 50
LOCAL PROPERTY MARKETS – TORQUAY AND NEWTON ABBOT ................................................... 51
CONCLUSIONS........................................................................................................................... 52
OVERALL SUMMARY .................................................................................................................. 54
TENANT DEMAND SURVEY ....................................................................................................... 55
16.1
16.2
16.3
16.4
16.5
16.6
16.7
16.8
16.9
16.10
17
INTRODUCTION .......................................................................................................................... 43
THE RURAL BUSINESS CENTRE AT MYERSCOUGH COLLEGE ........................................................ 43
RASE STONELEIGH PARK ......................................................................................................... 44
BEST PRACTICE/DEFINITION OF A REC ...................................................................................... 45
RECOMMENDATIONS .................................................................................................................. 46
LOCAL PROPERTY MARKET SURVEY .................................................................................... 47
15.1
15.2
15.3
15.4
15.5
15.6
16
OVERVIEW ................................................................................................................................ 38
EMPLOYMENT SITES .................................................................................................................. 38
EMPLOYMENT SITES - SUMMARY ................................................................................................ 39
RESIDENTIAL SITES ................................................................................................................... 40
SUMMARY ................................................................................................................................. 41
DEVELOPMENT AT KINGSTEIGNTON ............................................................................................ 41
OTHER POTENTIAL SITES NOT ALLOCATED IN THE DEPOSIT LOCAL PLAN ..................................... 42
REVIEW OF “CLUSTER DEVELOPMENT” RESEARCH .......................................................... 43
14.1
14.2
14.3
14.4
14.5
15
GAS.......................................................................................................................................... 37
ELECTRICITY ............................................................................................................................. 37
W ATER ..................................................................................................................................... 37
SUMMARY ................................................................................................................................. 37
REVIEW OF COMPETING DEVELOPMENT SITES ................................................................... 38
13.1
13.2
13.3
13.4
13.5
13.6
13.7
14
SUMMARY ................................................................................................................................. 35
UTILITY USAGE AND CAPACITY .............................................................................................. 37
12.1
12.2
12.3
12.4
13
SUMMARY ................................................................................................................................. 33
TRANSPORTATION CONSIDERATIONS .................................................................................. 35
11.1
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Final Report
LOCAL PLAN REPRESENTATIONS ................................................................................................ 68
STEERING COMMITTEE GUIDANCE .............................................................................................. 68
OVERVIEW ................................................................................................................................ 69
FEASIBILITY STUDY CONCLUSIONS ....................................................................................... 82
18.1
18.2
18.3
18.4
18.5
18.6
18.7
OVERVIEW ................................................................................................................................ 82
POLICY ISSUES.......................................................................................................................... 82
ENVIRONMENTAL ISSUES ........................................................................................................... 83
HIGHWAY AND ENGINEERING ISSUES .......................................................................................... 83
OVERVIEW OF RURAL CLUSTER DEVELOPMENTS IN THE UK ........................................................ 84
LOCAL PROPERTY MARKET SURVEY .......................................................................................... 84
TENANT DEMAND STUDY – PROPERTY AND PERCEPTION SURVEY ............................................... 85
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Final Report
PROJECT CONCLUSIONS ............................................................................................................ 85
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Schedule of Appendices
Number Description
Source
Date
VOLUME 1 - BACKGROUND AND NONTECHCNIAL APPENDICES
1.1 Location and Context Plans
Stride Treglown Limited
1.2 Local Plan Representation - Rural Economy Centre Swallow and Hopwood
Project Brief (as augmented by Steering
1.3 Committee Minutes)
Stride Treglown Limited
1.4 Steering Committee Guidance Note
Stride Treglown Limited
1.5 Steering Committee Papers and Minutes
Stride Treglown Limited
1.6 Planning Permission History Records (Summary) Teignbridge District Council
1.7 Land Use Survey
Stride Treglown Limited
1.8 Listing Schedule
Teignbridge District Council
DEFRA correspondence relating to Agricultural
1.9 Land issues (including Plan)
DEFRA
1.10 Extracts from Teignbridge Local Plan
Teignbridge District Council
1.11 Building Condition Survey
Stride Treglown Limited
Selected Press Cuttings re: 2002 Local Plan
1.12 objection
Various Media Publications
Stride Treglown Limited and
1.13 Communication Matrix
University of Plymouth
1.14 Third Party Representations
Various
Nov-04
Feb-02
Mar-04
Jun-04
Jun-04
Jul-04
Nov-04
n/a
Sep-04
Apr-96
Aug-04
n/a
Nov-04
n/a
VOLUME 2 - TECHNICAL APPENDICES
2.1 Ecology Report
2.2 Landscape and Visual Impact Assessment
2.3 Land Quality Report
2.4 Traffic Impact Assessment
2.5 Summary of Local Development Frameworks
2.6 Review of Rural Cluster Developments
2.7 University Participation in Cluster Developments
Scott Wilson Kirkpatrick
Scott Wilson Kirkpatrick
Scott Wilson Kirkpatrick
Scott Wilson Kirkpatrick
Stride Treglown Limited
Savills
Savills
Nov-04
Nov-04
Nov-04
Jan-05
Nov-04
Nov-04
Nov-04
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Preface
This Feasibility Report has been prepared, in part, as a reference document for the
University of Plymouth in relation to reuse and redevelopment issues relevant to the Seale
Hayne Campus.
Given the importance of the input from Savills in respect of the commercial viability of a Rural
Economy Centre, their primary reports have been incorporated within the main body of the
report as Chapter 15 and 16. We have summarised their research report dealing with factors
influencing the performance of “Rural Cluster Developments” as Chapter 14. The full texts of
their reports are set out in Appendix Volume 2.
The Feasibility report is accompanied by, and should be read in conjunction with, a set of
bound appendices. These include;

A Background and Non-technical appendix. This is bound as Volume 1 with contents
referred to within the report as having the prefix 1. (1.1,1.2 etc). The content of this
document primarily relates to the background papers and illustrative and other
material drawn from a wide range of sources. Given the quantum of information
contained therein, a single copy of Volume 1 will be held by the Department of the
Vice Chancellor at the University of Plymouth.

A Technical appendix. This is bound as Volume 2 with contents having the prefix 2
(2.1, 2.2 etc). This document contains the technical environmental and engineering
reports prepared by Scott Wilson Kirkpatrick and the commercial property reports
prepared by Savills.
The consultant team are working under instructions from the University of Plymouth (“the
Client”).
The scope of the study was presented and endorsed by a special Steering Committee,
facilitated by the University of Plymouth on the 25th June 2004. This group comprises 11
individuals, including representatives of Teignbridge District Council Members, Governors of
the University and key University personnel. At the June 2004 meeting, the Steering
Committee requested that the focus and findings of any tenant demand study concentrate
upon rural based practices and employers. This request has been delivered as part of the
tenant demand study undertaken by Savills.
Due to pagination error there is no page 34 in this document.
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INTRODUCTION AND BACKGROUND
3.1
Overview
3.1.1
In April 2004, the University of Plymouth commissioned a consultant team to
undertake a feasibility study concerning the creation of a Rural Economy Centre
(REC) on the site of the Seale Hayne Agricultural Campus, near Newton Abbot,
Devon. The site is owned and currently occupied by the University of Plymouth. The
study is therefore prepared to inform the strategy to be adopted to maximise capital
receipt of disposal and to investigate the potential for the site to retain a role in the
rural economy.
3.1.2
The feasibility study is predicated upon the decision of the University to vacate the
site following the completion of undergraduate studies in the summer of 2005 at
which time academic studies will be transferred to Plymouth.
3.1.3
The area of the campus estate covered by the Study is highlighted on the plan
attached as Plan 1 at Appendix 1.1.
3.1.4
The concept of a Rural Economy Centre (REC) originated from the University in
2001/2 as part of an overall vacation and redevelopment/reuse strategy. At that time,
no clear brief was prepared to inform the likely size, tenant mix or deliverability of
such a concept. However, given pressures to promote the concept of redevelopment
at Seale Hayne in the period 2001-2011 as part of the Teignbridge Local Plan (see
below) the University were required to protect their long-term position and promote an
alternative use strategy for the site. The University were committed at that point to
investigate the issues and deliverability of a Rural Economy Centre. This is the
purpose of this report.
3.1.5
The Project Team was requested to consider the viability of a rural (land based
industries and technology) centre in the first instance. In the event that a Rural
Economy Centre was not considered to be a viable proposition, alternative uses in
the form of a more traditional business / science / industrial development were to be
considered.
3.1.6
The project team of advisors brought together for this commission are set out below:
3.1.7
Stride Treglown Limited
Project Co-ordination
Strategic Town Planning
Masterplanning and Design consultants (as
required)
Savills
Commercial Property Consultants
Market Appraisals
Tenant Demand analysis
Scott Wilson Kirkpatrick
Environmental and Engineering Consultants
Highway and Infrastructure Capacity
Landscape and Visual Impact Appraisals
Utility capacity and delivery
Environmental Audits
At the time of the consultant team appointment, the end goals of the wider Seale
Hayne Project, which encompassed the Feasibility Study as a part, were:
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
To undertake a detailed site and property market baseline assessment in order to
inform the University as to the viability of a Rural Economy Centre (or traditional
employment redevelopment) located within the Seale Hayne Campus.

Subject to clear conclusions reached in the feasibility study, to prepare a Draft
Development Brief to highlight the way in which the likely quantum and mix of
employment tenants identified in the property market assessment and other uses
could be accommodated on the site.

To secure the necessary outline planning permissions to enable re-use and/or
redevelopment of the site in order to reduce developer / investor uncertainties and
promote the development opportunities to the marketplace.

To adopt a multi-disciplinary professional consultancy approach through the
implementation of the above tasks to ensure that the University are informed as to the
most appropriate mechanism to secure best consideration for the land at the time of
disposal.
3.1.8
These issues were also addressed in the Terms of Reference of the Steering
Committee, facilitated by the University of the Plymouth. The terms of reference are
set out in Section 3.4 below.
3.1.9
The Consultant Team is satisfied that the work programmes adopted in accordance
with the requirements of the Project Brief have been delivered. The University is
aware that a discrete work task anticipated to be undertaken by Savills in respect of
potential residential rental values has been omitted from the report. This is
considered to be a matter for the University to consider outside the scope of any
Rural Economy Centre Feasibility Study. The result of such research would not have
influenced the overall study findings. Savills have prepared an additional paper, not
covered in the original Brief relating to “University participation in Cluster
Developments” as a consequence of discussions with the University and in the
interests of considering this issue in the context of the Rural Economy Centre concept
at Seale Hayne. This background paper is set out in full as Appendix 2.7.
3.2
Context
3.2.1
Seale-Hayne College was established in 1912 and became fully operational providing
education and training for the agricultural industry in 1920. In this capacity it
established a high reputation. Over the past century agriculture has changed radically
– as has the role Seale Hayne plays in the rural economy.
3.2.2
At its prime, in excess of 1000 full time students attended the Seale Hayne campus,
generating considerable traffic movements and expenditure that was invested into to
the local economy.
3.2.3
Changes within the University structure agreed in 2002 enabled a future transfer of
the academic studies undertaken at Seale Hayne to the Social Science and Business
Faculty and the Science Faculty at the Plymouth site. All studies will cease at Seale
Hayne at the end of the summer term in 2005.
3.2.4
The University is keen to ensure that appropriate and reasonable steps are taken to
ensure the best future is secured for Seale Hayne and the local area (See Section 3.3
below). The University has given instructions that it did not wish to embark upon a
“quick-win” strategy if this is considered to prejudice a more attractive viable solution
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that will offer more far-reaching benefits. The feasibility study is designed to inform a
preferred strategy which could lead to an appropriate disposal process.
3.2.5
The long-term role of the Seale Hayne Campus was being considered at a time when
an opportunity existed to promote the long-term development options for the site as
part of the Teignbridge Local Plan 2001-2001. The [then] Local Plan process
contained a six-week window for representations to be submitted to promote
development for the next 10 years. If this opportunity were not taken, the University
would have lost the opportunity to promote the redevelopment options at the Local
Plan Inquiry that at that time was to be held in late 2004.
3.2.6
In order to ensure that the flexibility existed to promote the future redevelopment and
re-use of the site, representations to the First Deposit Teignbridge Local Plan were
made by Hopwood Swallow Architects on behalf of the University in February 2002.
This is attached at Appendix 1.2. The representation made reference to the concept
of a mixed use development comprising a variety of educational, residential,
business, employment and community uses. Whilst discussions on the future of
Seale Hayne had begun, no formal decisions had been made. It is therefore
important to acknowledge that the representation was considered to be a ‘holding
objection’ in order that a further opportunity to present a case to the Public Local
Inquiry existed.
3.2.7
Stride Treglown Limited were approached in September 2003 to comment upon the
practical options open to the University in progressing a redevelopment and/or re-use
strategy for the Seale Hayne Campus. In particular, advice was sought as to how
best to promote the representation submitted by Hopwood and Swallow Architects.
Upon investigation it became evident (in land use planning terms and in relation to
Local Authority strategic housing targets – supported by subsequent discussions with
Teignbridge District Council) that the proposal that had been submitted to the Inquiry
was untenable due to the substantial element of housing that had been included.
Such a proposition would have been unlikely to be supported because the level of
housing proposed was equal to the residual strategic requirement for housing for the
whole District as calculated by the Council. Concerns were also raised as to the
sustainable advantages of such a concept that would be contrary to Government
guidance and Local Planning Policy.
3.2.8
In September 2003, the University were advised that there was no need for an
immediate input to the Local Plan process and that the most appropriate way forward
would be to investigate the feasibility of promoting a Rural Economy Centre on the
site in advance of making further submissions to Teignbridge District Council. The
results of the Feasibility Study were therefore intended to be used in the formulation
of a detailed case to the Local Plan Inquiry.
3.2.9
The feasibility study, which at that point (September 2003) was envisaged to be
prepared internally within the University, would attempt to define what the constituent
parts of such a concept development might be, and the options for redevelopment of
parts of the site to accommodate commercial research and development, light
industrial and office uses. The feasibility study would also address the scope for
introducing the principle of residential development on the site to support an
integrated development mix.
3.2.10 In the spring of 2004, the University advised that it would be appropriate for the
Feasibility Study to be prepared by consultants. Stride Treglown were requested to
seek expressions of interest from selected consultants able to offer engineering,
highways, environmental and rural business and property commercial services to
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support their own Town Planning and Masterplanning skills. The resultant team,
managed by Stride Treglown, defined, in agreement with the University and the
Steering Committee, the scope of the Feasibility Study.
3.3
Financial Accountability and Management of University Assets
3.3.1
The University of Plymouth are duty bound to work within the parameters of the
“Model Financial Memorandum between the Higher Education Funding Council of
England (HEFCE) and institutions”, published by HEFCE in October 2003.
3.3.2
Under the terms of the Memorandum, the University must ensure that it has a sound
system of internal management and control. This provision requires the governing
body of the University to plan and conduct its financial and academic affairs to ensure
that it remains solvent and that in any accounting period its total expenditure is not
greater than its total income. In addition, the governing body is responsible for
delivering value for money from public funds. It must implement and keep under
review its arrangements for managing all the resources under its control, taking into
account guidance on best practice issued by HEFCE, National Audit Office or the
Public Accounts Committee.
3.3.3
In relation to the management of its estate, the University “shall manage and develop
its estate with regard to the guidance issued from time to time by the Council
[HEFCE] on estate procedures”.
3.3.4
Paragraph 50 of the Memorandum requires that the University “shall maintain its
estate in accordance with a maintenance plan, covering its long term and routine
maintenance requirements”.
3.3.5
In summary, the University is required to manage its estate in a cost effective way
and in accordance with the academic objectives of the institution – in essence as a
tool to deliver academic performance. The October 2002 decision to consolidate the
academic activities offered at Seale Hayne to a central facility/facilities in Plymouth
confirmed that the Seale Hayne campus is surplus to academic requirements. As
such, the University is expected to ensure that a strategy is in place to ensure that
best consideration (financial) is secured for the site after vacation occurs.
3.3.6
This feasibility study aids a wider discussion as to the future strategy to be adopted to
ensure that capital receipt on disposal is achieved. It is not the remit of this feasibility
to comment on or recommend to the University any advice or guidance relating to
specific disposal advice. This will be a matter for the University Governors to discuss
in due course.
3.3.7
Notwithstanding the above, third party comment has been made referring to the long
term “uplift” in land value at Seale Hayne which might be generated by the securing
of planning permission for significant development: this assumes a sale to a third
party and their subsequent pro-activity to deliver a high value development scheme.
In response to this point, the University, under a duty of financial responsibility, would
be able to seek legal safeguards to share in any resultant uplift in land value by the
actions of a third party purchaser. This issue would need to be examined in further
detail and in support of any future decision of the University to adopt an active
marketing campaign.
3.4
Steering Committee
3.4.1
The way in which the decision to vacate the Seale Hayne campus was taken
generated criticism toward the University: this criticism being concentrated upon the
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lack of consultation with third parties. The University is conscious of the need to avoid
a repetition of this and has requested the project team of advisors, working with the
University, suggests an appropriate consultation implementation strategy as part of
future redevelopment proposals that might emerge as a result of the findings of the
Feasibility Study.
3.4.2
It is important to acknowledge that the University has made a clear and corporate
decision to vacate the site. This cannot be reversed. The University is intent on
moving forward by reaching a solution for the campus that will be justified and
transparent within the context of a robust financial framework. The University are
required to ensure that due processes are followed which can be audited: the
University being an accountable organisation that is required to manager its assets in
a responsible manner.
3.4.3
The University considered that the redevelopment and re-use strategy for the future
of the Seale Hayne site should be informed by a specially convened Steering
Committee comprising Governors of the University, selected individuals with an
interest in the site and rural affairs and representatives of Teignbridge District
Council. This Steering Committee met on the 25th June 2004.
3.4.4
It is the purpose of the Steering Committee to discuss and ratify the methods
employed by the Consultant Team in the delivery of the Feasibility Report, to
comment upon draft project findings and drafts as appropriate and adopt the Final
Report.
3.4.5
In advance of the June 2004 Steering Committee, members were presented with a
Draft Project Brief (Appendix 1.3) and Guidance Note (Appendix 1.4), prepared by the
team of advisors in conjunction with direction from the University. Following a
presentation of the draft methodology for progressing the feasibility study (the Brief),
the Committee approved the preparation of the study, subject to the commercial
property advisors concentrating upon the opportunities for a rural based cluster
development, rather than a more traditional employment area in the first instance.
3.4.6
The Agenda and Minute of the first Steering Committee Meeting is attached as
Appendix 1.5.
3.4.7
The terms of reference of the Steering Committee are also included at Appendix 1.5.
These differ from the Feasibility Study Project Brief. The Steering Committee, whilst
ensuring that the Feasibility Study is prepared in a timely and appropriate way, is also
asked to ensure that the University discharges its public duty to maximise the value of
its assets and reinvests to promote and achieve its mission.
3.4.8
This latter objective is at the heart of the feasibility study. The consultant team have
been requested to consider the viability and deliverability of a Rural Economy Centre,
or in the event that such as concept is undeliverable/unviable, to consider the delivery
of a more traditional business park of critical mass in order to achieve maximum
capital receipt on disposal. It is not for this feasibility study to assess the viability of
development options that would not promote this objective.
3.4.9
Third party representations have been submitted during the course of the Feasibility
Study which support a retained University presence on site, or which support an
altruistic approach to estate management on the part of the University. These
comments have been acknowledged and summarised in Section 17 below. However,
detailed comment and/or responses to these suggestions are made only in the
context of the scope of the Brief and the Terms of Reference of the Steering
Committee, namely that such suggestions are not to be assessed or considered in
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detail in this feasibility study in the light of the decision to vacate the Seale Hayne site
and the requirements to adopt financially robust estate management practices in
accordance with HEFCE, National Audit Office and Public Accounts Committee
guidelines.
3.5
Communication
3.5.1
The University acknowledges the importance of establishing meaningful and effective
communication with members of the public and third parties in addressing significant
developments associated with the University. It is important however that there is a
commonly agreed strategy with which to consult: there being little point engaging with
third parties on a development strategy which is not considered, following detailed
investigations, to be a viable proposition.
3.5.2
In order to assist the delivery of an effective future communications strategy, the
University’s public relations team and Stride Treglown have formulated a dedicated
and comprehensive approach to consultation and communication. A “Communication
Matrix” has been prepared which identifies those parties that are likely to have an
interest in the delivery of redevelopment and/or reuse of the Seale Hayne site. This is
drawn from a number of sources, including;



