report

meeting Cabinet date 7th. May 2003 agenda item number

REPORT OF THE CHIEF EXECUTIVE AND DIRECTOR OF ENVIRONMENT

Proposed Development of Markham Employment Growth Zone, , .

Purpose of Report

1. To seek approval for the strategic planning and transportation comments set out in this report to be sent to the District of Bolsover (and to be forwarded to Chesterfield Borough Council and North East Derbyshire District Council) in response to their consultation on the above planning application.

Information and Advice

2. A planning application has been submitted to Council, Chesterfield Borough Council and North East Derbyshire District Council for the development of 360 hectares of land at the Markham Employment Growth Zone (MEGZ) by MEGZ Ltd. The proposal is for commercial (not retail), office, industrial, warehouse development, new and altered roads (including a new motorway junction), land reclamation, ground remodelling, drainage, landscaping and reuse of railheads. Bolsover District Council has consulted this Council as an adjoining authority for its strategic planning and transportation comments.

Page 1 of 9 1 3. The proposal covers a broad corridor centred on the new M1 Motorway Junction 29A amounting to some 360 hectares. On the eastern side of the M1 it extends northwards from the edge of Bolsover to include the former Markham Colliery. On the western side of the M1 it includes land in the vicinity of and further north a large parcel of land to the west of Staveley (a map is attached at appendix 1). A considerable amount of this land is brownfield but some greenfield land is also proposed for development in order to ensure the scheme is deliverable in practical terms.

4. The new M1 Motorway Junction 29A arose out of the recommendations of the Coalfield Task Force (CTF) Report along with proposals to improve road links between Mansfield and junction 29 of the M1 Motorway to be achieved by the construction of the bypass and the Bypass extensions and also the accelerated completion of the Mansfield Ashfield Regeneration Route (MARR). The CTF recognised the key importance of transport links in Coalfield areas which suffer from relative isolation through their historic reliance on mineral railways. These road improvements are justified in order to open up sites for development and to improve the accessibility across the North Derbyshire and North Coalfield. The proposal was also supported by the former North Derbyshire and North Nottinghamshire Coalfield Alliance (now the North Derbyshire North Nottinghamshire Sub Regional Strategic Partnership) and is included in the economic development strategy for the area – “Positioned for prosperity”.

5 A key feature of the proposal is a package of measures to upgrade the road network leading to the various sites and serving the wider area. The proposals also seek to utilise existing railhead facilities.

6 A number of development sites are proposed amounting to about 85 hectares with selection taking into account both brownfield sites and those sites already identified as employment land or allocated in local plans. Much of the greenfield sites are located immediately to the west of the M1 and justified by the applicant as being necessary to provide for a range and choice of sites including high quality ones. Large

Page 2 of 9 2 areas of derelict or despoiled land will be reclaimed to provide new areas of woodland, wetland and amenity land.

7 The development will provide for a range of uses generally within land use classes B1 (office, light industrial and research), B2 (general industrial) and B8 (distribution). The sites to the west of the M1 would be developed in such a way as to provide high quality B1 including for high technology firms. The applicant considers that it is not possible to be entirely specific about the exact mix of uses at MEGZ at this stage. The application states categorically that it does not include retail development and this assurance should be welcomed. The B1 element does give rise to some strategic planning concerns which are discussed later in this report (see paragraph 18).

Planning context 8 National planning guidance generally seeks to ensure that there is a wide range and choice of employment sites available for business use.

9 Regional Planning Guidance (RPG) identifies the North Derbyshire North Nottinghamshire Coalfield as a priority for regeneration. RPG requires development plans to follow the sequential approach to site selection. This means a site search sequence beginning with - sites within urban areas - followed by accessible sites on the edge of urban areas - and finally - accessible sites outside of urban areas.

10 In terms of employment land RPG requires a comprehensive assessment of the quantity and quality of the supply to be carried out. Since the publication of RPG the East Regional Assembly (EMRA) and the Development Agency (emda) have published the Quality of Employment Land Study in the East Midlands (QUELS) The QUELS findings are considered further below. RPG advises that development plans should provide for an appropriate range of sites in terms of quality size and location and the supporting text notes that this may mean some existing supply is de-designated.

11 RPG policy is to concentrate new jobs and services in and around the main towns of Mansfield, Chesterfield and Page 3 of 9 3 Worksop and other large settlements including Bolsover that are accessible to a wider area or serve particular needs. RPG places emphasis on reusing brownfield land within the context of the sequential approach. Significantly though RPG notes that in the Northern Coalfield brownfield sites are often in more remote rural locations and therefore it may be more sustainable to develop greenfield sites more closely related to the principal urban areas and larger settlements such as Ollerton, and Bolsover.

