Northampton Employment Land Assessment (NELA) Forms One of a Suite of Technical Evidence Base Which Will Inform the New Local Plan Part
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NORTHAMPTON LOCAL PLAN (PART 2) EMPLOYMENT LAND ASSESSMENT FINAL REPORT PREPARED BY: NORTHAMPTON BOROUGH COUNCIL PLANNING POLICY SECTION (AND PETER BRETT ASSOCIATES) February 2018 1 | Page PART 1 Main Report 2 | Page CONTENTS CHAPTER PAGE NUMBER PART 1: MAIN REPORT 1 Introduction and Structure 4 2 Policy Context and Background 7 3 Overview of existing Technical Evidence Base 12 4 Demand and supply in the long term 23 5 The Northampton Commercial Property Market (Peter Brett 30 Associates) – a summary 6 Jobs growth, Key Regeneration Projects and the Enterprise Zone 32 7 Viability and sensitivity analysis 42 8 Assessment of existing and allocated employment sites 44 9 Impacts of Permitted Development Rights 49 10 Policy Recommendations 51 11 Delivery, Monitoring and Review 52 Glossary 57 References 60 Appendix 1: The Northampton Commercial Property Market report – full 62 report (report from Peter Brett Associates, 2016) Appendix 2: West Northamptonshire Joint Core Strategy (key employment 82 policies) Appendix 3: Workshop (25th May 2016) 85 Appendix 4: Site appraisal form 87 PART 2: SITE APPRAISALS Individual Site Appraisals 94 3 | Page 1. INTRODUCTION AND STRUCTURE Northampton Local Plan (Local Plan Part 2) 1.1 Northampton Borough Council is preparing a Local Plan (Part 2) for the administrative boundary of Northampton. This follows the adoption of the West Northamptonshire Joint Core Strategy in December 2014, which was prepared by the West Northamptonshire Joint Planning Unit on behalf of Northampton Borough, South Northamptonshire and Daventry District Councils. The new Local Plan will provide details of how the Joint Core Strategy will be delivered, through development management policies and site specific allocations. It will replace the remaining saved policies in the 1997 Northampton Local Plan and review policies contained in the Central Area Action Plan (CAAP) which was adopted in January 2013. 1.2 This Northampton Employment Land Assessment (NELA) forms one of a suite of technical evidence base which will inform the new Local Plan Part. It will assist with employment policy formulation, and the consideration for determining which existing employment sites could potentially be retained for employment uses and which could be released from this designation. This will conform to Policy E1 of the West Northamptonshire Joint Core Strategy (Appendix 2). NELA contains an update on the commercial property market which was independently prepared by consultants, with contribution from local commercial agents and developers. 1.3 NELA also builds on existing technical studies and evidence base produced to date, for both the West Northamptonshire Joint Core Strategy and the Northampton Central Area Action Plan (adopted in January 2013). These include studies undertaken by Roger Tym & Partners for the West Northamptonshire Joint Core Strategy (July 2010) and the updated versions in July 2012 and 2013 prepared by the West Northamptonshire Joint Planning Unit. It does not seek to repeat all the information already presented in these existing studies or review the jobs requirement. It will highlight the elements which demonstrate what the Local Plan Part 2 is required to deliver and why. 1.4 The list of evidence base produced by the West Northamptonshire Joint Planning Unit has been used to formulate employment policies in the Joint Core Strategy. The evidence base includes an assessment of supply and demand, development pipeline and vacancy rates. The conclusions and findings from previous studies have resulted in the following policy summaries, which will need to be delivered through the Northampton Local Plan (Part 2): • the requirement to provide 28,500 jobs over the plan period which is to 2029 • the need to safeguard as many of the employment sites as possible for employment and/ or employment generating uses (unless there is evidence to suggest otherwise) 4 | Page 1.5 In assessing supply and demand, the Joint Core Strategy evidence base concluded that there was a need to allocate an additional employment site in order to meet the jobs requirement over the plan period and also to meet Northampton’s employment needs. The additional employment site allocated in the Joint Core Strategy is located in Junction 16 of the M1. 