Historic Press Cuttings
Local Plan Representations submitted to Teignbridge District Council
Statutory Consultee responses.
We have also included a number of potential consultees drawn from the following
categories:









3.5.3
Political,
Government and Non-Governmental Organisations
Teignbridge District Council Departments
Business Sector
The University of Plymouth
Education interests
Community Groups
Service providers and
Governors of Seale Hayne / University
A number of informed assumptions have been made to highlight one of more “topic
issues” which these parties are likely to have a future interest. The “Topics” identified
include;










Agriculture
Housing
Employment and Economy
Tourism
Environmental / Ecological
Listed Building / Built Heritage
Visual Impact
Community Facilities
Recreation
Transportation
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3.5.4
Notwithstanding the importance placed upon communication by the University, in the
event that the University are to promote a development option(s) for the campus, the
provisions of the 2004 Planning and Compensation Act encourage proponents of
major developments to engage with member of the community and local stakeholders
in advance of submissions to Local Planning Authorities.
3.5.5
The Communication Matrix (which is referred to in Chapter 17 and attached at
Appendix 1.12) also suggests the most appropriate and effective way of consulting
and engaging with the particular interests and groups. The information contained in
the matrix is therefore available to the University to begin a detailed consultation
programme should such proposals be pursued.
3.5.6
The consultation “strategy” as set out within the Communications Matrix has not been
implemented. The communication matrix (Appendix 1.13) was designed to inform the
promotion of an integrated or single land alternative land use strategy for the site.
This strategy was to involve the preparation of a Development Brief for the site. As
the project developed, and as the results of the tenant demand indicated, the
promotion of a clearly defined land use strategy was called into question.
3.5.7
Notwithstanding the above, the information contained in the Communication Matrix is
valuable in the sense that those parties identified are deemed by the Consultant
Team to have an interest in the future use or redevelopment of the site. The
University may wish to use the contacts listed as part of any land use or associated
strategy for the site.
3.5.8
On a final note, the project team consider it important to draw the University’s
attention to the fact that the detailed business survey undertaken by Savills (referred
in detail in Chapter 16) highlighted that 44% of respondents were aware of the
“proposals” being considered at the Seale Hayne site. We take this to refer to the
preparation of the Feasibility Study in relation to the long-term use of the campus. It is
also conceivable that some of these respondents were referring to, or were aware of
“proposals” being promoted in the press by the Seale Hayne Future Group as a Rural
Economy Centre (or similar).
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SITE LOCATION AND DESCRIPTION
4.1
Location
4.1.1
The site that is the subject of this Feasibility Study is highlighted on Plan 1 at
Appendix 1.1. The study area excludes land at Darracombe Farm which is also under
the ownership of the University.
4.1.2
Seale Hayne Campus comprises 186 hectares of land comprising the academic
buildings, arable farmland, pasture and set aside land to the north west of Newton
Abbot off A383. The land rises up towards the northwest and can be clearly seen
from the western limits of Newton Abbot and A383. Further west and beyond the
higher land is the eastern extent of the Dartmoor National Park.
4.1.3
The campus of Seale Hayne College sits in the approximate centre of a triangle of
roads formed by:



A38(T) primary route to the northwest
A382 principal route to the northeast
A383 principal route to the south.
4.1.4
In planning policy terms, the site is located outside a defined settlement boundary
and therefore is within “open countryside” where restrictive land use policies apply.
These are discussed in Section 5 below.
4.2
Description
4.2.1
On the northeast part of the estate is a nucleus of buildings utilised for teaching,
administration and student accommodation. In the centre of this grouping is the
historic core, an ornate quadrangle and tower designed by Gutheridge and
Gutheridge which was completed in 1914 within a landscaped setting. Adjacent to
this are a complex of more modern buildings and laboratories having all been
developed in 20th Century.
4.2.2
South of the main quadrangle is a collection of barns and other store buildings
associated with the agricultural activities being carried out on the site. To the west,
and devoid from the main campus but within the site, is the college farm which
comprises a number of buildings dating from c1900, along with some more modern
barns. Surrounding uses include open areas of farmland, woodland and a disused
quarry.
4.2.3
The minor road links between the college campus and the A382 and A383 are narrow
with generally poor horizontal alignment.
4.2.4
Topographical surveys have not been prepared at this stage of the wider
redevelopment project. There is however a significant height differential across the
site from the higher northern area falling steadily to the south. The main quadrangle is
situated on a small, relatively narrow plateau. Indeed, the main educational core can
be described as being built on a series of small terraces, well below the skyline. The
core site enjoys panoramic views across the Lemon Valley and east to Newton Abbot
and Shaldon beyond.
4.2.5
The boundaries of the campus extend from around the very highest contours of the
ridge to the lowest, alongside the River Lemon.
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PLANNING BACKGROUND
5.1
Planning History
5.1.1
The campus has an extremely detailed planning history with approximately 100
Planning and Listed Building Consent applications having been submitted for the site
since it began use as an agricultural college in 1912.
5.1.2
Teignbridge District Council has supplied a full schedule of all development proposals
submitted. This is attached as Appendix 1.6. In summary, the key applications are
considered to be:





Library Block (May 1971)
Sports Hall (February 1972)
Construction of North Wing to the Frank Parkinson block (June 1972)
Science building including four laboratories (October 1978)
A dining hall and kitchen block (July 1981)
5.2
Land Use Survey
5.2.1
There a number active uses on the campus. These are identified on Plan 1 at
Appendix 1.7.
5.2.2
The Seale Hayne campus extends to some 186 hectares, the vast majority being
agricultural fields, centred upon a complex of farm buildings within the estate. The
core academic campus,
5.2.3
Principal buildings include:

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








5.2.4


The main quadrangle, put to a mix of teaching, office, residential, catering and
medical uses.
Frank Parkinson House, comprising 170 bed spaces, with shared bathroom and
kitchen facilities.
Chapel
Lecture Theatre (400 seat capacity)
Thompson Laboratories (single open plan space)
Library (with mezzanine floor)
Food Technology Unit (Laboratories)
Hayter-Hames Building (Previously use for examination and display of large
agricultural machinery – divided space with undercroft rooms and stores)
Science Laboratories
Howton House. Formerly the Deans House, now put to research uses.
Refectory: vehicular access achieved through the farm-building complex.
Agricultural Laboratory
Sports Hall, Playing fields and Pavilions (on land measuring some 5.9 hectares).
Outlying cottages, barns and agricultural storage.
Residential properties, on land measuring some 1.7 hectares.
Formal car parking areas are spread across the site.
Operational Farm Buildings comprise:
Howton Farm, located immediately below the main campus area.
Bradmores Farm located in the midst of the estate.
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5.2.5
Residential properties owned by the University are tenanted by either staff or
students. Some are protected tenancies.
5.3
Listed Buildings and Curtilages
5.3.1
In March 2000, the historic quadrangular core of the college was Listed (Grade II).
The Listing (attached as Appendix 1.8) notes that the college building was designed
by Gutheridge and Gutheridge and makes specific reference to the large central
gatehouse tower and notable octagonal corner turrets. No other buildings on the site
are Listed.
5.4
Tree Preservation Orders
5.4.1
Teignbridge Council has confirmed that none of the trees on the site are protected by
preservation orders.
5.5
Agricultural land classification
5.5.1
DEFRA have confirmed (Appendix 1.9) that the majority of the agricultural land within
the site is Grade 3 standard with some Grade 2 quality land located near to
Bradmores Wood as shown on Plan 1 at Appendix 1.9.
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Final Report
PLANNING POLICY FRAMEWORK
6.1
Planning and Compensation Act 2004: Planning Framework
6.1.1
In May 2004, the fundamental basis of Town and Country Planning in England
changed with the Royal Assent of the Planning and Compensation Act 2004. In
practical terms the historic two-tier system of Structure and Local Plans will switch to
a new single-tier 'Local Development Framework' in accordance with Regional Spatial
Strategies. Local Planning Authorities will now be required to prepare a portfolio of
Local Development Documents which will include an overall vision and strategy for
their district: this will include key policies and proposals for development throughout
the area.
6.1.2
For those Local Authorities whose Local Plan process is far enough advanced (i.e.
Local Plan adoption within the next 12 months), Local Plan documents will be fully
prepared and adopted. For the remainder, a three-year transitional period has been
introduced for Local Authorities to move towards the new system. In such cases,
Local Plans are being abandoned to make way for the preparation of Local
Development Frameworks.
6.1.3
Teignbridge District Council made a strategic decision in early 2004 to abandon the
draft Local Plan 2001-2011 in favour of the new Local Development Framework: this
decision being in advance of the new Planning Act. The way in which the Council will
implement transitionary arrangements was adopted in July 2004.
6.1.4
Under the new planning system, large redevelopment sites and areas under great
development pressure are to be promoted by ‘Area Action Plans’. This was
considered by the project team of advisors to be the most appropriate manner in
which to address the development of the Seale Hayne Campus.
6.1.5
Teignbridge District Council however will not be looking at individual sites in the
context of area action plans, which they have defined as main urban settlements,
such as Newton Abbot. The development of major sites will be considered in the form
of site-specific policies which will need to have due regard to the overall development
strategy for the area. At the time of writing, the Council has not published the “options
and issues paper” for the general development strategy that will inform the
development of individual development sites.
6.1.6
The transition from one planning system to another does not prevent the promotion of
the Seale Hayne campus as the use of site Development Briefs are still considered
appropriate. Development Briefs can be used for a number of purposes, but
ultimately they seek to reduce developer uncertainty though detailed site
investigations and therefore inform the potential scale and land use mix of
development which will in turn assist the marketing of the site as part of a disposal
strategy.
6.2
Countryside Policies
6.2.1
The Council formally adopted the Teignbridge Local Plan in October 1996. This is the
first statutory Local Plan for the whole of Teignbridge, but excludes the part of the
district situated within the Dartmoor National Park. The Dartmoor National Park
Authority is responsible for the preparation of its own Local Plan.
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6.2.2
The Teignbridge Local Plan sets out the Council’s policies and proposals for the
development and use of land. It shapes the future development of Teignbridge, and
provides a firm basis for rational and consistent planning decisions and a measure of
certainty to indicate the kind of development that will or will not be permitted.
6.2.3
Although the Teignbridge Local Plan covers the period from 1989 to 2001, it still
remains in force for the purpose of guiding development and the determination of
planning proposals.
6.2.4
The Seale Hayne Campus is designated as being located with the Countryside,
subject of Policy ENV4. Policy ENV 4 states;
“In the Countryside, as defined on the Proposals Map, Policy CDE1 of the Devon
County Structure Plan – Third Alteration applies. Wildlife interests will also be taken
into account. In considering development proposals, particular attention will be paid to
the scale of development and to its siting, layout and appearance”.
6.2.5
In relation to the change of use and conversion of buildings in the countryside,
proposals will be considered in accordance with the criteria set out in Policy ENV7
(see below). The Council consider the successful conversion of buildings will be
achieved through compliance with these criteria. The Council accept that the re-use
of buildings can provide opportunities for the economic diversification of the rural
economy and encourage new enterprises to provide jobs in rural areas. Uses of value
to the local rural economy are listed in the adopted plan – see Criterion 1 of ENV7
below.
6.2.6
Buildings in the countryside which do not have easy access to community facilities
and services will, in most cases, be considered unsuitable for permanent residential
uses in accordance with the strict controls over housing in the open countryside.
Residential conversions are considered by the Council to have particular detrimental
effects on the character of buildings and any new use should be sympathetic to the
rural character of the area.
6.2.7
In the context of Seale Hayne, the visual impact created by the existing development
has resulted in the site being part of the wider character of the area and therefore
conversion of certain parts of the buildings to residential use will be considered in the
context of sustainable development criteria and the proximity to local shops and
services. The Council have, during discussions with the team of advisors, suggested
that the site is remote and divorced from any settlement boundary and as such,
considerable residential use would not be welcome.
6.2.8
Policy ENV 7 refers to the conversion and change of use of buildings in the
countryside. In summary, the policy states, at al, that
“…proposals for the change of use or conversion of buildings will be permitted
provided that:
a)






the proposed use is either for:
purposes ancillary to agriculture,
community, recreation or tourist facilities,
Crafts, light industrial or related business uses,
Holiday accommodation
Would otherwise be of benefit to the local rural economy
In the case of residential conversion, easy access to community facilities and
services.
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b) their form, bulk and general design are in keeping with their surroundings,
c) the building is structurally sound to allow successful conversion without significant
alteration, rebuilding or extension.
d) the new use is sympathetic to the rural character of the building,
e) satisfactory drainage can be achieved,
f) the use does not give rise to unacceptable traffic conditions and does not prejudice
the amenities of adjoining neighbours,
g) the protection of existing residential amenities,
h) Wildlife protection,
i) where proposals relate to the conversion of a proliferation of agricultural buildings,
permitted development rights would be removed.”
6.3
Residential Policies
6.3.1
In relation to residential development, the adopted plan contains policies that direct
new major housing developments towards and within main settlements (Policies H1
and H2). The plan makes an allowance for limited residential development in other
areas provided they are located within defined village envelopes as shown on the
proposals map (Policies H3 and H4).
6.3.2
Residential development in the countryside (outside settlements) will not be permitted
unless it is:


Essential to the needs of agriculture, horticulture, forestry or other rural business.
Related to the conversion of suitable buildings in accordance with Policy ENV7
(above),
Housing for local needs (affordable housing)
Alterations and extensions to existing buildings where no new dwellings are proposed
Replacement dwellings (in certain circumstances)
And where environmental, landscape impact, nature conservation and infrastructure
arrangements can be protected or provided for as appropriate.




6.4
Employment Policies
6.4.1
In relation to employment development, the Council have stated objectives of
encouraging employment opportunities to meet local need and to provide a healthy
economy for the district. The Council are also obliged to promote and encourage the
most effective use and environmental improvement of existing employment land and
to permit employment development of an appropriate scale in or on the periphery of
rural settlements provided that the proposal does not have a detrimental impact upon
the visual or physical environment.
6.4.2
Policy E3 states that outside existing, permitted or allocated sites, employment
development will be permitted provided that the Council is satisfied that the proposed
development:


Is well related to an existing settlement
Is in scale and harmony with its surroundings
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
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Will not cause environmental concerns
Will not create unacceptable traffic conditions.
6.4.3
Particular attention will also be given to the development of small industrial units.
(Policy E3)
6.4.4
Proposals for the alteration and conversion of existing rural buildings for employment
purposes will be permitted in accordance with Policy ENV7 (See above) (Policy E5).
6.4.5
The Revised Deposit Local Plan, published in April 2000 and covering the period
2001-2011 is not yet adopted. The sentiments of the policies set out in the adopted
1996 Plan are relevant to the revised plan. For this reason we have not replicated the
polices at this conjuncture. Extracts taken from both the adopted and revised deposit
plans are attached at Appendix 1.10.
6.5
Summary
6.5.1
At first inspection, the policies of the adopted local plan applied to areas of open
countryside are not helpful to the comprehensive redevelopment of the Seale Hayne
campus. The site is remote from existing settlement boundaries where the Council
have made it clear (during discussions in 2004) that they would not support a
considerable net increase in new build activity on the site given that, in their opinion,
such proposals would promulgate an unsustainable development form.
6.5.2
Given that the notion of a Rural Economy Centre requires a critical mass to be
achieved, the Council have not offered satisfactory comfort that a Rural Economy
Centre would be welcomed in land use planning terms.
6.5.3
However, on closer inspection, polices concerning the conversion of existing
buildings (rural or otherwise in a rural setting) would appear to offer opportunities for
alternative uses. The delivery of these uses would be subject to market demand and
the ability of the University to promote an integrated and strong planning case linked
to a planning application(s).
6.5.4
The fact that policies refer to the principle of the conversion of such buildings for
alternative uses does not negate the need for formal applications to be submitted.
6.5.5
The uses identified as acceptable include those listed in Policy ENV7, namely,





purposes ancillary to agriculture,
community, recreation or tourist facilities,
Crafts, light industrial or related business uses,
Holiday accommodation
Those uses that would otherwise be of benefit to the local rural economy
6.5.6
In the event that a Rural Economy Centre cannot be delivered on site, by virtue of
either land use planning objection, or lack of tenant demand, the promotion of a mix
of uses along the lines suggested above would appear to offer potential, all other
things being equal.
6.5.7
However, as Scott Wilson have reported, the change of use of existing
accommodation to commercial business uses would alter the theoretical traffic flows
to and from the site. Whilst it is accepted that different uses will generate different
levels of traffic, the conversion of the existing building stock at Seale Hayne to a mix
of uses as set out above could cumulatively result in a level of traffic that would
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require either marginal or major (expensive) highway improvements to the local
network.
6.5.8
This has not been investigated as this stage given that the report is concentrated
upon the delivery of a Rural Economy Centre and it would not be cost-effective to
calculate numerous iterations of land use mix without a clear indication of the
attractiveness of the site to the market for these uses.
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BUILDING SURVEY INFORMATION
7.1
Overview of Building Stock
7.1.1
In order to appreciate the potential of the existing building stock to be re-used in
association with alternative land use proposals, in July 2004 a survey of the site was
undertaken by a qualified Building Surveyor within Stride Treglown Limited. The
purpose of the study was not to prepare a detailed schedule of building condition, but
rather a cursory inspection to ascertain key potential constraints to re-use. As such,
no intrusive interior surveys were undertaken. A detailed building survey would be
recommended in association with, and in advance of, any disposal strategy.
7.1.2
A summary of the survey is set out below. The detailed survey is attached as
Appendix 1.11.
7.1.3
In essence, the building stock reflects a number of distinct development phases that
have combined to form the current building arrangement. The key phases are as
follows;





Original construction phase: 1910-20
Phase 2: 1930-40’s
Phase 3: 1950-60’s
Phase 4: 1970-80’s
Phase 5: 1990’s
7.1.4
The agricultural buildings span across all the above phases.
7.1.5
The phases of development are shown on plan form at Appendix 1.11. This should be
read in conjunction with the Schedule of Accommodation Report, also attached at
Appendix 1.11.
7.2
Phase 1 (1910-20)
7.2.1
The original construction is of loadbearing masonry construction employing facing
brickwork with ashlar stone dressings to openings and other features. The roofs are
generally covered with natural slate roofing. Due to the quality of the original
construction these buildings remain in generally sound condition. Internally the
buildings are generally well maintained but the facilities are in places still original and
thus dated.
7.3
Phase 2 (1930-40’s)
7.3.1
This period of construction is limited to a few buildings on the farm site but generally
reflect the original construction albeit in a slightly less ornate fashion – it is possible
that these date from the period of original construction.
7.3.2
These buildings appear in sound condition, although they were not inspected
internally.
7.4
Phase 3 (1950-60’s)
7.4.1
This phase of construction, which provided further buildings in all areas, again reflects
the original load-bearing masonry design with slate, copper or flat roof coverings, all
with increasingly simplified detailed design.
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7.4.2
These buildings remain in generally fair condition, although there are instances of
significant outstanding maintenance particularly in respect of some roof coverings,
which appear to be problematic.
7.5
Phase 4 (1970-80’s)
7.5.1
This group of buildings includes more of the previous forms of architecture but also
includes examples of emerging forms of design, notably the Sports Hall, the Science
Laboratories and the Refectory.
7.5.2
The Sports Hall introduces large uninterrupted loadbearing masonry panels together
with pre-cast concrete panels at high level. There appear to be problems with the
weather-tightness of certain elements of this building together with some signs of
movement in the ancillary accommodation.
7.5.3
The Science Building employs some elaborate brickwork detailing and a ‘complicated’
roof form. The parapets appear to be problematic and the roofs are reported to have
leaked since the building was originally constructed.
7.5.4
Similarly the roof to the Refectory shows signs of leakage – certainly the quality of
some of the slates employed in its construction are suspect.
7.6
Phase 5 (1990’s)
7.6.1
There was limited development in the 1990’s, which relates mainly to extensions of
existing buildings including extensions to the Students Union and the Great Hall –
here the extensions have reverted to construction reflecting the original form, but with
isolated 1990’s influences e.g. the glazed canopy to the Student’s Union Building.
7.6.2
The quality of this construction whilst obviously meeting the improved standards of
the 1990’s does in fact show signs of deterioration due perhaps to being ‘built to a
price’.
7.7
Summary
7.7.1
The agricultural buildings span across all the above phases. These buildings are, as
would be expected, generally of a utilitarian quality, again reflecting the periods of
construction outlined above as the farm was developed in tandem with the College.
7.7.2
With the exception of the Agriculture Laboratory and the Maintenance Building, which
are in reasonable condition (although these were not inspected internally), the
remainder are in only of a satisfactory-poor condition.
7.7.3
Overall the buildings generally appear to be well maintained where of traditional
construction. Where there are problems inherent in the later forms of construction
these appear to remain unresolved.
7.7.4
With the exception of the very latest work, most of the building stock will be
uninsulated or only insulated to a very low level. This could prove to be a very costly
element to improve.
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ECOLOGY AND NATURE CONSERVATION CONSIDERATIONS
8.1
Summary
8.1.1
Scott Wilson were commissioned to carry out a baseline ecological appraisal of land
within a 50m radius of the campus site. A Phase 1 Habitat survey of this study area
was undertaken during August 2004. The aim of the survey was to identify the type,
quality and extent of habitats present within the site and to identify the potential of the
site to support notable or protected species. Records of statutory and non-statutory
designated sites and notable species within the site were requested from relevant
organisations. A copy of the survey is attached at Appendix 2.1.
8.1.2
Campus buildings vary in age and construction, and not all are occupied. The
habitats in the immediate vicinity of these buildings mainly include semi-improved
grassland, poor semi-improved grassland, scrub and a pond. There is much
landscaping and ornamental planting evident across the site.
8.1.3
There are no designated sites within the study site, however two local wildlife sites
within the wider Seale Hayne estate exist. These are Bradmores Wood to the west of
the study site, and Higher Staplehill Quarry to the north.
8.1.4
Although the habitats on the site are, at best, of no more than local importance for
nature conservation, there is potential for some protected species to be present.
There is evidence that bats are roosting within a number of buildings. Many of the
other buildings and mature trees within the study site are thought to have the
potential to support bat roosts. An internal search by a licensed bat worker would be
recommended as part of any future detailed assessment of development potential –
and in any event prior to any demolition or significant alteration. Should a bat roost be
located, a licence will be required from the Department for Environment Food and
Rural Affairs (DEFRA) prior to the commencement of works.
8.1.5
The mosaic of habitats at the study site has potential to support a number of breeding
bird species. Further survey work may be required to determine the importance of the
site as a breeding bird habitat. The pond, and areas of scrub, bare ground and
shorter grassland have potential to support amphibian and reptile species. Further
survey work to establish the use of the site by Great Crested Newts (Triturus
cristatus) and reptile species is also recommended, depending on the plans for
redevelopment.
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LANDSCAPE AND VISUAL IMPACT APPRAISAL
9.1
Development Strategy - Overview
9.1.1
The study area consists of a mix of a varying age structure campus style
development, situated within an agricultural landscape, of arable and pastoral
activities. The text below is a summary of the landscape and visual impact report,
prepared by Scott Wilson Kirkpatrick. This is included within Appendix 2.5.
9.1.2
The main landscape elements of significance are the Devon hedgebanks systems
and farm woodlands, which act as boundary and shelter features. Visually the site is
well contained by the natural topography and screening function of the Devon
Hedgebanks, with the main views out of the site being to the south and east.
9.1.3
A number of visual receptors and viewpoints were identified which will have direct
views into the site, however, the majority of these receptors, could have any adverse
visual impacts significantly reduced through landscape mitigation proposals; for
example views from receptors in the secondary ZVI egg Hele Golf Centre could be
reduced by allowing the existing vegetation within the Devon Hedgebanks to grow,
increasing the screening function of these elements. New screen belts could also be
planted which would not only reduce the visual impact but would also aid the
conservation and wildlife value of the site.
9.1.4
Receptors within the primary ZVI could also receive similar mitigation along with the
sensitive placement of any new development to establish the best fit into the existing
landscape.
9.2
Redevelopment Of Existing Campus
9.2.1
Any future development strategy would be likely to be divided into two separate
areas. Firstly, the redevelopment of the existing built forms of the campus and,
secondly, any new development within the surrounding landscape.
9.2.2
Any redevelopment of the existing campus, including any replacement of older
buildings with new ones of a similar scale, will have the following perceived impacts: -
9.2.3
Landscape: It the event of re-provision of accommodation of a higher standard, it is
likely that any new buildings will be on a similar scale to existing ones. It is
considered therefore that there will be an insignificant impact. However, indirect
impacts are also likely to take place during the period of construction including stock
pilling of materials on site, creation of temporary hard standings, contractor
compounds and a significant increase in vehicle movements to and from the site.
9.2.4
Visual: Due to the fact that any new development will replace existing built forms, if
designed sympathetically and of a similar scale and massing it will have a limited
visual impact.
9.2.5
However if the scale of the new built form was to increase then the impacts upon the
landscape and visual receptors would also increase, choice of materials, design,
position and associated landscape proposals would all help to limit any detrimental
affects.
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9.2.6
It should also be noted that many parts of the existing campus are of limited
architectural merit of design and as such redevelopment of such areas could result in
beneficial impacts on both the landscape and visual amenity.
9.3
Development Within Surrounding Agricultural Landscape
9.3.1
Redevelopment within the surrounding agricultural landscape will have the following
perceived impacts:
9.3.2
Landscape: There will be a severe impact upon LCA 2 (Agriculture), due to the fact
that the development is likely to take place on a green field site containing little built
forms. Any development will therefore result in a change of character. Impacts will be
greatest during construction although it would be anticipated to reduce, following
construction and during the maturation of the development. As the campus site takes
in a small section of an area of local amenity importance, it is imperative that the
setting and character of this site is not detrimentally affected by any new development
located close by.
9.3.3
It will be necessary to carry out a range of landscape mitigation measures including
the setting of built forms within the development, colour, scale, lighting and landscape
treatments to ensure that any negative impacts are reduced.
9.3.4
Visual: Any development within existing green field sites where visual receptors have
been identified will have a negative impact. These impacts as previously stated are
likely to be most significant during the construction phase of the development
reducing following the day of opening, as mitigation measures mature.
9.3.5
Due to these impacts upon visual receptors a range of mitigation measures including
size, scale, reflectivity and colour of buildings to lighting proposals and screen
planting need to be mitigated within any future development proposals.
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10 LAND QUALITY CONSIDERATIONS
10.1
Summary
10.1.1 A Land Quality Assessment was conducted in accordance with the agreed Project
Brief. Information concerning the site and surrounding area was collected during the
period 14th June to 11th August 2004. The full results of the assessment are attached
at Appendix 2.3.
10.1.2 The overall site covers an area of approximately 186 hectares and is centred on
National Grid Reference SX 827 730. The site generally slopes at an angle of 20 to
30o to the south and is situated to the west of Newton Abbot and south of the A38.
Existing buildings are situated on a number of “plateaux” within the context of a
graded site.
10.1.3 The geological map for the Newton Abbot area shows that the ground beneath the
site consists of slates, shales, mudstones and localised limestone of Upper Devonian
age.
10.1.4 Water abstractions in the area are generally for farming and domestic purposes. No
integrated pollution control licences; air pollution authorisations or enforcement or
prohibition licences are registered within a radius of one kilometre of the site. There
are no particular sensitive sites from a ecological, scientific or landscape viewpoint
and only one landfill site is recorded, 629 metres distant.
10.1.5 There are areas of the site where there is a potential for minor contamination,
however, these areas are predominantly covered in hardstanding so the risk to end
users is significantly reduced. What is more of a concern on the site is the potential
for diffuse pollution from agrochemicals and manure which is harder to assess and
quantify. Information regarding the past and current use; storage and disposal of
pesticides, fungicides and herbicides would be particularly useful to determine the
risk to end users and the environment.
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11 TRANSPORTATION CONSIDERATIONS
11.1
Summary
11.1.1 A full transportation assessment has been completed for the site and is attached at
Appendix 2.4. The highway assessment highlights the general inadequacy of the
minor roads linking the campus to the main road network. This is likely to be a limiting
factor on potential redevelopment. The College itself, when fully operational,
generated a reasonable amount of traffic movement and it is assessed that this
equates to an office use of approximately 11,450sqm or a business park use of
17,930sqm. It is suggested that these figures be used as a guide to the size of
development that could come forward without a requirement to carry out highway
improvement works beyond the immediate vicinity (i.e. beyond Forches Cross).
11.1.2 If the development is kept within these limits it has been confirmed that the Highway
Authority would require a contribution to an improvement to the Forches Cross
junction. There is currently no in-house design and hence it is difficult to estimate a
cost. On the basis that traffic flows associated with the development would be around
the same level as previously experienced it has been agreed that Seale Hayne would
not be expected to fund the full cost of a scheme and hence a contribution of around
£50,000,00 would appear prudent at this stage.
11.1.3 It should be borne in mind that Seale Hayne has no influence over the land either
side of the minor road route between the Campus and Forches Cross and the
inadequacy of this route will act as a restraint to its use. The Howton Lane junction is
considered to operate satisfactorily at current flow levels and no improvement is
suggested here.
11.1.4 If a form of development is proposed which significantly increases traffic flows then a
detailed Transport Assessment will be required to demonstrate the impact of the
increase. This Assessment will cover the highway network generally westwards out to
the A38 via the A382 and A383 and generally eastwards to the road linking the A382
and A383 within Newton Abbot. The Highways Agency require that junction testing
should consider the situation 15 years beyond the completion of the development and
this takes into account background traffic growth unrelated to the development. This
is a particularly onerous requirement.
11.1.5 Improvements have recently taken place to the slip roads at the Drumbridges
Interchange (A38/A382). It is difficult to envisage the scale or practicality of carrying
out works to achieve a further capacity increase. At the Caton Interchange
(A38/A383) it is apparent that the westbound on-slip is shorter than desirable due to
the presence of the minor road junction further to the west. Should the Highways
Agency require that this situation is improved the cost is likely to be very substantial.
Highway capacity assessments will need to be undertaken in the context of individual
development future use proposals for the site. For the purposes of this feasibility
study, an assessment has been carried out in relation to a REC or more traditional
business park of “critical mass”.
11.1.6 Closer in to the site, the full cost of improving Forches Cross would fall on Seale
Hayne. As no scheme has been identified – primarily because there is no obvious or
cheap solution – a conservative estimate would be £250,000-£500,000. There would
be a need to provide a number of passing places on the minor route between the
Campus and Forches Cross.
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11.1.7 The land required for these is not within the control of the University. The cost is
estimated at between £100,000-£200,000. While no detailed analysis has been
undertaken of the A382/A383 link within Newton Abbot a figure of £100,000-£200,000
might not be unrealistic. The overall cost for the improvement to the local road
network could be in the range £450,000-£900,000. This could be called for with even
a modest increase in traffic generation.
11.1.8 In summation, as far as they can be estimated at this stage, the contributions towards
highway improvements depending on the level of development could be as follows:



development with a similar level of traffic generation to existing - £50,000
development with a minor increase in traffic generation - £450,000-£900,000
development with a significant increase in traffic generation – not quantifiable at this
stage. Any amendments to the A38 junctions are likely to be extremely expensive.
11.1.9 Further detailed cost schedules will need to be prepared in conjunction with any
detailed design work to alter existing or create new access junctions. The figures
referred to in this report are initial feasibility estimates and will need to be
corroborated by technical studies in line with specific development or re-use
proposals. Should the development industry come forward with land use proposals
for the Seale Hayne site, they will wish to ensure that an accurate cost and planning
risk register is undertaken in relation to their specific proposals. Such costs and
liabilities will ultimately assist their financial offer to the University.
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12 UTILITY USAGE AND CAPACITY
12.1
Gas
12.1.1 Gas-fired and oil-fired heating plants predominantly provide space heating and
domestic hot water heating. Currently, gas accounts for approximately 60% of the
total heating requirements with the remainder being oil-fired.
12.1.2 The peak-heating load for the buildings currently heated by oil has been estimated
using the oil consumption information provided by the Client.
12.1.3 If the buildings currently heated by oil were converted to gas Transco have advised
that the existing 180mm PE low-pressure gas main could supply the total heating
demand of the site as it currently exists.
12.1.4 As an alternative, the available gas capacity could be utilised to supply any further
additional development and the existing oil-fired plant retained.
12.2
Electricity
12.2.1 Five transformer sub-stations serve the site with a combined capacity of 750kVA.
12.2.2 Historically, the maximum demand of the site has been in the order of 550 to 600
kVA.
12.2.3 Should the site be re-developed as a Rural Economy Centre the estimated load could
be as high as 960kVA. This however, does not take account of possible further
development of the site in the form of new buildings.
12.2.4 Consideration may need to be given to reinforcement of the existing supply but this
will depend upon the nature of any future redevelopment.
12.3
Water
12.3.1 The site is served by a mains water supply. Within the confines of the site water is
distributed to various buildings. Should the site be re-developed as a Rural Economy
Centre it is considered that the existing water supply would be adequate. To reduce
demand on the existing supply, additional storage within buildings could be provided.
This however, does not take account of possible further development of the site in the
form of new buildings.
12.4
Summary
12.4.1 The site is well served by the existing incoming gas, water and electricity supplies.
Historically, there appears to have been no difficulty in meeting the demands of the
site.
12.4.2 The existing incoming services should be capable of serving the site should it be redeveloped as a rural economy centre. If however, the site is further developed with
additional buildings then some reinforcement may be necessary.
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13 REVIEW OF COMPETING DEVELOPMENT SITES
13.1
Overview
13.1.1 The Seale Hayne campus site is one of many sites in the District that offers
redevelopment potential to come forward in the emerging Local Development
Framework period to 2011. Teignbridge Council are in the process of preparing an
“Options and Issues” report, which is due for publication in late Spring/ early summer
2005. This report will highlight the various development strategies that are capable of
coming forward over the next 6-10 years in order to meet strategic development
targets in a sustainable manner.
13.1.2 There are a number of strategies that appear open to the Council at this point in time.
They include:



“Concentration” – targeting all development to main settlements
“Dispersal” – spreading the development to a larger number of towns and villages in a
pro-rata fashion.
“Single Growth Strategy” – concentrating the majority of all new development in one
location as part of a new Community scheme able to provide a mix of residential,
employment and service uses.
13.1.3 At the time of writing, the Project Team are not aware of the range of options which
are to be presented for consultation. Understanding the options and the political and
local support for each one will be important in due course in order to shed light on the
chances of the Seale Hayne site to form part of the overall development strategy for
the District.
13.1.4 Representations in support of alternative development uses which may be informed
by the results of this feasibility study may be required as part of the consultation
period in the summer of 2005. At that point in time, it is advisable to actively promote
the principle of re-use and /or redevelopment on site to come forward in the next 6-10
years. This will increase the chances of securing a favourable allocation or policy
foundation in the new Local Development Framework that in turn will increase
developer interest in the opportunities presented by the site.
13.1.5 The Council are likely to draw upon those sites allocated for development in the Local
Plan Deposit Draft as part of the future overall strategy. This is the view taken by a
number of Authorities. These sites have already been considered acceptable for
development and would have been supported by the Council at any future Inquiry.
There may be additional new sites which are considered appropriate, hence the need
to review emerging documentation.
13.1.6 Set out below is a schedule of employment and residential sites that may be
competing with the development potential represented by the opportunities that may
be presented at the Seale Hayne site.
13.2
Employment Sites
13.2.1 The First Deposit Teignbridge District Local Plan has been used to identify those sites
that are competing for employment development in the local area. Whilst this
information is not taken from the adopted Local Plan, it provides the latest available
list of those sites that are preferred for employment use by the Local Planning
Authority. Indeed, sites allocated in the adopted Local Plan would have now been
developed out.
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13.2.2 The settlements that are to be of closest relevance to the Seale Hayne campus are
Newton Abbot, Kingsteignton, Bovey Tracey and Heathfield.
13.2.3 The sites of relevance are identified as follows:
1.
Newton Abbot – Two sites at Collett Way, Brunel Road (0.60ha and
0.55ha).
Brownfield site close to A380 identified for B1, B2 and B8 development (Commercial,
light industrial, general industrial and storage and distribution uses).
2.
Newton Abbot - Jetty Marsh (4.53ha)
Brownfield Site allocated for B1 development only and requiring substantial
contributions to the Jetty Marsh Northern Link Road as well as comprehensive screen
landscaping.
3.
Newton Abbot - Long Lane (5.98ha)
This is a greenfield site comprising existing playing fields on the eastern extent of
Newton Abbot. Allocated for B1, B2 and B8 uses although not offices unless
supported by a Green Travel Plan and a Transportation Assessment. The allocation
indicates that the developer must provide compensatory playing fields and
contributions to highways improvements as well as screen landscaping.
4.
Kingsteighton - WBB Clays Abbrook Works (3ha)
This is a "brownfield" former clay extraction site on the west of Kingsteignton.
Allocated for B1, B2 and B8 uses although not offices unless supported by a Green
Travel Plan and a Transportation Assessment. The allocation indicates that the
developer must demonstrate that the underlying clays are worked out or that they are
uneconomic to work further and that contributions to highways improvements as well
as screen landscaping will be required.
5.
Bovey Tracey/Heathfield – British Ceramic Tiles/ Land adjacent to
Heathfield Station (3.9ha)
A former manufacturing site next to the railway line south east of Bovey Tracey. B2
and B8 uses are allocated south west of the railway line, and B8 use only north east
of the line. There is also a requirement to safeguard adjoining land to north west of
British Ceramic Tiles for a Playing Field and provide a new vehicular access to Old
Newton Road and across the railway line.
13.3
Employment Sites - Summary
13.3.1 Except for the Long Lane site, all of these sites are situated on brownfield land
(previously developed sites) and whilst the Long Lane site would result in the
development of greenfield land, the allocation requires that provision be made for
replacement playing fields.
13.3.2 All of the sites are within or closely related to settlement boundaries; in that respect,
they are higher in the sequential hierarchy of sites (previously developed within
settlements, previously developed peripheral locations, previously developed out of
settlement, greenfield) when compared to the re-development of land at Seale
Hayne.
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13.3.3 The preference for previously developed sites in or adjacent to a development
boundary refers to the transportation implications of situating employment uses in an
isolated out of settlement location. This would be more damaging in environmental
and sustainable development terms than if the site were located within or adjacent to
an existing settlement where access to goods, services and public transport networks
are greater.
13.4
Residential Sites
13.4.1 The settlements that are to be of closest relevance to the Seale Hayne campus are
Newton Abbot, Kingsteignton, Bovey Tracey and Heathfield.
13.4.2 The sites of relevance are identified as follows:
1.
Newton Abbot - Mile End (11.8ha)
Provision of 443 dwellings on extensive area of mainly greenfield land (7%
brownfield) at the western extent of Newton Abbot off A483. A primary school,
community facility/shop and playing field are also required together with highways
improvements to provide a through route to/from Ashburton Road, pedestrian and
cycle access to Mile End Road and the need to provide a high quality design to
create a gateway into Newton Abbot.
2.
Newton Abbot - Drake Road (1.8ha)
Allocation for 72 dwellings on greenfield land adjacent to the northeast boundary of
Newton Abbot. The allocation includes the need to provide a contribution towards
proposed playing fields at Long Lane and off site highway improvements.
3.
Newton Abbot - Jetty Marsh (3.5ha)
140 dwellings are to be provided on greenfield land to the north of Newton Abbot
which include the need to provide a through-route forming Jetty Marsh northern link,
as well as traffic calming measures on A382 Bovey Tracey Road. Again, a high
quality design to create a gateway into Newton Abbot is sought.
4.
Newton Abbot - Whitehill Road (4ha)
A further 140 dwellings are to be provided on greenfield land to the north of Newton
Abbot which includes the need to provide a through-route forming Jetty Marsh
northern link, as well as traffic calming measures on A382 Bovey Tracey Road.
5.
Newton Abbot - Reynell Road, Ogwell Cross (6.3ha)
An allocation for 221 dwellings on greenfield land at Ogwell Cross south of Newton
Abbot. Detailed designs required to ensure that development would avoid breaching
the skyline and maintain upper slopes for amenity area. The provision of a community
facility/shop adjacent to Reynell Road is sought as well as an internal loop road and
pedestrian and cycle links to adjacent residential areas. Contribution to improved
transport links to town centre, education provision and proposed playing field at the
Nursery, Coach Road are also required.
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Final Report
Bovey Tracey - Bonds Meadow (1.8ha)
63 dwellings are allocated on land at Bonds Meadow a Greenfield site that is to the
north of Bovey Tracey. Provision of through-route across Southbrook Lane and
linking to an adjacent site and Moretonhampstead Road is sought as part of the
development.
7.
Bovey Tracey - Moretonhampstead Rd (2ha)
70 dwellings are allocated at this greenfield site to the north of Bovey Tracey.
Provision of a through-route from Moretonhampstead Road (as above) is required.
13.5
Summary
13.5.1 Many of the deposit plan housing sites are proposed to be provided on greenfield
sites and there is therefore some weight in suggesting that there may be other sites,
such as the brownfield elements of the Seale Hayne site, that are more appropriate to
satisfy the District Council’s housing provision targets. That said, all of the allocated
sites are near to existing Settlement Boundaries, where sustainable policies support
new development on the grounds of access to goods, services and public transport
networks. .
13.6
Development at Kingsteignton
13.6.1 At present it is evident that there are proposals for the development of a substantial
area of rural land to the north west of Kingsteignton. It is understood that a mixed-use
scheme comprising mainly residential development (approximately 2000 units) is
being promoted for the land. Such a development would constitute an urban
expansion area capable of “bolting onto” the existing settlement pattern, expanding
the residential, employment, retail and infrastructure provision in the wider area.
13.6.2 Teignbridge Council have confirmed that the proposals are being promoted entirely
by a private development team and not by the Council. While the Council have met
with the developers, they have not agreed to any form of allocation to safeguard the
land for development. Furthermore, the proposals do not feature as part of the policy
framework for the land which is in fact currently covered by a number of designations
seeking to safeguard countryside and wildlife interests, mineral extraction and public
open space.
13.6.3 It is further understood that the development team are currently engaged in a public
consultation exercise to promote the scheme but that as yet no formal Planning
Application for development has been submitted.
13.6.4 On a general note, it must be acknowledged that a development of the magnitude
suggested would lead to considerable financial contributions which could be targeted
towards the local transport network (roads and public transport provision), the Council
must weigh up such advantages with the disadvantages such a scheme would have
upon the landscape quality of the area and environmental concerns raised by local
residents. Such a scheme will not be accepted unless subject to considerable public
debate at a future Local Development Framework Examination. As such, the delivery
of such a scheme is likely to be towards the end of the emerging plan period (2011)
and into the next (beyond 2011).
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13.7
Final Report
Other Potential Sites Not Allocated in the Deposit Local Plan
13.7.1 In addition to those sites that have been formally identified and allocated for
development by the Local Planning Authority in their Local Plan, a large number of
sites have been proposed by parties making representations to the deposit Local
Plan. Whilst the detail of these sites or their potential for development is scarce at this
stage, they should nonetheless be highlighted as potentially competing sites.
13.7.2 A full schedule of all residential and employment sites identified by third parties is
included in Appendix 1.10 however, significant sites include:
Residential:
1.
Newton Abbot – Wolborough Barton (7.82ha)
2.
Newton Abbot – Buckland Barton (13.18ha)
3.
Newton Abbot – Totnes Road/Denbury Road (8.49ha)
4.
Kingsteignton – Rydon Depot/Rocky Acres (6.44ha)
5.
Bovey Tracey – Challabrook Farm (9.85ha)
Employment:
1.
Newton Abbot – Land adjacent to Decoy Industrial Estate (3.03ha)
2.
Kingsteignton – Sands Copse (2.14ha)
13.7.3 Whilst the programme to adopt the First Deposit Local Plan has now been
abandoned it is considered that the Local Planning Authority will take forward the
information on Omission Sites for consideration when preparing proposals for the
new Local Development Framework.
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14 REVIEW OF “CLUSTER DEVELOPMENT” RESEARCH
14.1
Introduction
14.1.1 The purpose of this phase of the research was to develop a definition of what a Rural
Economy Centre would comprise, and from that start to evolve a list of criteria that
contribute to their success, locational criteria etc. In particular this phase of the
research will be used to identify the types of businesses/organisations that operate
from such centres. This can then be used as the basis for the selection of the types
of businesses who might be contacted as part of the tenant demand survey.
14.1.2 Based on a literature review and the market knowledge of Savills’ rural and
commercial offices a long list of 30 existing or planned schemes was identified that
seemed to fit the definition of a Rural Economy Centre (REC). The selection included
rural cluster developments, relevant science/research/innovation parks (mainly those
with links to universities) and food technology centres. Eight schemes were then
selected for more detailed analysis using the list below as a framework.

Location (include transport links).

Ownership (including funding where known).

Types of units and mix.

Type of businesses/tenants.

Size (sq ft)

Indication of rental levels.

Degree of links with research/teaching facilities.
14.1.3 A detailed analysis of the issues raised by each of these is set out in the full Savills
report that is attached as Appendix 2.5.
14.1.4 The analysis undertaken by Savills highlights two “competing” sites to a Seale Hayne
scheme. These sites are either operational or are currently being promoted as Rural
Cluster developments. They provide a useful indicator as to how such a facility at
Seale Hayne could be managed, subject to sufficient tenant demand: this being dealt
with in latter Chapters of the report. A short summary is set out below: these are
included within Appendix 2.5.
14.2
The Rural Business Centre at Myerscough College
14.2.1 Myerscough College is 6 miles north of Preston in Lancashire. Myerscough College
has strong links with the farming and business communities, which delivers training in
agriculture and horticulture, both full and part time, on various sites. The Rural
Business Centre opened in October 1998 on the college campus, which provides
support to develop rural businesses in the North West of England. Services include
Farm Business Advice, set up in October 2000, which is an analytical service
assessing strengths and weaknesses of the business and identifying opportunities
and support available.
14.2.2 During 2002, the centre obtained a grant of £750,000 from the North West
Development Agency (NWDA) to help build a Rural Business Incubator Centre
(RBIC). The Rural Business Centre moved into the RBIC on completion in May 2003.
The NWDA are partners in the RBIC, with workspace and business support for an
initial group of 12 companies. The benefit for companies based within the RBIC is
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that they will have easy access to expertise within the Rural Business Centre and
have access to other college resources including laboratory and testing equipment,
engineering workshops, library and on-site catering.
14.2.3 The owner’s vision is to offer affordable, flexible workspace to aid business growth
and development.
14.2.4 The RBIC has 14 offices ranging from 140 sq ft to 285 sq ft. The RBIC comprises:

Individual furnished offices for incubator businesses with Internet access and
telephone.

State of the art accommodation for meetings, seminars, training, promotional
events and company gatherings

Work areas with wireless facilities to allow group work activities

Manned reception and lobby

Administration services

Access to business support and training provided by the Rural Business Centre
and partner organisations
14.2.5 There are two options for rental charges, which enables easy entry for support and
development. The first option offers a reduced rent with the balance deferred to the
end of the lease or a straight rental with no deferred payment. The level of rent is
also dependent upon the life stage of the company. Conceptual and early stage
companies are charged at £8 per sq ft in year one, £12 per sq ft in year two and £14
per sq ft in year three. With this option the balance of payment to a full rental
equivalent will be calculated and deferred to the end of the lease period, with a credit
charge of 5% added. Companies at a more advanced stage of development will pay
£20 per sq ft annually. In all cases the maximum stay within the incubator is three
years.
14.2.6 The scheme offers no spinout space once businesses have outgrown the RBIC.
However we would imagine that the majority of successful start-ups would be likely to
stay within ten miles of the scheme once they have left it.
14.3
RASE Stoneleigh Park
14.3.1 Stoneleigh Park lies approximately four miles south of Coventry. The wide range of
facilities includes a variety of conference rooms, 75,000 sq ft of exhibition space and
a 58-bed hotel, all set in over 200 acres. Stoneleigh Park has been the home of the
Royal Agricultural Society of England (RASE) since 1963 when the site was
developed as a venue for the Royal Show, other exhibitions and several centres of
technical excellence. However, as agriculture has changed, practical farming on site
has been replaced by a concentration on the business of farming and rural enterprise.
14.3.2 Currents tenants on the site include:

Barclays Bank

Biotech and Biological Sciences Research Council

British Horse Society

DEFRA

Grant Thornton

HSE
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
JCD Sales

NFU Mutual

Reed Business Information

Royal Agricultural College

Royal Bank of Scotland

Royal Pharmaceutical Society of Great Britain

Sports Industries Federation
Final Report
14.3.3 The planned Rural Science and Technology Park is a business support and
technology transfer initiative of around 500,000 sq ft. The driving force behind the
development of this scheme is the view that that the rural economy cannot stand still,
and a drive towards multifunctional use of the countryside will rely upon science and
technology transfers. The belief is that businesses, within a rural ‘cluster’, can benefit
enormously from closer collaboration and the sharing of research, knowledge and
skills. Stoneleigh Park will encourage and support the development of innovation-led,
knowledge-based businesses and the nature of the site makes it ideal for incubator
activities.
14.3.4 Other planned facilities include the International Livestock Centre, which will provide
purpose built accommodation for companies involved in all aspects of the livestock
industry. The aim is to transfer best practice through access to practical support.
The centre’s remit includes the identification of gaps in current knowledge, specifically
looking at other industry sectors, and research institutions for relevant techniques and
scientific developments to improve established practices.
14.3.5 It is the view of the Savills that should this scheme proceed then it will become the
premiere REC in the UK. This is supported by the RASE’s own proposal documents
which sets out their plan to make it the “national centre of rural enterprise in the UK”.
14.4
Best Practice/Definition of a REC
14.4.1 Based on our analysis of the various schemes listed above we would suggest that the
definition of a REC is not dissimilar to a science/research park.
14.4.2 The United Kingdom Science Park Association (UKSPA), in defining the concept of a
science park, suggests it is a business support and technology transfer initiative that:
“Encourages and supports the start-up, incubation and growth of innovation-led, high
growth, knowledge-based business.
Provides an environment where larger and international business can develop
specific and close interactions with a particular centre of knowledge creation for their
mutual benefit.
Has formal and operational links with centres of knowledge creation such as
universities, higher education institutes and research”
14.4.3 Also, the International Association of Science Parks (IASP) defines science parks as:
“A property based initiative which has formal operational links with a university or
other higher educational or research institution, is designed to encourage the
formation and growth of knowledge based businesses and other organisations”
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14.4.4 However the focus of the tenant mix for a REC will be on businesses supporting,
researching, or administering the rural economy. Key criteria for success (in no
particular order) would include:
14.5

Flexibility in space offered to accommodate business growth e.g. incubator units,
varying sizes of spinout space. Also flexibility of lease terms on offer

Latest communication technology available to all occupiers, with shared facilities
for smaller businesses.

Administration, business, security and on-site maintenance support.

Availability of retail and leisure facilities on-site or nearby

Ample car parking, and highly accessible by road and/or public transport

Good quality local workforce

Conference, seminar and meeting facilities available for short term let by tenants
and external businesses.

Environment to facilitate knowledge transfer and networking.

Links to research and teaching facilities.