1.6 The Northampton Employment Land Assessment (NELA) therefore does not seek to change the target for job creation that has been set and the policy for safeguarding employment sites for employment uses. These are required to be delivered through the Local Plan Part 2. This study seeks to assess all the existing allocated employment sites in Northampton with regards to their suitability for employment purposes, with a view to recommending their retention or removal from designation when progressing the new Local Plan. The objectives of NELA are to: 1. Provide recommendations on the future of land and premises contained within the existing employment land allocations portfolio, which have been pooled from both the existing allocations within the Northampton Local Plan (adopted in 1997) and those contained within the Northampton Central Area Action Plan (2013). These recommendations are based on an appraisal of each site 2. Provide an overview of the Northampton commercial property market, to understand the issues currently faced by the commercial sector and to assess how the Local Plan can contribute towards addressing these 3. Provide information on the impacts of the new Permitted Development Rights (PDR) that came into force on the 30th May 2013, allowing change of use from offices to housing and/ or schools without planning permission. This PDR is now permanent. In 2015, the PDRs were extended to include change of use from warehouse to housing. In October 2017, this was further extended to include change of use from light industry (B1c) to residential. The latter two are temporary for the time being 1.6 This employment land assessment was undertaken with assistance from independent consultants, Peter Brett Associates (PBA), in their role as a Critical Friend. PBA was appointed in July 2013 to independently assess the outcome of the site appraisals undertaken by Northampton Borough Council Officers, as well as undertake a viability assessment of key sites. The Viability Assessment report was completed in 2014. The selection of key sites for the viability assessment was agreed between the Borough Council Officers and Peter Brett Associates. 1.7 The sites assessments were reviewed in 2015. In addition, PBA consultants were responsible for leading on a workshop and undertaking research on local commercial property market which took place in May 2016. This allowed for a more independent overview of this assessment. Their full report can be found in Appendix 1. 1.8 In 2017, the information contained in NELA has also been updated to take into account the findings and conclusions from the Land Availability Assessment (LAA) exercise. The LAA was undertaken in 2016/ 17. The LAA takes on board the 5 | Page submissions/ representations to the Northampton Local Plan Part 2 Issues Consultation and Call for Sites. It also reviewed all the Northampton sites which were assessed through the Strategic Housing Land Availability Assessment (SHLAA) undertaken by the West Northamptonshire Joint Planning Unit. The consultation to the LAA took place in October/ November 2017. The employment site assessments should be reviewed again once further investigations are completed on the LAA sites as part of the plan preparation progress. Structure of the Report 1.9 This NELA report is divided into two parts: Part 1: this part of the report contains the main body of the assessment. It provides information relating to policies that are relevant to the assessment, including national and strategic policies. It explains the evolution of existing evidence base which had been used to inform policy formulation as well as gaps in the evidence base required to aid policy formulation. It includes a chapter written by Peter Brett Associates on the state of the commercial property market in Northampton (see Appendix 1). Part 2: this part contains the individual site appraisals, and includes site specific recommendations and maps. 6 | Page 2 POLICY CONTEXT AND BACKGROUND a National Policy 2.1 The Government published the National Planning Policy Framework (NPPF) in March 2012. The key message which underpins the spirit of the NPPF is the presumption in favour of sustainable development, which is required to be the basis for every plan and every decision. It states that planning should therefore not be about scrutiny alone, it is to be a creative exercise which finds ways to enhance and improve the places in which we live our lives. The National Planning Practice Guidance (NPPG) was published in March 2014, which provides details on how the guidance can be implemented. 2.2 The relevant NPPF requirements have been embedded in this study. Officers assessed each allocated employment site with a view to ascertaining if they should be retained/ removed and whether new sites can be allocated for employment in the B sector (offices, general industrial, storage and warehousing). Some of the new sites considered were sites assessed through the Land Availability Assessment (LAA) exercise and those which have been the subject of planning approvals. 2.3 Para 22 of the NPPF states that planning policies should avoid the long term protection of sites allocated for employment use where there is no reasonable prospect of a site being used for that purpose. Therefore,