Coherent brand and prestigious location
Recommendations
14.5.1 Following the research undertaken into rural cluster developments, there is a greater
awareness of the potential mix of uses, size and function of such developments. This
understanding assists in the formulation of a tenant demand survey. Such a survey
can then be undertaken to provide more detailed information on the needs and
requirements of the types of businesses likely to locate on a REC.
14.5.2 Savills consider that the proposed scheme at Stoneleigh Park represents significant
competition to a potential REC on the Seale Hayne campus. Because of its central
location, critical mass, and broad base of support we would expect this scheme to
attract the majority of footloose national demand for such space. As a result of this it
may be more useful to develop the concept of Seale Hayne as a regional centre of
excellence that is smaller in size than the scheme proposed for Stoneleigh Park.
14.5.3 Having developed an understanding of the concept of a REC through this phase of
the research we believe that, locally and regionally, competition for tenants is likely to
come from existing and planned business, science, and research and technology
parks. Because of this we would recommend that the property market survey (as
proposed in the initial brief for this study) be carried out prior to any tenant demand
survey.
14.5.4 The property market survey will allow the project team to assess the strength of local
competition and to develop a view on the viability of any proposed scheme on the
Seale Hayne campus. If the current and projected supply/demand balance of similar
commercial space in the region is not favourable it may not be worth proceeding to
the tenant demand survey. .
14.5.5 In the event that the local market survey did not provide conclusive results, the
University were given the opportunity to consider, in liaison with Savills, the
geographical scope of any tenant demand survey.
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15 LOCAL PROPERTY MARKET SURVEY
15.1
Introduction
15.1.1 The initial research carried out by Savills as part of the feasibility study provided an
overview of rural cluster developments in the UK. Various existing or planned
schemes that seem to fit the definition of a Rural Economy Centre (REC) were
identified and analysed in detail to identify the key requirements of successful
centres.
15.1.2 The research went on to suggest a definition for a REC, being similar to a
science/research park but with a tenant mix supporting, researching or administering
the rural economy. Consequently, competition for tenants for a REC at Seale Hayne
is likely to come from existing and planned business, science and research and
technology parks. The research found that this was likely to come from the local and
regional area, rather than nationally, because a proposed large scheme at the Royal
Show site in Warwickshire would fulfil national demand.
15.1.3 In light of the above the local property market survey has considered the main
regional centres of Exeter and Plymouth together with the more local centres of
Torquay and Newton Abbot. The survey has considered both office and industrial
space in these locations, looking both in town and out of town. We have looked at
the current supply/demand balance in order to assess the strength of the local office
and industrial market. Consideration has also been given to specific competing and
forthcoming schemes.
15.1.4 The focus of the local property market survey has been on the office and, to a lesser
degree, industrial market. This is for 2 main reasons. Firstly, as touched upon
above, competition for tenants is likely to come from business, science and research
and technology parks where office, and to a lesser extent industrial, uses
predominate. Secondly, the rural economy is a small part of the overall commercial
property market and businesses operating within the rural sector are relatively few
and far between. It is therefore far more difficult to accurately identify the
supply/demand balance for these kinds of rural businesses. Furthermore, if the
tenant demand study does not indicate that there is likely demand for an REC then
office/industrial uses at Seale Hayne maybe the more feasible alternative.
15.2
Local Property Markets - Exeter
15.2.1 Exeter is approximately 17 miles to the north of Seale Hayne, via the A38 and M5. It
is a small city, but acts as the administrative centre for Devon and is largely a service
sector settlement. In 2002, the most recent year for which figures were available,
there were around 78,800 employees with 10,300 within the primary sector, 7,500
within the secondary industrial sector and 61,000 within the tertiary service sector.
Within the service sector, public services accounted for the single greatest sector of
employment reflecting the city’s chief role as the administrative centre for Devon, as
well as the presence of the university and a number of hospitals.
Offices
15.2.2 Office occupiers in Exeter have one main choice to make in terms of location – either
to be in town or out of town. In town, the main districts are Southernhay and Dix’s
Field, to the south of the retail centre, and the area around the New North
Road/Longbrook junction, to the north of the city centre. Out of town there are a
number of business parks, all to the south and east of the city centre, close to the M5.
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These include Exeter Business Park, Pynes Hill Office Campus, Peninsula Park,
Woodwater Park and Matford Business Park.
15.2.3 On the demand side, research indicates that the take up of office space in Exeter was
165,000 sq ft in 2003. This was down from 456,000 sq ft in 2002, a figure boosted by
3 particularly large deals. The 5-year average take-up figure stands at 334,000 sq ft,
a figure boosted by the space taken by the Meteorological Office (366,000 sq ft).
Early indications are that in 2004 take up will be slightly up on 2003. The majority of
take up has been of pre-let and purpose built space due to the lack of suitable high
quality second hand space. This is particularly the case in the town centre and the
majority of take up has occurred out of town.
15.2.4 On the supply side, Exeter had an estimated office stock of 3.5m sq ft at the end of
2003. Approximately 1/5th of this space has been constructed since the end of 1999
and can therefore be classified as “new”. The level of building over the past 5 years
has led to an increase in total office stock in Exeter of around 25%. Over the past 5
years office space completions have averaged 149,000 sq ft with a slight increase
expected in 2004. In recent years only 7% of this development has been speculative
and 99% has been out of town.
15.2.5 Still on the supply side, availability of office space (i.e. vacant) at the end of 2003
stood at approximately 269,000 sq ft, a figure similar to recent years. Compared to
other cities this is a relatively low figure reflecting reasonable take up in recent years
which has absorbed much of the second hand office space. Coupled with this is the
restricted amount of speculative office development and also the conversion of poorer
quality office stock in the city centre to residential uses.
15.2.6 Looking to the future there is approximately 182,000 sq ft of office space currently
under construction of which just over 100,000 sq ft is speculative and therefore
available. There is a further 1.2m sq ft in the pipeline (i.e. planned space, with and
without planning permission) of which 0.7m sq ft has planning permission.
15.2.7 As a short term measure, the amount of space under construction or with planning
permission equates to 6 years of development at the rate seen over the past 5 years
or 2½ years of take up. Longer term, the total pipeline equates to 8 years of
development or 3½ years of take up.
15.2.8 Included within both the pipeline space above and the existing space figures is Exeter
University’s Innovation Centre. Phase 1 is fully operational and let and provides
15,000 sq ft of accommodation to 18 high-tech businesses from the biomedical,
environmental, software, advanced manufacturing and internet sectors. Tenants
receive a support package including flexible lease terms, business advice and help
with accessing academic expertise and facilities. Phase 2 is now beginning and will
provide further space in units ranging from 183 sq ft to 3,766 sq ft.
15.2.9 Not accounted for in the pipeline space above, because it is at too early a stage, is
the proposed Exeter Science Park. Various sites have been identified within the
County Structure Plan and City Council Local Plan but the favoured site is adjacent to
Junction 29. Between 12 and 29 hectares of land have been identified. A focus
group made up of Exeter University, the Meteorological Office, Exeter City and East
Devon District Councils and the Rural Development Agency, amongst others, is
currently formulating proposals. The intention is that, through planning conditions
and restrictions, the park will be a specific science park as opposed to a “glorified”
business park. Part of the park would be dedicated to providing space so that
occupiers of Exeter University’s Innovation Centre can move to larger premises.
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Industrial
15.2.10 The sector title “Industrial” is something of a misnomer given that following years of
industrial decline distribution functions dominate. Nowadays the industrial market can
be split between manufacturing and transport and distribution. As far as the latter
category is concerned, Exeter has a relatively low proportion of employees in this
sector compared to other towns due to its distance from the hub of the national
motorway ne2rk and the main population centres of Britain. Within the region, Bristol
is the dominant area for distribution companies, although Exeter is of significance on
a sub-regional and local scale as a convenient point for breaking down bulk loads
prior to their onward distribution across Devon and Cornwall.
15.2.11 Exeter’s modern industrial estates are concentrated to the east of the city, adjacent to
the M5, whilst its older estates tend to be located to the south (near the A30) and the
northeast. There are 3 principal industrial areas in Exeter - Marsh Barton Trading
Estate, Sowton Industrial Estate and Exeter Business Park. The latter is also a key
office location where the Meteorological Office is situated.
15.2.12 In terms of demand, take up of industrial space in 2003 was estimated at 119,000 sq
ft, down from the 196,000 sq ft recorded for 2002. Take up in 2003 has been the
lowest level recorded with the quantity of both speculative and pre-let/purpose built
space taken declining. As an indication, the average level of take up over the past 5
years has been 208,000 sq ft. 30% of this space has been in the 10,000 sq ft or
under bracket.
15.2.13 On the supply side, Exeter had an estimated industrial stock of 7.4m sq ft at the end
of 2003. Of this space, 35% can be defined as factories and 65% as warehouses.
Compared with offices, the proportion of new stock is very low at 7.5% but this is
reflected across the industrial market in the whole of the UK. Completions of new
space averaged 112,000 sq ft per annum over the past 5 years, a historically high
figure. Of this space just under one third has been speculative.
15.2.14 Still on the supply side, availability in Exeter was estimated at 147,000 sq ft at 2003.
With the exception of a couple of years, availability levels in Exeter have been
declining since peaking in 1993. Speculative development has been limited in recent
years with most schemes requiring pre-sales or pre-lets prior to starting. Much of the
new space has been quickly absorbed meaning that the majority of available space is
in small to medium sized second hand units. Speculative space currently underway
currently consists of mostly small units and availability is, therefore, unlikely to rise
significantly in the short term.
15.2.15 There is currently just 32,000 sq ft of space under construction in Exeter, well below
the average figure for the past 5 years. Of this space only 30% is speculative, i.e.
available. Looking further into the future there is currently 3.5m sq ft of space in the
Exeter development pipeline, excluding space currently underway. Of this, 0.8m sq ft
has planning permission and 2.7m sq ft is more preliminary (i.e. planning application
or earlier stage).
15.2.16 As a short term measure, the amount of space under construction or with planning
permission equates to 7 years of development at the rate seen over the past 5 years
or 4 years of take up. Longer term, the total pipeline equates to 25 years of
development or 17 years of take up.
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15.3
Final Report
Local Property Markets – Plymouth
15.3.1 Plymouth is 32 miles to the south west of Exeter, via the A38. It is the largest city on
the south coast of England and second largest in the southwest. As such it is the hub
of the local and sub regional economy with a population of 250,000 and 114,000 in
employment. Just over ¼ of employees work in public administration, education and
health, partly reflecting the city’s role as the sub regional centre.
Offices
15.3.2 Like Exeter, office locations within the Plymouth area are either classified as in town
or out of town. In town there is no dedicated office centre and space tends to be
spread among small suites in buildings throughout the city centre. Out of town, there
are various locations including Langage Park Office Campus, Plymouth International
Business Park, Neptune Park, the Marsh Mills area and Tamar Science Park.
15.3.3 In terms of demand, take up of office space in Plymouth in 2003 was estimated at
213,000 sq ft, up from 154,000 sq ft in 2002 and the 5-year average of 152,000 sq ft.
The 2003 figure was boosted by the Land Registry agreeing to take 90,000 sq ft at
the International Business Park. Only in the last couple of years has pre-letting
become a significant part of the Plymouth office market. In the past 5 years there has
been a slightly greater take up of office space in town as opposed to out of town, in
contrast to Exeter. However, a lot of the in town take up of space has simply been
the internal relocation of companies already present in the Plymouth office market.
15.3.4 On the supply side, Plymouth office stock in 2003 stood at 2.2m sq ft, less than 10%
of which was classified as “new”. As far as completions are concerned, an average
of 35,000 sq ft has been completed over the past 5 years, although the most recent
figure (2003) is 64,000 sq ft. Over the past 5 years 45% of completed space has
been speculative and 100% has been out of town at the various business and
science parks referred to above.
15.3.5 Still on the supply side, availability at the end of 2003 stood at 383,000 sq ft, above
the 5-year average of 300,000 sq ft. This reflects the relatively high proportion of
speculative space that has been built out of town in recent years. The available
space is a mix of this out of town space and also city centre space vacated both by
firms leaving the area (e.g. insurance and financial services) and those moving out of
town.
15.3.6 In terms of the future, 135,000 sq ft is currently under construction and due for
completion this year. It consists of just 2 buildings, at Plymouth International Business
Park and Tamar Science Park for the Land Registry and Peninsular Medical School
respectively. All of this is out of town and has been pre-let – with the amount of
available space it is not currently economic to build on a speculative basis. There is a
further 1.8m sq ft of office space in the pipeline of which 1.3m sq ft has planning
permission. Of the space without planning consent, a proportion is part of various
mixed-use schemes within the city centre. An element of office accommodation is
often required by the Local Planning Authority even if there is no proven market
demand and consequently the remainder of the scheme – usually retail and
residential, effectively subsidises the office element. The relationship between land
values (high) and rents (low) is such that it is difficult to justify some of these office
developments without cross-subsidisation.
15.3.7 As a short term measure, the amount of space under construction or with planning
permission equates to 41 years of development at the rate seen over the past 5 years
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or 9½ years of take up. Longer term, the total pipeline equates to 48 years of
development or 11 years of take up.
15.3.8
Included within the pipeline figures above is space at both the Plymouth International
Business Park and Tamar Science Park. Both parks are operational but have
significant amounts of further space available. Plymouth International is a South
West RDA backed scheme and the 33 ha site will ultimately provide over 1 million sq
ft of business space for offices, technology, research and development, healthcare
and medical related business. The Tamar Science Park is a scheme founded by the
University of Plymouth, the City Council and Business Link. It aims to be a true
science park rather than general business park and includes 2 Innovation and
Technology Transfer Centres for “incubating” small knowledge-based start-up
businesses.
Industrial
15.3.9
Key locations for Plymouth’s industrial space are Langage Business Park, Estover
Industrial Estate and Burrington Way Industrial Estate with smaller business units
closer to the city.
15.3.10 In terms of demand, take up in 2003 was estimated at 276,000 sq ft, up on the
previous year and also up on the 5-year average of 187,000 sq ft. Nearly half the
take up in 2003 was accounted for by one transaction on the Estover Industrial
Estate. Looking at the previous 5 years, 20% of take up has been in the size bracket
0 – 10,000 sq ft with the single largest proportion of take up being in the 10,000 –
25,000 sq ft bracket, approximately 30%. Take up in the past couple of years has
been almost exclusively of available space, rather than pre-let/pre-build.
15.3.11 On the supply side, total industrial stock at the end of 2003 in Plymouth was
estimated at 14.7m sq ft. Of this, less than 10% was “new” and 10.5m sq ft was
industrial with the remainder being warehouse space. As far as completions are
concerned, 70,000 sq ft was completed in 2003 against a 5-year average of 150,000
sq ft. Just under half of this space was speculatively built.
15.3.12 Still on the supply side, availability at the end of 2003 was approximately 900,000 sq
ft, slightly up on the 5-year average of 800,000 sq ft. Looking to the future, there is
currently no industrial space under construction but 1.4m sq ft in the pipeline of which
1.1m sq ft has planning permission.
15.3.13 As a short term measure, the amount of space under construction or with planning
permission equates to 7½ years of development at the rate seen over the past 5
years or 6 years of take up. Longer term, the total pipeline equates to 9 years of
development or 7½ years of take up.
15.4
Local Property Markets – Torquay and Newton Abbot
15.4.1
Torquay is 10 miles away and Newton Abbot is 3 miles from Seale Hayne. Both are
much smaller settlements than either Exeter or Plymouth and have far smaller
commercial markets, both in terms of offices or industrial. In general, office demand
in both towns, and indeed others around south Devon, is not particularly strong. That
demand which exists is generally for city centre locations although some professional
firms such as solicitors are looking for larger suites with parking and are therefore
having to move to out of town locations.
15.4.2
Supply, and indeed demand, is greater in the Torbay area than Newton Abbot,
reflecting the greater size of the settlement. In Newton Abbot there is limited office
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stock available and a fair demand for that which is. Although there is limited stock
there are not large areas of new office space currently being developed, indicating
that the market is relatively balanced. Annual turnover of space is relatively low and
unquantified but one of the more significant recent deals was approximately 14,500
sq ft on Brunel Road that was pre-let to a Housing Association. There is also office
space available on a couple of business parks at Heathfield near Newton Abbot and a
major office park planned in the Torbay area which will ultimately provide over
500,000 sq ft of office accommodation
15.4.3 As far as the industrial market is concerned this is currently healthier than the office
market with stronger levels of demand, particularly in the Torbay towns. Here
demand can exceed supply to the extent that local agents report applicants looking
for industrial space in Torquay having to settle for Paignton due to a lack of
availability in the former. Newton Abbot is less strong as an industrial centre.
15.5
Conclusions
15.5.1 The table below summarises the number of years of development and take up (based
upon average rates over the past 5 years) needed to account for all the space
currently under construction or with the benefit of planning permission:
Exeter office
Exeter industrial
Plymouth office
Plymouth industrial
Years of development
6
7
41
7½
Years of take up
2½
4
9½
6
15.5.2 These details are the headline figures from the research that covers the office and
industrial markets in Exeter and Plymouth. As a general rule, if there is more than 2½
years of take up of space currently under construction or with planning permission
then the market is heading towards a situation of over supply; it would not be
advisable to develop anything on a speculative basis in these circumstances.
15.5.3 All of the figures in the table above suggest a tendency towards over supply with the
least over supply being in the Exeter office market with 2½ years take up. This figure
is based upon the average take up over the past 5 years. If you look solely at the
take up of office space in Exeter in 2003 there is 5 years of take up in the pipeline.
15.5.4 However, it is important not to be purely reliant upon the statistical research.
Although in all the markets there is an indication of over supply, this may not
necessarily be as bad as indicated because a proportion of the space will be dated or
in the wrong location, i.e. verging on being obsolete. Such space can lay empty for
long periods of time with no realistic prospect of being occupied for its current use.
Alternatively it may be redeveloped. As an example, a significant proportion of the
industrial stock in Plymouth consists of large former manufacturing units that are not
suited to current transport and distribution requirements. In both Exeter and
Plymouth city centres certain obsolete office blocks have been redeveloped for
residential use. Whilst obsolete space may account for a proportion of the existing
vacant space it will obviously not account for any of the new space under construction
or in the pipeline.
15.5.5 The key characteristics of the various markets are:
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
The office market in Exeter has picked up slightly over the past year. Smaller second
hand space in town lets reasonably well. Out of town there is similarly good demand
for small suites in new office buildings but the demand picture is less good for second
hand space. There is a marked absence of successful speculative building work in
the city.

The Exeter industrial market is relatively quiet with currently limited supply of suitable
space matching restricted demand. There is a lot of space in the pipeline but only a
limited amount currently has planning permission.

The Plymouth office market is relatively weak and made up predominately of either
internal movement of existing companies or Government/Local Authority
departments. The city centre has seen a reduction in the amount of office space due
to residential redevelopment but there are some schemes in the pipeline as part of
mixed-use redevelopments in the city centre. There is a lot of space available in the
pipeline on the out of town business parks, particularly Plymouth International.

The industrial market in Plymouth is mixed. There is a significant over supply of large
former manufacturing units, which, without significant alteration, are not suitable for
current uses. There is a good demand for smaller units (up to 10,000 sq ft) both in
and out of town.

Outside the region’s 2 cities the market is far smaller. Consequently, the
supply/demand balance is much finer and any significant change in either has a
proportionally greater effect. Demand for offices is concentrated in town with the
exception of those occupiers looking for larger space with parking where town centre
restrictions force them out of town. Nonetheless, proximity to towns is important to
these occupiers. Like the office market, the regional industrial market favours smaller
units in established locations.

On a county basis, Devon has been successful over the past 3 years in attracting
Government departments relocating from London. This move to the regions follows
completion of the Lyons Report that was commissioned by the office for the Deputy
Prime Minister. The most notable example is the Meteorological Office that moved to
Exeter and has taken nearly 400,000 sq ft of space. Take up of space in this kind of
quantity has a significant effect upon the supply-demand balance in the area and
whilst there is currently a sufficient supply of “normal” sized units in Exeter, there
could be difficulties in accommodating new very large scale office requirements in
Exeter.

A significant finding of our property market survey is that there appears to be a
demand for smaller areas of space (generally less than 2,000 sq ft but many less
than 1,000 sq ft), both industrial and, particularly, office space. This is reflected by
the popularity of schemes such as the Exeter Business Centre run by the City
Council, the Innovation Centre at Exeter University and Incubator Space at Tamar
Science Park. All 3 offer occupants the benefit of communal services and most have
flexible, “easy in – easy out” lease or licence terms. All 3 schemes are aimed at new
start up business that are then encouraged to move on to larger space. All 3 have a
waiting list for tenants. There is also a demand for small but no “start up” space, with
most of the Councils in the area (which have relatively small units) finding 90% plus
occupancy rates across their portfolios.
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15.6
Final Report
Overall Summary
15.6.1 Our local property market survey has found that there is, in general, an over supply of
property in the 2 principal regional markets for both office and industrial space.
Consequently there is no realistic scope for any form of speculative development.
However, out of these centres, where, admittedly, the market is harder to measure,
demand for both office and industrial space appears to be stronger for the smaller
size of units, including start up units. This market is relatively small, like the rural
market across the region, and any significant amount of new space coming to the
market will have an adverse effect on the supply/demand balance with a consequent
increase in vacant space/voids and depressed rents/values.
15.6.2 In order to ensure that the University are able to make an informed decision in
relation to the viability of a Rural Economy Centre at the Seale Hayne site, a decision
was taken to undertake a comprehensive tenant demand survey. This survey,
drawing upon the findings of the Rural Cluster research paper and local market
surveys prepared by Savills, was targeted to businesses within the South West of
England: this being the area within which the greatest demand for accommodation
will be derived. The methodology and findings of the tenant demand survey are set
out in the following chapter.
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16 TENANT DEMAND SURVEY
16.1
Executive Summary
16.1.1 The purpose of this study is to assess the demand for business accommodation for
companies who are located within the South West region. The purpose is to assess
current and future occupational needs as well as gauge opinion on the factors that
determine location. The aim is to assess the potential success of business
accommodation, if provided, at Seale Hayne.
16.1.2 As such, the survey could also be described as a “Property and Perceptions Survey”.
16.1.3 Key Findings of the report include:

A total of 3,901 businesses were surveyed. The response rate of 9% is in line with
expectations for this type of postal survey. The respondents employ around 5,500
staff and occupy around 1.2 million sq ft of business accommodation, 65% of which is
office space.

‘Business Services/Consultancy’ businesses dominate the responses. At 7%, ruralrelated businesses are a significant proportion.

The type of business space occupied is generally small and within freehold property.
For those respondents within leasehold property, a large proportion pay below £11
per sq ft per annum.

An overwhelming proportion of respondents believe that the current business
accommodation is suitable for their current business needs (90%). For respondent
within 10 miles of the Seale Hayne site, this increases to 100%.

Those respondents who would meet future business accommodation requirements
elsewhere, including opening within an additional property, would not move/open
more than 10 miles from their current location.

The large majority (82%) require in-town or edge-of-town locations for their
businesses. A business park location was only highlighted by 15% of the
respondents. In terms of rent, nearly 90% of the whole sample would not pay more
than £15 per sq ft per annum; within 10 miles of the Seale Hayne site this falls to £10
per sq ft or less.

Rural-related respondents are even more rent sensitive and may be looking to
occupy lower rented business accommodation.

Staff availability/retention, security of building and quality of space available are the
top three factors determining property location for all the responses received. For
rural-related respondents, access to the market and/or clients is the most important
factor by far and significantly more important compared to the wider sample.
16.2
Aims and Methodology
16.2.1 The purpose of the tenant demand study is to assess the need and demand for
business accommodation within the South West region and to ultimately determine
the likely demand for a Rural Economy Centre at the Seale Hayne site. A
comprehensive postal survey was used to assess current business location,
strengths and weaknesses of their location and the companies’ anticipation of
meeting future property requirements.
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16.2.2 The UK Science Park Association (UKSPA) assessment of tenants within scienceand/or technology-related business accommodation suggests that 80% of tenants
have origins from within 30 miles of their current business location. This suggests
that Seale Hayne would attract occupiers from within the county of Devon. However,
the business catchment used for this study, referred to as the survey area hereafter,
has distributed the survey beyond Devon to include Cornwall, Dorset, Somerset and
the region once known as Avon (includes City of Bristol, Bath and North East
Somerset, North Somerset and South Gloucestershire). This area, it can be
assumed, would potentially deliver the remaining 20% of tenants. The area can be
seen in Plan at the end of this Chapter (page 55).
16.2.3 The survey was sent to a range of business sectors that are likely to occupy the type
of business accommodation that could be provided at Seale Hayne. Business
sectors, which were selected from the UK Standard Industrial Classification of
Economic Activities 2003 (SIC (2003)), include:




Financial & Business Services,
Computer and Related Activities,
Activities of Membership Organisations,
Recreational, Cultural and Sporting Activities.
16.2.4 The list of companies and the mailing list used was sourced from the Experian
National Business Database (which now incorporates the Yellow Pages database).
This provided 3,901 business addresses and contact details.
16.3
Results from the business accommodation survey
16.3.1 Responses were received from 336 businesses representing a return rate of 9%.
This level of response is in line with expectations and is an average response rate for
this type of postal survey. It is firmly believed that the response rate represents an
appropriate sample of regional businesses and will reflect the full range of views and
perceptions.
16.3.2 All responses have been treated as strictly confidential. No individual or organisation
is identifiable either in the report or the raw data that has been provided to the client.
For the purposes of this survey, the results were collated and analysed for all the
respondents and those that can be classified as rural-related only. This split is used
throughout the following sections of the report. An assessment of respondents was
completed for a range of distance from the Seale Hayne site. These have been
discussed at various points throughout the report and include: 10 miles from the site,
more than 10 miles from the site and up to 50 miles from the site.
16.3.3 Responses were received from a wide geographical area, with many over 100 miles
away in Dorset. The closest company to respond is 2 miles from the Seale Hayne
site. A third of the responses came from up to 30 miles from the site.
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Figure 3.1 Geographical distribution of responses
120
Miles from Seale Hayne site
100
80
60
40
20
0
Respondents
Source:
16.4
Savills
Current property occupancy
16.4.1 The spread of respondents in terms of business activity is broad. There is a mix of
business types. However, the majority were ‘Business Services/Consultancy’
companies, which includes estate agents and legal companies. ‘Financial &
Investment’ companies were the second largest group of respondents. At 7%, ‘Ruralrelated activities’ accounted for a significant proportion of the responses, as would be
expected for the survey area, which provided an opportunity for this sub-group to be
assessed individually. This is included later in this report.
Figure 3.2 Business sectors of responses
IT
6%
Other
10%
Retailing
1%
Public services
4%
Education
1%
Academic/Government
Research
1%
Finance & Investment
21%
Legislative Body
1%
Source:
Rural-related activities
Manufacturing
7%
4%
Business
Services/Consultancy
44%
Savills
16.4.2 The indigenous nature of companies within this region is highlighted by the large
number of the companies’ main office being located within it (78%). For all the
respondents, the average time located at the current premises is 16 years. However,
a wide range was recorded from one month to over 100 years.
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16.4.3 The total numbers of employees for the respondent companies totalled approximately
5,500 and they occupy around 1.2 million sq ft. Around 65% of the total space
currently occupied is offices followed by 23% being manufacturing/industrial
accommodation. This may seem a high percentage for manufacturing/industrial, but
the result is weighted by the higher level of square footage occupied. In terms of data
count, 70% of respondents were office-based occupiers.
16.4.4 Split by size band the total level of space from the respondents is shown below:
Table 3.1
Business space occupied by size band
Size band (sq ft)
<1,500
1,500-2,499
2,500-4,999
5,000-9,999
10,000-49,999
50,000+
Source:
Total space (sq ft)
81,026
123,205
129,350
94,300
134,500
0
% of responses
46%
28%
17%
6%
4%
0%
Savills
16.4.5 Table 3.1 shows that the general demand for business accommodation within the
survey area is small. Nearly three-quarters of the respondents occupy less than
2,500 sq ft. Within 50 miles of Seale Hayne this proportion increases to 82% and
within 10 miles all the respondents occupy 2,500 sq ft or less.
16.4.6 As a reflection of the size and type of businesses in the region specified, there are an
above average proportion of businesses that own the freehold of their premises.
Around 56% of businesses are in freehold property. This is in line with expectations
for this survey area. Of those in leasehold business accommodation, 67% of the
respondents are currently paying rents of £10 per sq ft per annum or below.
Figure 3.3
Current rent paid by respondents
£21-25 sq ft
2%
>£25 sq ft
0%
£16-20 sq ft
4%
<£5 sq ft
24%
£11-15 sq ft
26%
£5-10 sq ft
43%
Source:
Savills
16.4.7 None of the respondent up to 10 miles from the Seale Hayne site pays above £10 per
sq ft per annum. Indeed, a quarter pays less than £5 per sq ft per annum.
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16.4.8 A free text section of the survey provided the respondents with the opportunity to
highlight the strengths and weaknesses of their current location. On the positive side,
the occupiers were attracted by the ease of parking and the low cost of the
accommodation. These two points were mentioned the most. Access to facilities and
a central and/or prominent location were also highlighted regularly. On the negative
side, traffic congestion, lack of security and difficulty of parking were the main
problems.
16.4.9 The final question on the survey aimed to assess the awareness of the respondents
to the proposals at Seale Hayne. Of the total responses, 84% were unaware of the
proposals. However, within 10 miles of the site, the awareness rises to 44%. This is
encouraging, but also expected. In some cases, comments were provided on the
respondents’ views of the proposals. The comments were more negative than
positive. However, it is always more likely that those that have a strong negative
feeling towards the proposals are more likely to voice those opinions. On the positive
side, one respondent said, “we fully support it” whilst, in opposition, another suggests
that they “…think depriving Devon/Cornwall of the principle agricultural education
centre is a really poor idea”. The majority of comments have been listed in Table 3.2
below:
Table 3.2
Responses to the Rural Economy Centre proposals at Seale Hayne
Positive
Neutral
Negative
“Please expand them”
“Until public transport is
“Retain as agric college”
“It should be retained at Seale considerably more practical, “No importance”
Hayne”
extensive parking will have to “It should still be an
“We are very much in favour of be provided and junction
agricultural college!”
this centre and hope it grows improvements made at Caton “We are aware Seale Hayne is
from strength to strength”
to enable east and west bound closing. Has and will have
“We are aware of the proposal entry and exit to A38. The
bad effect of the town”
and support it fully”
accommodation must be of A1 “I have no strong feelings
“Good luck”
standard”
about the Rural Economy
“I consider that there are too Centre, but I think depriving
few office accommodation – Devon/Cornwall of the
anything available on the
principle agricultural education
university campus”
centre is a really poor idea”
”Leave it as it is!!
“I think it extremely sad that
the university has decided to
move the agricultural college,
an institution of high standard,
facilities and history. Moving
agricultural training into a city
campus is ludicrous in the
extreme”
“Pity it had to change”
“Waste of time”
“As my son and his girlfriend
attended Seale Hayne, I am
against its closure as an
educational establishment”
Source:
Savills
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16.5
Final Report
Summary
16.5.1 Locally based occupiers within the business services sector dominate the current
office market. This would be expected in most towns and cities. These types of
occupiers include accountants, architects and solicitors who have been established in
the region for a long time. In terms of rent, the majority pay less than £11 per sq ft
per annum at present. This must be a consideration for any new development.
16.5.2 Those respondents closest to the Seale Hayne site occupy the smallest units of
space occupied. The provision of business accommodation should be concentrated
at this smaller level, with the majority below the 5,000 sq ft mark.
16.5.3 In terms of the implications for the Seale Hayne site, the analysis of the current
occupation of business accommodation shows that the site could offer adequate
parking and affordable space, both of which are key strengths and potentially
attractive to the types of occupiers within the survey area. However, the fact that the
site is in a non-core location and has relatively poor motorway access may limit
potential demand from employers / occupiers.
16.6
Meeting future business accommodation needs
16.6.1 Around 90% of respondents believe that their premises are suitable for their current
business needs. Looking at the sub-group sample, 90% of respondents up to 50
miles from the Seale Hayne site suggested that their current business
accommodation is suitable and 100% for those within 10 miles of the site. Overall,
this is not a positive sign for short-term demand, i.e. the next few years.
16.6.2 However, 51% of the respondents said that they would consider meeting their future
business accommodation requirement by moving elsewhere or by opening an
additional office elsewhere. Over half of respondents willing to move away/elsewhere
bodes well for other locations to attract new businesses.
Figure 3.4
Future locational requirements
Open an additional
office elsewhere
19%
Expand at this
location
45%
Move elsewhere
32%
Contract at this
location
4%
Source:
Savills
16.6.3 The trend in terms of location loyalty is shown in Figure 3.5 overleaf for all the
respondents from the survey area. Companies that are willing to open additionally
elsewhere or move elsewhere exhibit a desire to stay close to the current location.
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This is hardly surprising considering the need to maintain staff levels (key factor
illustrated in Figure 3.7) and minimise disruption in any move/expansion.
Figure 3.5
Distance that occupiers are willing to move from existing location
11-50 miles
11%
>50 miles
5%
5-10 miles
19%
<5 mile
65%
Source:
Savills
16.6.4 Around 84% of the total respondents would not be willing to move more than 10 miles
from their current location, but, considering the high proportion who are happy with
their current property, it is unlikely that the majority of respondents would even
consider a move or expansion.
16.6.5 Taking the suitability analysis a stage further, an assessment has been made of
those occupiers who are currently unsatisfied with their current business
accommodation. This ‘unsatisfied’ analysis shows that the respondents only occupy
a total of 91,000 sq ft, the majority of which is office accommodation and are all over
10 miles from the Seale Hayne site. Therefore, the fact that 83% (in line with the
wider sample) of this sub-group would not locate more than 10 miles from their
current location is not positive news for the Seale Hayne site.
16.6.6 In addition, and particularly pertinent to the Seale Hayne site given its location, 82%
of the respondents require an in-town or edge-of-town location. A business park
location was only highlighted as a preference by 15% of the respondents.
16.6.7 A key results from this survey, particularly in relation to the viability of any new
business accommodation development, relates to the level of rent that the occupiers
are willing to pay in the future.
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Figure 3.6
Final Report
Current and maximum base rents
Current base rent
Maximum base rent
50%
45%
% of total responents
40%
35%
30%
25%
20%
15%
10%
5%
0%
<£5 sq ft
Source:
£5-10 sq ft
£11-15 sq ft
£16-20 sq ft
£21-25 sq ft
>£25 sq ft
Savills
16.6.8 This suggests that, despite the willingness for occupiers to pay slightly higher rents in
the future, they are not prepared to commit to much more than current rent levels,
overall. Indeed, 88% are willing to pay £15 per sq ft per annum or less. Those
respondents from within 10 miles of the Seale Hayne site will not pay more than £10
per sq ft per annum.
16.6.9 Another key piece of analysis is the issues that the respondent would rate as either
‘high’ or ‘medium/high’. This corresponds to a five or a four grade on the survey.
Figure 3.7 below shows that proportion of respondents that recorded one of the top
two scores for each of the variables.
Figure 3.7
Factors affecting business location
Staff availability/staff retention
Security of building
Quality of space available
Access to your markets/clients
Security of site
Quality of surroundings/environment
IT infrastructure
Amount of rent payable
Visibility of your company on-site
Flexibility of lease
Major road/motorway access
Amount of expansion space available
Prestige of address
Networking opportunities
Availability of support services
Proximity to bus routes
Retail/leisure facilities
Proximity to train station
Proximity to airport
Access to educational/research institution
0%
Source:
10%
20%
30%
40%
50%
60%
70%
80%
90% 100%
Savills
16.6.10 Staff availability and retention and security of the building are major locational factors
of high importance. This was for the whole dataset, but analysis of the dataset for
respondents within 50 miles of Seale Hayne showed the same result for the top five
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factors shown in Figure 3.7. This shows that, generally, similar factors are as
important across the various distances from the Seale Hayne site.
16.7
Summary
16.7.1 Figure 3.7 provides the information for assessing the future needs for occupiers in the
region. The positive points are that the Seale Hayne site could certainly offer the
security and provide a full range of building types. Security could also be enhanced
and indeed even used as part of the promotion for the site should development take
place. However, because the site is more remote than other alternative sites in the
region it is expected that staff retention (and attraction) would be difficult. The fringe
location and access issues ensure that the Seale Hayne site would not be attractive
to the majority of those respondents who completed the survey. In addition, this
survey does provide a representative sample of the whole survey area and on this
basis is not good news for the Seale Hayne site.
16.8
Responses from rural-related businesses
16.8.1 Of the total responses received, nearly 8% were received from rural-related
businesses. This represents 25 responses, which, unfortunately, is below the
statistically significant response level of 30. However, it is believed that the general
trends that can be derived from the results are relevant in understanding the
motivations, expectations and intentions of such businesses. A positive aspect of the
responses received was that 36% came from within 30 miles of the Seale Hayne site.
16.8.2 In terms of the characteristics of the sample, the companies employ 353 people and
occupy 52,000 sq ft only. They tend to have been at their current location longer than
the wider sample, 29 years against 16 years and a larger percentage (64%) occupy
their property on a freehold basis compared to the wider survey responses (43%).
16.8.3 A slightly higher proportion (59%) would consider moving elsewhere to meet future
space requirements. However, there was only one response from a business located
within 10 miles of the Seale Hayne site and 81% would only be willing to locate less
than 10 miles from their current location. As with the more general response, 83% of
the respondents said that their current business accommodation is suitable for their
current needs.
16.8.4 Importantly, the issue of rent shows a slightly different story to the wider sample
analysis. A ’tighter’ range of rents are illustrated and notably none above £20 per sq
ft per annum. In addition, the fact that there is a ‘maximum’ bar in the sub-£5 per sq
ft per annum category shows that some respondents are looking to pay lower rents
compared to currently. This may highlight the cost pressure facing businesses within
this business sector.
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Figure 3.8
Final Report
Current and maximum base rents for rural-related businesses
Current base rent
Maximum base rent
70%
% of total responents
60%
50%
40%
30%
20%
10%
0%
<£5 sq ft
Source:
£6-10 sq ft
£11-15 sq ft
£16-20 sq ft
£21-25 sq ft
>£25 sq ft
Savills
16.8.5 Figure 3.9 below ranks the factors for rural-related respondents and compares them
to the wider sample. This shows the relative importance of accessibility to the
market/clients. Similar factors, including staff availability and quality of space
available is towards the top, as seen in the analysis of the whole sample (Figure 3.7).
Figure 3.9
Factors affecting business location
Access to your markets/clients
Staff availability/staff retention
Quality of space available
IT infrastructure
Security of building
Visibility of your company on-site
Quality of surroundings/environment
Amount of rent payable
Security of site
Major road/motorway access
Amount of expansion space available
Flexibility of lease
Networking opportunities
Retail/leisure facilities
Proximity to bus routes
Proximity to train station
Availability of support services
Prestige of address
Proximity to airport
Access to educational/research institution
0%
Source:
All responses
Rural-related
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Savills
16.8.6 Figure 3.10 takes the analysis further to illustrate a comparison with the wider sample
in terms of those factors that rural-related businesses deem as more or less
important. A positive bar on this chart illustrates the absolute percentage differential
for a factor compared to the whole sample. For example, ‘Retail/leisure facilities’ is
10 percentage points higher in terms of importance to rural-related respondents.
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Figure 3.10
businesses
Final Report
Comparative factors affecting business location for rural-related
Access to your markets/clients
Retail/leisure facilities
Networking opportunities
Major road/motorway access
Proximity to train station
Visibility of your company on-site
Proximity to bus routes
Proximity to airport
Staff availability/staff retention
Amount of expansion space available
Amount of rent payable
Access to educational/research institution
Availability of support services
IT infrastructure
Quality of space available
Quality of surroundings/environment
Flexibility of lease
Security of building
Security of site
Prestige of address
-20%
Source:
Less important
-15%
-10%
-5%
More important
0%
5%
10%
15%
20%
25%
Savills
16.8.7 Issues such as ’prestige of address’ and general security do not rank as highly
relative to the wider sample. Connectivity to roads and access to public transport are
all relatively more important for the rural sub-group.
16.9
Summary
16.9.1 This sub-sample shows that the respondents have been established at their current
location longer and are more likely to occupy this on a freehold basis. They are more
rent sensitive and perhaps looking to lower rent costs in the future.
16.9.2 In terms of the factors affecting the property preferences, access to clients is vital as
over 95% of rural-related respondents said that this was either a ‘high’ or
‘medium/high’ important factor in determining their location. It is for this reason that
road linkages and access to public transport, including buses and trains, also scored
more highly relative to the wider analysis. The Seale Hayne site suffers in respect of
this and may not therefore be viewed as a viable location for rural-related businesses.
16.10 Conclusions
16.10.1 The primary purpose of this research was to assess whether there was unsatisfied
demand for office space in the specified region and to assess what characteristics
occupiers look for when deciding on the business location. Having assessed the
responses to the survey, there is unsatisfied demand for business accommodation
space, as some respondents suggested that they were unsatisfied with their current
location. However, the scale of this demand, particularly within 10 miles of the Seale
Hayne site, is not necessarily significant enough to stimulate significant development.
In addition, occupiers can be unsatisfied but this does not mean that they will move in
the short- or medium-term.
16.10.2 The key driver behind the conclusion is the fact that there is not a significant
proportion of unsatisfied demand for business space within the survey area.
However, it should be noted that if a response was received from all companies
within 30 miles of the Seale Hayne site, there is no reason why some of these
occupiers would not consider relocation. However, the analysis, based upon the
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statistically significant sample, shows that additional demand is small and that
occupiers are generally happy.
16.10.3 The survey highlighted that the majority of local office occupiers are indigenous and
relatively small, on average occupying less than 2,500 sq ft of office space each.
There is a higher than average incidence of freehold occupation, as would be
expected for the whole of the UK, however, the majority of those who lease their
office space are paying less than £10 per sq ft per annum. This has implications for
the development viability of any scheme within the market area and indeed closer to
the Seale Hayne site where rent levels are lower.
16.10.4 When asked about their building, locational and other preferences, there was a mixed
response. The majority of respondents stated that they wanted a new or modern
building, however the feeling that this need not be on a greenfield business park was
emphasised by the fact that 82% wanted an in-town or edge-of-town location. This
reflects the preference for local amenities and the realistic perception that these
would not be provided in an out-of-town location, such as the Seale Hayne site.
16.10.5 Ultimately the conclusion of the research into office needs suggest that there is not a
significant amount of unsatisfied demand for business accommodation, including
expansion space. In addition, the scale of this demand and the rents that occupiers
are prepared to pay for new space are not significant enough to stimulate speculative
development away from the major town/city centres. The demands from rural-related
businesses are not significant enough to justify a substantial development to cater for
their future business accommodation needs.
16.10.6 In relation to the Seale Hayne site, there is scope for some of the key locational
factors to be met. However, poorer accessibility and the constrained pool of available
employees are major negative factors against the Seale Hayne site and act as a
barrier to success at the site. In addition, any linkage with a university is deemed
relatively unimportant; a result that has also come out from other studies on business
locational needs in the past.
Important Note
16.10.7 Finally, in accordance with normal practice, it should be stated that the tenant survey
report is for general informative purposes only and does not constitute a formal
valuation, appraisal or recommendation. It is only for the use of the University of
Plymouth and no responsibility can be accepted to any third party for the whole or
any part of its contents. It may not be published, reproduced or quoted in part or in
whole, nor may it be used as a basis for any contract, prospectus, agreement or other
document without prior consent, which will not be unreasonably withheld.
16.10.8 As is customary with such reports, the findings should be regarded as valid for a
limited period and should be subject to examination at regular intervals.
16.10.9 Whilst every effort has been made to ensure that the data contained in it is correct, no
responsibility can be taken for omissions or erroneous data provided by a third party
or due to information being unavailable or inaccessible during the research period.
The estimates and conclusions contained in this report have been conscientiously
prepared in the light of Savills experience in the property market and information that
was available to collect, but their accuracy is in no way guaranteed.
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Survey Area
Source:
Unit, 2002.
Office for National Statistics (produced by ONS Geography, GIS & Mapping
Note: Boundary illustrated by Savills
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17 THIRD PARTY REPRESENTATIONS
17.1
Local Plan Representations
17.1.1 As stated in Section 3.2.6 above, the agents for the University submitted a written
representation to the Teignbridge Local Plan review. This document, attached at
Appendix 1.2 made reference to the concept of a mixed-use development comprising
a variety of educational, residential, business, employment and community uses with
a ‘Rural Economy Centre’ forming the core and focus of the development. The
phasing of such a development was not addressed, however the magnitude of
development proposed suggested a phasing strategy of over 10 years. The
representations guaranteed the University the ability to present a case at the Inquiry.
17.1.2 We have included within Appendix 1.12 a number of press cuttings that refer to
comments made by third parties in response to the submitted representation. The
criticism directed at the University has, in part, informed the decision to appoint a
multi-disciplinary team to handle the preparation of a feasibility report in a meaningful
and methodological manner in order to ensure that a robust deliverable and viable
proposition is examined. We have not relied upon information submitted in 2002 to
inform the current feasibility study as a fresh approach is considered appropriate, with
reference to current national and local planning guidance and policy.
17.1.3 The introduction of a new Planning Act has meant that Teignbridge District Council
have abandoned the Local Plan process to pursue a new Local Development
Framework for the district. Appendix 2.5 sets out the new system in detail. The new
system will result in proposed development schemes at Seale Hayne being
considered by other means. There will be no formal Local Plan Inquiry as was the
case under the previous system. In the case of Seale Hayne, subject to appropriate
uses being viable, the most appropriate mechanism to promote the site will be a
Development Brief. This will consider how best those uses considered viable can be
delivered in the context of a robust planning framework.
17.1.4 We have referred to the representations submitted by third parties in response to the
2002 Local Plan submission given that this generated local and political objection
against which the current study is being conducted.
17.2
Steering Committee Guidance
17.2.1 As detailed above, a Steering Committee was assembled at the time of the
formulation of the Feasibility Study Brief. The terms of reference for the Committee
are set out as follows;

To oversee the feasibility study into the long term development of the University of
Plymouth’s Seale Hayne Estate

To establish a renewed vision for Seale Hayne such that the University gives
leadership in promoting economic activity for a rural region which provides an
improving standard of living and quality of life, under sustainable conditions.

To give due consideration to the University’s economic impact in the Newton Abbot
area, to avoid a long-term reduction as a result of University restructuring.

To consult with interested parties and ensure that the feasibility study is informed of
local, regional and national needs and views.
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
To ensure that there is appropriate communication with all stakeholders during the
feasibility study

To ensure that the University discharges its public duty to maximise the values of its
assets and reinvests to promote and achieve its Mission,

To keep the University’s Estates Advisory Group fully appraised of progress with the
Feasibility Study.

To present the Feasibility Study to Chancellery and the Board of Governors.
17.2.2 In taking on board the advice of the project team contained within the Feasibility
Report, the Steering Committee will have also be made aware of the interests of third
parties who have made detailed suggestions for the future of the campus following its
closure. These are summarised below.
17.2.3 In relation to the terms of reference, the preparation of the feasibility report is one part
of the overall strategy. Integrated within the feasibility study has been an appropriate
communication strategy. The project team has approached a large number of
stakeholders in the preparation of the technical studies. This has been supplemented
by the mail-merge distribution list, comprising some 3,900 business and business
contacts as part of the tenant demand survey.
17.2.4 Steering Committee Members were given the opportunity at the June 2004
Committee Meeting to suggest appropriate contacts for third parties who were
considered to have an interest in the future use of the site. Selected Committee
Members were later invited (October 2004) to suggest names for inclusion within the
Tenant Demand Survey. No responses were received.
17.3
Overview
17.3.1 The following parties were consulted after the first Steering Committee Meeting.
Those in italics acknowledged receipt of the letter but submitted no substantive
comment. Those in bold submitted representations; copies are attached at Appendix
1.13.
Party
Comment received
Mr Anthony
Steen MP
No comments received
Mr Hugo Swire
MP
No comments received
Ms Angela
Browning MP
No comments received
Mr Richard
Younger Ross
MP
No comments received
Government
Office South
No comments received
Consultant Team Response
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West
Regional
Assembly
No comments received
Devon County
Council
No comments received
Teignbridge
District Council
Teignbridge District Council
invited the Feasibility
Consultant Team to meet to
discuss progress as at
September 2004 and to
exchange opinions as to the
way in which the land use
strategy (Local Plan) could
relate to reuse and
redevelopment proposals.
Elected Members of the
Council and technical officers
within the Planning and
Economic Development Teams
attended this meeting. Issues
covered also included market
demand, sustainability
considerations (transport
issues) and competing
development sites as part of a
wider District wide
development strategy.
Chairman
Overview &
Scrutiny
Committee
No comments received – see
comment above in relation to
Teignbridge Council.
Executive
Portfolio
Holder to
Economy and
Tourism
No specific comments received
– see comment above in
relation to Teignbridge Council.
Teignbridge
Association of
Local Councils
No comments received
Newton Abbot
District
Chamber of
Commerce
No comments received
following the commencement
of the Feasibility Study.
The Feasibility Study responds to the
promotion of a strategy to reuse the site
for rural based activities.
The University received
representation in May 2004
seeking progress on the
promotion of a rural research
centre and to clarify
communication strategies
The Communication Matrix addressed
the future communication strategy
“options” for engaging with third parties,
but it is important to acknowledge that
this was prepared with a view to
implementing a consultation strategy at
Received 24th May
2004
The results of discussions with
Teignbridge District Council are
referred and summarised throughout
the report where appropriate. Further
dialogue between the University and
Teignbridge District Council is
envisaged as part of any future disposal
strategy for the Seale Hayne site. Two
Elected Members represent the Council
on the Steering Committee.
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between the University and
third parties.
Comment is made that the
vacation of the site will impact
upon local businesses and that
vacant buildings will attract
vandals and squatters.
Newton Abbot
Town Council
Received: 12th Jan
2005
Single page representation
submitted. This emphasises
support for the views of the
Seale Hayne Future Group (8th
December 2004 meeting).
Final Report
a time when the feasibility of delivering
development concepts have been
tested.
The University is conscious of the
security issues surrounding the
vacation of the site, but this issue is
outside the remit of the Brief. The Brief
requires the Consultant Team to
investigation options for the long-term
benefit of the site and the University
rather than promote “quick-wins” which
might prejudice the longer-term
financial responsibilities of the
University. This issues is linked to the
estate management guidelines issued
by HEFCE and others.
The views of the Seale Hayne Future
Group were reported to the Steering
Committee. No specific comments have
been promoted by the Town Council
that are not covered in the Seale Hayne
proposal/submission.
The representation refers to
“very strong representations”
made to the University over two
years regarding the future of the
site.
Council wishes to be involved in
any future consultation
exercise.
Dartmoor
National Park
Authority
Received 2nd
August 2004
Seale Hayne
Future (SHF)
Received 10th
September 2004
(SHF Cont’d)
Letter of acknowledgement
received. No substantive
comments received given
distance from site, but are
prepared to comment upon
proposals in due course.
SHF comprises
representatives from Newton
Abbot, Teignbridge District
Council, and Devon County
Council together with
governors of the campus and
former students.
Following the announcement of
the preparation of the
Feasibility Study, SHF
produced a paper for the
University offering their advice
The project team considers that a number
of sensible points are made. The general
principle for what SHF would like to see
on the site is not too far removed from the
definition of a Rural Economy Centre as
set out in section 14.4 of the Final Report.
Notwithstanding this, their model would
appear to have a greater degree of nonbusiness space, thereby making any
scheme along those lines less likely to be
viable given an implicit subsidy being
offered by the University to occupiers.
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on what they believe to be an
acceptable strategy for the site.
It is understood that SHF have
met with officers (and
Members) of Teignbridge
District Council in advance of
the submission of their report
to Stride Treglown Limited.
The SHF proposal is set out in
a report dated September
2004. This is attached at
Appendix 1.14). It draws on the
work of Rural Economy and
Land Use (RELU) research
programme and the National
Rural Knowledge Exchange
(NRKE).
SHF propose that Seale Hayne
becomes a Rural Research
Centre offering facilities and
start-up advice for rural
businesses and wealth
creation in the region and that
the existing lecture rooms and
accommodation could be
utilised for conferencing
facilities.
It is also suggested that the
existing farm buildings could
provide units for local
businesses and that the
laboratories could
accommodate science-based
(implied public funded)
organisations wishing to locate
in the south-west – these being
offered preferential rates and
/or subsidised by larger
commercial occupiers.
Final Report
The SHF Group proposal also
encourages (it is in part based upon the
assumption that) the University has a
long-term landowning interest in the site.
In this regard, it is important to reiterate
the terms of the Financial Memorandum
of the University in relation to the use of
its assets and the guidance offered by
HEFCE, National Audit Office and the
Public Accounts Committee.
The feasibility study seeks to address, by
reference to a robust methodology,
issues surrounding the make-up, function
and mass of a Rural Economy Centre.
Savills have presented a paper that
investigates the involvement of
Universities in Cluster Developments.
Reference has been made to specific
examples elsewhere in the UK where a
University has an active role in the
scheme.
The Feasibility Study has approached
over 3,900 businesses to ascertain the
likely level of demand for accommodation
as part of a Rural Economy Centre.
Whilst the sentiments of the SHF
proposal are acknowledged, caution must
be taken to references in the proposal
that appear to be highly speculative in
nature with no evidence of justification
other than references to individual parties
and interests. It is not known whether the
proposal is based upon empirical
evidence across a wider business sector.
Certain statements made in relation to
the aspects of tenant demand are not
corroborated by the bespoke research
undertaken by Savills in conjunction with
the feasibility study.
The project team of advisors are
confident that an appropriate and robust
methodology has been undertaken in
support of investigations concerning a
Rural Economy Centre at the Seale
Hayne site.
The Seale Hayne Future proposal makes
reference that it is essential to "retain the
nucleus of the present organisation". As
stated in the opening section to this
report, part of the wider brief given to the
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project team of advisors refers to the
decision of the University to vacate the
site and consolidate all academic
activities to Plymouth. The 2002 decision
to relocate activities to Plymouth resulted
in the Seale Hayne site being surplus to
academic requirements and thus an
asset for which an appropriate disposal
strategy is required in accordance with
HEFCE, NAO and Public Accounts
Committee guidance and best practice.
(SHF Cont’d)
Savills consider that a concentration of
government/quasi governmental bodies
rather than businesses as suggested by
the Seale Hayne Future proposal would
result in a centre with too high a
proportion of public bodies, such that the
Centre would find it more difficult to
attract private sector businesses.
Savills consider that a scheme such as
that proposed by the Future group would
require not only start up but on-going
funding. In this context, affordable
housing and a number of other uses
referred to are unlikely to generate
financial returns.
National
Farmers Union
Received 16th
September 2004
The SHF proposal encourages
Govt and NGO’s to be attracted
to the site.
Notwithstanding this, the University will
wish to ensure that dialogue with all
appropriate Govt Dept’s and NGO’s are
considered as part of any future disposal
strategy. At the present time, the
relocation and co-location strategies of
numerous Govt Dept and NGO’s are not
conformed to the extent that they justify a
specific known occupier requirement
compatible with the Seale Hayne site.
The National Farmers Union
comment that “the name and
reputation of Seale Hayne
mean a great deal to the
farming community” and that
“the site should be secured as
a hub for technology transfer
activities of all sorts, including
post graduate studies,
designed to underpin the
development of the farming
and land-based sectors in the
region”. This concept relates in
part to the implementation of
Sustainable Farming and Food
The comments presented by the NFU
mirror in part certain views expressed
by the Seale Hayne Future Group.
In this regard, whilst the past
importance of Seale Hayne as an
agricultural college is acknowledged,
the role played by the College in the
current economic and rural climate is
very different.
The tenant demand study has sought to
investigate opportunities for a REC.
The findings of the bespoke tenant
demand survey do not indicate that a
University presence on site is a critical
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South West of
England RDA
Regional
Headquarters
Final Report
Strategies.
factor that would attract occupiers to
the site. Whilst it is acknowledged that
knowledge transfer is not limited to
University participation, the research
did not highlight sufficient demand from
the rural or employment sectors to
justify the creation of such a facility at
this time.
Letter of acknowledgement
received, offering contact
details for progression of reuse
strategy in the light of the
Feasibility Study.
In support of a future disposal strategy,
the University may wish to continue
dialogue with SWRDA (a working
relationship already exists) in the light
of the findings of this Feasibility Study.
Received 21st July
2004
Local
Operations and
Development
Managers
Plymouth City
Council
Received 17th
August 2004
Leader of
Council
Letter of acknowledgement
received, confirming interest
and offering support to
feasibility study. (General
comment only)
No specific communication
received. See general letter of
acknowledgement above.
Chief
Executive
No specific communication
received. See general letter of
acknowledgement above.
Lord Livsey of
Talgarth
Letter of acknowledgement
received giving encouragement
for aims and objectives of
Feasibility Study. No further
communication received.
Received 24th July
2004
The SealeHaynians
The University have a working
relationship with the City Council in
relation to the promotion of an estate
strategy within the City. Further dialogue
will be on going in relation to the delivery
of accommodation to further promote
academic studies within the City.
No comments received
17.3.2 The following table contains references to third party representations submitted to the
University or to the consultant team independently rather than in response to the
initial letter seeking comments which was submitted by the University following the
June 2004 Steering Committee. It is prudent to note the first entry included in the
table below relates to a representation received in advance of the creation of the
Steering Committee.
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SAVE Britain’s
Heritage
Received 27th May
2004
Mr P Darby
Received 12th July
2004
Final Report
Unsolicited correspondence
was received in advance of the
first Steering Committee
opposing the sale of the site
and buildings and seeking
progress in relation to the
promotion of a re-use strategy
for the site and in particular the
Listed Buildings.
The 2002 decision to transfer academic
activities to Plymouth and the resultant
status of the Seale Hayne site as an
asset surplus to academic requirements
is addressed in the Main Report. The
decision to vacate is the driver behind
the need to undertake a Feasibility
Study.
A concept based upon the “feel
of an agricultural show” is
promoted. It is suggested that
this could attract around 2.0M
visitors a year (comparable
with the Eden Centre at 1.8M
visitors). It should be noted that
the submitted report appears to
have been originally prepared
in 1998.
The variety of proposed end uses for
the site as promoted are not considered
to be commercially viable or
deliverable. This is supported by the
results of the Tenant Demand Study,
the decision to transfer all academic
study to Plymouth and the seasonal
nature of tourism. It is not considered
that the variety of uses would be
compatible and would not represent
best consideration in line with financial
responsibilities of the University.
Uses for inclusion within the
centre include, inter alia:
Alternative Energy Equipment
sales and distribution,
Engineering and quasiengineering degree courses,
marketing and conferences,
entertainment, alternative
technology sales and
distribution, workshops, craft
and DIY advice centres,
Wildlife Sanctuary, Children’s
Craft shop, Ice Cream sales
etc.
Notwithstanding the above, as part of
any future disposal strategy, developers
and joint venture parties may wish to
promote elements of the proposal
should they consider such uses are
viable.
Many of the uses mentioned within the
submission are de minimis (too small to
make a significant contribution) to the
viability of the Seale Hayne site. As
such, testing such uses is not within the
remit of the Feasibility Study.
It is considered that the site
could attract entrance revenue
at £7.50 per person to fund the
capital cost and maintenance.
Quickes
Traditional
Limited
Received 2nd
November 2004
University of
Exeter Centre
for Rural
Research Prof.
Statement of support received
in relation to the proposals put
forward by the Seale Hayne
Future Group.
See comments above in relation to the
Seale Hayne Future submission.
Support given to the sale of
development land to finance
the proposals and to unlock
other sources of funding.
Professor Winter comments in
an independent capacity that
he neither supports nor
criticises the SHF proposals
These comments relate, in the main, to
points of clarification in relation to
ongoing rural and research
programmes being undertaken within a
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Michael Winter
Received 19th
October 2004
but offers points of clarification
on some of the issues raised in
the SHF paper. This is
therefore a response to third
party proposals rather than in
response to the preparation of
the Feasibility Study per se.
He draws attention to the
proposal to situate a Rural
Research Centre at Seale
Hayne and comments that the
existing Rural Research Centre
at the University of Exeter is
one of the leading rural
research centres in the country
with a strong regional profile.
Final Report
local, county and regional perspectives.
The funding regimes in existence which
are directed towards rural research
activities is outside the scope of this
Feasibility Study which is asked to
address the viability of a Rural
Economy Centre based, in part, upon
likely tenant demand from across a
range of rural and more traditional
employment sectors.
Reference is also made to
various ongoing research
projects involving the University
in isolation or with research
partners.
Research is ongoing by the
Regional Research Priorities
Board in relation to the research
capacity, potential and needs
for the region as a whole
(supported by SWRDA and
GOSW).
17.3.3 All parties who have submitted representations to the University or Stride Treglown
Limited will need to be consulted on the overall findings of the Feasibility Study and
thanked for their time in submitting correspondence. The manner in which these
parties are to be consulted will be matter of discussion for the Steering Committee
and University.
17.3.4 The following table summarises the comments received from the Steering Committee
Members received after the Steering Committee meeting on the 25th November 2004.
Issues for discussion can be broadly grouped under the following items:
1. Clarifying the Brief within the Feasibility Report.
2. The attractiveness or otherwise of the long-term retention (in whole or part) of the
site. This is linked to Partnership approaches covered in Item 3 below.
3. Alternative reuse options, including Govt and NGO organisations.
4. Communication and Consultation with Third Parties.
5. Matters of accuracy and clarification.
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Issue
Comment received
Action and/or Response
1
Concerns that too narrow an
examination of opportunities were
undertaken.
The University and the Steering
Committee requested a feasibility study
that concentrated upon the
deliverability of a REC for the Seale
Hayne site. It is considered that this
has been thoroughly tested, supported
by background papers and technical
studies.
The Brief was discussed with the
University and adopted by the Steering
Committee on 25 June 2004.
The Feasibility Study is prepared to test
a “defined” Rural Economy Centre
concept (and more traditional
employment development such as
business park) rather than to test all
potential end use options. The market
has the potential to come forward with
“unique” users and uses that cannot
realistically be perceived by the
University.
2
If the site is sold, Savills should
record a vested interest in Seale
Hayne.
The Feasibility Study did not request
disposal advice. Savills will no doubt be
required to tender for any future agency
disposal as part of an OJEC tender for
disposal advice. As such, it is not
considered that there is any conflict of
interest.
Detailed comment made in
relation to current Open Market
Values and Future Values – if
there is considerable future gain
in land value, the Steering
Committee should not ignore this
in coming to a decision.
It is not the role of the Feasibility Study
to discuss future open market values in
a Study looking at the feasibility of a
particular development proposal
concept.
The University’s retained
Commercial/Real Estate advisors may
be able to offer advice in relation to
comparable deals elsewhere, but
examples will be very limited.
As explained in the body of the Report,
the University are able to protect their
long-term interests through the use of
legal clauses in any future sales
documentation. This is matter for
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detailed and separate consideration.
Marginal Cost approach to site
retention.
Whilst it is not appropriate to discuss
future disposal strategies in the
feasibility report, this is an issue that
the University’s retained
Commercial/Real Estate advisors can
advise. In the context of the Feasibility
Study, the consultant team have been
requested to be aware of the financial
accountability regulations and guidance
issued by HEFCE and others in relation
to the management of the University’s
estate with due regard to operational
cost efficiency and achieving maximum
capital receipt on disposal in the event
that sites are surplus to academic
requirements (as is the case at Seale
Hayne).
If the University consider the
retention of part or the entire site,
it does not follow that rental
incomes received need to be
high, just that maintenance costs
are covered. Comment is made
that there are “plenty” of business
and organisations who need
office space.
Savills research suggests that there is
a demand for office accommodation,
but that the Seale Hayne site is unlikely
to be preferred over other office parks
and areas. The basis of the feasibility
study was that the University have
made a decision to vacate site with a
view to facilitating a REC if viable, but
sale in any event. See comments
above in relation to the management
and disposal of surplus assets in
accordance with guidance offered by
HEFCE, National Audit Office and
Public Accounts Committee.
Within mixed-use development
(with retained University interest
and therefore lower than market
rents), occupiers should be
targeted which would be
consistent with the educational
goals and values held by the
University. This could lead to long
term University retention of
accommodation.
Savills have reported that the REC
concept was not dependent upon onsite University presence. Business Park
occupiers are less interested in
University activities close by. By limiting
the target audience, it will be
increasingly difficult to secure occupier
interest.
Savills have presented a paper in
relation to academic institutions and
business parks. The basis upon which
the Feasibility Study was taken is the
decision of the University to vacate and
promote the long-term reuse and
disposal of the site, thereby removing
any site liability.
See comments above in relation to the
management and disposal of surplus
assets in accordance with guidance
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offered by HEFCE, National Audit
Office and Public Accounts Committee.
The University need not manage
day-to-day activities but pass
details onto an Agency.
Alternative management for a
University held mixed-use site
could be a co-operative of
tenants. [This assumes that a
REC is a viable proposition, but in
a different form to that envisaged
by the Study which in turn has
drawn upon other REC and
Business Park examples].
This issue is linked to the long-term
retention of the site and considers
matters of detail based upon an
assumption that tenants can be found
or that an agreed internal management
co-operative be established.
A partnership approach is
suggested, which would include
involvement of Government
bodies and agencies and nonGovernment organisations,
thereby reducing the exposure of
the University. Includes potential
to draw upon the ideas of Seale
Hayne Future Group.
This again relates in part to
management issues, but also the
potential to attract public bodies. Whilst
certain governmental bodies are
devolving from the centre, the phasing
and extent of devolution is not clear.
These parties might be attracted to the
site if the timing was right, but against
this is the locational disadvantages of a
rural location where reliance on the car
would be high (and would in all
likelihood be tested against competing
sites in any decision to occupy the site
by a public body under Cost Benefit
analysis.
The management of any REC does not
fall within the remit of the Feasibility
Study, save for the findings of research
in relation to the way in which other
REC’s are structured and/or developed
(See Savills paper).
The University are required to
maximise capital receipt on disposal of
surplus vacant land assets. Any
disposal strategy which might be
adopted by the University could be
supplemented / complemented by third
party discussions with organisations
such as the South West of England
Regional Development Agency.
3
Alternative logics – concern that
study was not asked to consider
options that are based upon the
receipt of rental values.
It is apparent that there is some
support for further work to elaborate
upon or take forward the results of the
Feasibility Study in order to inform a
debate. It is considered that the
Feasibility Study will be a platform, but
not the sole source of information, to
make a series of long-term decisions
about the site.
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Concern raised over the future
optimal use of the site as dictated
by market forces in relation to the
“public” decision to sell the site.
This is a matter for the University to
consider in the context of its public
accountability in relation to financial
management of its assets (see
comments above in relation to HEFCE,
NAO and Public Accounts Committee
guidance.
Report should identify “areas not
yet explored”.
It is considered that the terms of
reference and Project Brief have been
met in relation to a Feasibility Study
concerning the potential for a REC.
The consultant will be happy to
respond to any outstanding issues
connected with the promotion of the
Seale Hayne site under separate
instruction.
4
Management of public relations
with regard to the Rural Agenda.
This is an issue tied to the
communications matrix and the way in
which the University should inform third
parties of the results of the Study. This
is also a general communication issue
regardless of the outputs of the study.
This is a matter for debate with the
University PR and Communications
team. The manner in which the findings
of the report could be presented to third
parties will be a matter for the January
2005 Steering Committee to consider.
5
Expansion to clarify justification
for traffic flows.
The Transport Assessment has been
reviewed and re-issued prior to
collation of the final report and will be
tabled at the final meeting on 27
January 2005. This revision will be
inserted as Appendix 2.4. Clarification
on trip generation figures has been
added. This justifies the threshold or
trigger point for considerable off-site
highway works.
Clarification required in relation to
discounting a REC of “any
economic size” on traffic flow
grounds.
Notwithstanding economic (demand)
factors, the REC site would need to be
of a size under 11,495 sqm (123,735
sq ft) or a Business Park less than
17,930 sqm (193,000 sq ft) – much
smaller than the existing floorspace of
the Campus.
Concern that the campus does
Agreed. It is considered that the
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not close by “the wrong ending of
the present process”.
Final Report
consultant team has responded to the
needs of the Steering Committee and
ensured that an informed decision for
the future of the site can be made
based upon bespoke and robust
market demand research. As part of
any future disposal strategy, the
University could have an important role
in continuing dialogue with interested
parties such as SWRDA, Devon
County and Teignbridge District
Councils.
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18 FEASIBILITY STUDY CONCLUSIONS
18.1
Overview
18.1.1 This study has sought to address the material land use and property market
considerations relevant to the delivery of a Rural Economy Centre at the Seale Hayne
site.
18.1.2 The following sections summarise the fundamental viability issues. These
conclusions draw upon the findings of the main body of the report and the
appendices, submitted in two volumes under separate cover. The issues covered in
the report reflect the Project Brief and respond to issues requested of the Steering
Committee at its meeting on the 24th June 2004.
18.2
Policy Issues
18.2.1 Land use policies, set out in various documents prepared by Teignbridge District
Council, seek to encourage new developments in sustainable locations and in
accordance with Council objectives. Major new schemes will be expected to be
promoted in a manner that engages local people and key stakeholders. Teignbridge
District Council have abandoned their Local Plan to 2011 and are engaged in the
preparation of a new Local Development Framework. The first “Options and Issues”
paper is not expected to be published until after Spring 2005. This document, the
subject of consultation, will eventually inform the development strategy for the area.
18.2.2 At the time of writing, we are aware of a number of “competing” development sites
which are capable of meeting employment and residential schemes, thus assisting in
the delivery of strategic targets. Many of these sites are located in, or on the edge of
settlement boundaries. As such, these sites are able to offer a strong case in terms of
meeting sustainable development objectives given their immediate proximity to local
goods, services and public transport routes.
18.2.3 The adopted Local Plan defines the Seale Hayne site in the Open Countryside where
polices seek to resist new major developments.
18.2.4 Teignbridge District Council have suggested, during discussions in October 2004,
that a major new development at the Seale Hayne site would not be supported on the
grounds of traffic impact and sustainable planning objectives. Notwithstanding issues
of tenant demand set out below, the Council’s position does not appear to be
conducive with the creation of a Rural Economy Centre which would require a critical
mass to be achieved in quality accommodation suited to the current / future needs of
any tenants and which meet modern day building standards.
18.2.5 Polices of the Local Plan support the conversion of buildings in rural settings to
alternative uses. Acceptable uses include business, tourist facilities, recreation, light
industrial, holiday accommodation and other uses that are of benefit to the local rural
economy. Teignbridge Council are likely to consider this policy context as the starting
point for an acceptable mix of uses on the site – rather than the introduction of more
intensive forms of development that would appear relevant to the creation of a Rural
Economy Centre.
18.2.6 The baseline work undertaken in this feasibility study can be used to prepare a
Development Brief, the purpose of would be to show how alternative uses can be
accommodated on site, and the measures which would be required to mitigate any
visual, environmental, engineering or highway impacts.
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18.3
Final Report
Environmental Issues
18.3.1 There are no designated sites within the study area, however two wildlife sites exist
within the wider Seale Hayne site. The mosaic of habitats within the study are has the
potential to support a number of breeding bird species.
18.3.2 The main landscape elements of significance include the Devon Hedgebank systems
and farm woodlands, which act as boundary and shelter features. A number of
viewpoints have been identified which could be affected by widespread and
comprehensive development proposals. However, with sensitive screening, adverse
impacts could be significantly reduced.
18.3.3 Redevelopment of the agricultural landscape surrounding the site could cause severe
impact – development changing the character of the wider area. This could be
mitigated to varying degrees of success by strategic landscaping and planting.
18.4
Highway and Engineering Issues
18.4.1 The highway assessment highlights the general inadequacy of the minor roads linking
the campus to the main road network. This is likely to be a limiting factor on potential
redevelopment.
18.4.2 The College itself, when fully operational, generated a reasonable amount of traffic
movement and it is assessed that this equates to an office use of approximately
11,450sqm or a business park use of 17,930sqm. It is suggested that these figures
be used as a guide to the size of development that could come forward without a
requirement to carry out highway improvement works beyond the immediate vicinity
(i.e. beyond Forches Cross).
18.4.3 If the development is kept within these limits it has been confirmed that the Highway
Authority would require a contribution to an improvement to the Forches Cross
junction. There is currently no in-house design and hence it is difficult to estimate a
cost. On the basis that traffic flows associated with the development would be around
the same level as previously experienced it has been agreed that Seale Hayne would
not be expected to fund the full cost of a scheme and hence a contribution of around
£50,000 is suggested as an initial negotiating position.
18.4.4 If a form of development is proposed which significantly increases traffic flows then a
detailed Transport Assessment will be required to demonstrate the impact of the
increase. This Assessment will cover the highway network generally westwards out to
the A38 via the A382 and A383 and generally eastwards to the road linking the A382
and A383 within Newton Abbot. The Highways Agency require that junction testing
should consider the situation 15 years beyond the completion of the development and
this takes into account background traffic growth unrelated to the development. This
is a particularly onerous requirement.
18.4.5 It is difficult to envisage the scale or practicality of carrying out works to achieve a
further capacity increase at the Drumbridges Interchange (A38/A382). It is suggested
that the cost would be significant. Discussions with the Highway Agency have
highlighted that the westbound on-slip is shorter than desirable due to the presence
of the minor road junction further to the west. Should the Highways Agency require
improvements to the Caton Interchange (A38/A383), the cost is likely to be very
substantial and again above the value of any potential development.
18.4.6 The full cost of improving Forches Cross would fall on the Seale Hayne development.
As no scheme has been identified – primarily because there is no obvious or cheap
solution – a conservative estimate would be £250,000-£500,000.
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18.4.7 The overall cost for the improvement to the local road network could be in the range
£450,000-£900,000. This could be called for with even a modest increase in traffic
generation.
18.4.8 As far as can be estimated at this stage, the contributions towards highway
improvements (depending on the level of development within the campus) is set out
below:

development with a similar level of traffic generation as Academic use - £50,000.

development with a minor increase in traffic generation - £450,000-£900,000.

development with a significant increase in traffic generation (i.e. over 11,500sqm
office use, or 18,000sqm business park use (or similar mixed use) – not accurately
quantifiable at this stage, but considered to be significant. Any amendments to the
A38 junctions are likely to be extremely expensive.
18.5
Overview of Rural Cluster Developments in the UK
18.5.1 The first phase of research was an overview of rural cluster developments in the UK.
Various common themes were found in the majority of other rural cluster
developments and considered in more detail with two specific case studies. One
particular point of relevance was that university involvement was frequent in these
schemes although it was seemingly not vital for success.
18.5.2 Further details on university involvement in science parks are attached at Appendix
2.7. Based upon the analysis of the various schemes a suggested definition for a
Rural Economy Centre was arrived at, this being not dissimilar to a science/research
park but with the focus of the tenant mix on businesses supporting, researching or
administering the rural economy.
18.5.3 Consideration of the planned rural science and Technology Park at Stoneleigh Park
in Warwickshire revealed that this proposed scheme was likely to satisfy national
demand and therefore if there were to be any scheme at Seale Hayne it could
realistically only be a regional centre of excellence. Bearing in mind the definition of a
Rural Economy Centre, competition for tenants would come from existing and
planned business, science and research and development parks. The
recommendation was therefore to proceed to the property market survey to assess
the strength of local competition.
18.6
Local Property Market Survey
18.6.1 The property market survey looked at the supply/demand balance for office and
industrial space in Exeter, Plymouth and more locally to Seale Hayne. It was found
that there is sufficient office and industrial accommodation in both Exeter and
Plymouth, not only at present but also in the pipeline for the future. The only possible
exception is in Exeter where it may be difficult to accommodate a single very largescale office space requirement. It was also evident that there are already existing
quality science and business parks with capacity in the region. These include
Plymouth International Business Park, Tamar Science Park and there are also plans
for a new science park in Exeter.
18.6.2 More locally there is a demand for smaller areas of space but not to the degree that
there is a significant imbalance between the current supply and demand. There is
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always demand for start up and incubator units although this demand is, to some
extent, satisfied by various schemes.
18.6.3 In light of the supply/demand balance, there is no realistic prospect for any form of
successful speculative development. There is a fine balance in the market with no
obvious unsatisfied demand. If a Rural Economy Centre were to work at Seale
Hayne it would need to identify a unique selling point (USP) in order to be able to
attract tenants. The tenant demand study was therefore carried out to determine the
locational criteria of potential occupiers of space.
18.7
Tenant Demand Study – Property and Perception Survey
18.7.1 A bespoke tenant demand survey of over 3,900 businesses distributed across the
region revealed that the majority of office occupiers are relatively small, on average
occupying less than 2,500 sq ft, and these prefer to remain close to where their
established base. The majority of respondents who were considering additional
space were seeking new or modern buildings but at an in town or edge of town
location.
18.7.2 The survey was clear that there is not a significant amount of unsatisfied demand for
business accommodation, including expansion space. In addition, the scale of this
demand and the rents that occupiers are prepared to pay for new space are not
significant enough to stimulate speculative development away from the major
town/city centres. The demands from rural related businesses are not significant
enough to justify a substantial development to cater for their business
accommodation needs. Whilst the Seale Hayne site does satisfy some key locational
factors, it is let down by poor accessibility which will act as a barrier to success. The
survey also indicated that linkage with a university is deemed relatively unimportant.
18.8
Project Conclusions
18.8.1 The Consultant Team is satisfied that the work programmes adopted in accordance
with the requirements of the Project Brief have been delivered. The Brief was agreed
by the University and Steering Committee and reflects the Terms of Reference of the
Steering Committee. This final report incorporates, where appropriate and relevant to
the delivery of the project brief, issues raised by representations submitted by third
parties. The report also takes into account comments received in relation to a Draft
Progress Report issued to the Steering Committee Members in December 2004.
18.8.2 The basis upon which the Feasibility Study has been prepared is the 2002 decision of
the University to transfer academic studies from Seale Hayne to Plymouth – this
decision therefore resulting in the Seale Hayne campus being surplus to the longterm academic requirements of the University. As such, the University is required to
ensure that a strategy is adopted that secures maximum capital receipt on disposal in
accordance with best practice guidance. This report is therefore designed to present
the findings of a bespoke series of work programmes which test the feasibility of
developing the Seale Hayne site as a Rural Economy Centre (and a traditional
business park in the event that a Rural Economy Centre is not considered to be a
viable proposition.
18.8.3 The conclusions to be drawn from both the local property market survey and tenant
demand survey is that there is insufficient demand for significant amounts of new
business space and that demand that does exist is at relatively low rental levels. This
applies to general occupiers of space as well as to rural related businesses.
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18.8.4 Reference is made above to the need to establish a USP for any proposal at Seale
Hayne if it is to have any chance of success. The USP would need to be one, or a
combination of, the most important factors affecting business location as revealed by
the tenant demand study. However, the unchangeable physical factors of the site its distance from existing centres, lack of accessibility and constraints of the existing
buildings on the site (including site topography) - mean that it is not possible, without
incurring significant costs, to establish a satisfactory USP to overcome the lack of
unsatisfied demand and attract a sufficient number of occupiers to Seale Hayne.
18.8.5 In light of the above Savills recommend that any form of speculative development at
Seale Hayne, be it in the form of a Rural Economy Centre or more traditional form of
business space, should not be contemplated. There is not the demand in the current
market for a Rural Economy Centre at this kind of location.
18.8.6 Similarly, there is no significant demand for conventional types of business space at a
site such as Seale Hayne that is subject to the negative locational factors previously
referred to. Any demand that does exist for business space is of an extremely smallscale nature and at low rental levels. Any scheme catering for this form of demand
would therefore be likely to suffer from low rental returns, high management costs
and significant periods of rental voids. These would all combine to make any scheme
unviable.
18.8.7 Our property research and studies have revealed that neither a Rural Economy
Centre nor a more conventional multi occupancy occupation (business park) at the
Seale Hayne site is feasible or viable. Notwithstanding this, the Seale Hayne site
does have potential for alternative uses but these are likely to be specialist in their
nature. Identification of possible alternative uses beyond a Rural Economy Centre or
traditional multi occupancy use of the site is beyond the scope of this feasibility study.
It is understood that discussions between the University and interested parties such
as Teignbridge District Council will continue in the pursuit of an appropriate and
economically attractive land use and/or disposal strategy for the Seale Hayne site.
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