12 RPG also advises that the development strategy should be informed by an environmental strategy.

13 The Derbyshire Structure Plan (DSP) seeks to ensure new development will be located within or well related to settlements. The DSP places emphasis on reusing derelict, despoiled or underused land and new development should also be able to make good use of existing or potential public transport infrastructure. Specific guidance is given for major distribution development in that it should be located so as to minimise traffic congestion, have good access to the road and where possible rail network, make full and effective use of derelict or despoiled land and take into account environmental considerations. Proposals should also seek to contribute to the regeneration of the former coal mining areas. Major office development should be provided within the urban areas.

14 The former Markham Colliery site and part of the coal stocking area for Coalite to the east of the M1 are identified as existing employment sites. A substantial amount of new employment land is proposed as part of the MEGZ scheme located largely to the west of the M1 which is not identified as existing employment land or allocated in an adopted Local Plan. Consequently those proposed employment sites and related development not allocated in adopted Local Plans must be viewed as departures from the Development Plan. The relevant Local Plans in the area covered by MEGZ are all under review and being prepared under the provisions of the DSP. The emerging North East Derbyshire Local Plan 1st. Deposit Draft includes part of the proposed employment land east of Duckmanton. The Chesterfield Local Plan review has yet to be placed on deposit as has the Bolsover District Local Plan review. Page 4 of 9 4

Strategic Planning Comments 15 The Markham Colliery site and former coal stock yard to the east of the M1 are already identified as general industrial land. The other remaining employment sites and proposed woodland and amenity areas (the former Markham Colliery north and south tips) on the eastern side of the M1 satisfy both the sequential approach set out in RPG and the locational guidance in the DSP as they are predominantly brownfield and adjoin the large settlement of Bolsover.

16 The sites to the west of the M1 are less sustainable in environmental terms given that they do not physically adjoin any large settlements and thus more likely to generate car borne trips. However, they are well related to nearby large settlements and are capable of being well connected to nearby large settlements and urban areas by public transport (rail and bus). In addition the proposed employment site to the east of Staveley offers significant advantages for major distribution uses in particular as it will have good road and rail access and in any case major distribution is best sited away from urban areas. The development sites to the west of the M1 also include a significant Greenfield allocation which is proposed for predominantly B1 uses (amounting to about 11 hectares) adjoining the village of Duckmanton.

17 The Quality of employment land Study (QUELS) carried out on behalf of the EMRLGA and emda has noted that there is a substantial amount of poor quality employment land for industrial/warehousing in the Northern Coalfields with little relevance to the market. The QUELS study recommends that against this background there is a strong case for enhancing the supply of industrial/warehousing sites by pursuing initiatives such as the MEGZ proposal and also sites along the MARR route. With respect to office development QUELS anticipates only modest demand for office development. In this context the study recommends that further research is merited in order to identify optimum solutions which could include enhancing in town supply and some out of town supply.

18 The type of employment uses allowed within the MEGZ proposal need to be judged against both sustainability criteria Page 5 of 9 5 and also the need to provide a viable development. The B1 element would support high quality manufacturing including high technology and is consistent with the priority objectives of regenerating the local economy which requires diversification into knowledge based and high value industries. It is also consistent with the wider sub regional strategy to support the clustering of high technology firms with both the MEGZ site and sites along the MARR route acting as foci. However, there is a risk that permitting purely office development in this out of town location could result in investment being diverted away from nearby town centres including Mansfield and Worksop in Nottinghamshire. Such an approach would be contrary to national planning advice (PPG 6) which sets out the sequential test governing the location of office development and other central area uses.

19. Consequently it is recommended that planning controls should be exercised over pure office development in so far as it should be subject to the sequential test that gives priority to sites in nearby town centres including those located in Nottinghamshire before out of centre sites are considered. Such controls could be sought by a relevant planning condition or by a planning agreement.

20. Although in general motorway locations are less than ideal from a sustainability point of view the proposal is well related to existing surrounding settlements and capable of being served by public transport. The B1 a (office development) element of the proposal would not be consistent with national and strategic retail policies if it attracts office development that could be located within nearby town centres. The proposal also involves the use of Greenfield land not adjoining a large settlement. Notwithstanding this the MEGZ proposal is an overall package providing both high quality and general employment sites and amenity and woodland areas with a high proportion of land being recycled brownfield sites. It is my view therefore that this proposal is on balance broadly supported by the regional and strategic planning framework for the area.

Highways and transport comments 21. The proposal involves a new motorway junction 29A and a package of measures to upgrade the road network leading to Page 6 of 9 6 the various sites and serving the area surrounding it. The proposal also incorporates the reuse of the rail freight lines thus providing direct rail access for freight and reduced lorry movements.

22 The proposal also refers to the possibility of a station site on the Clowne to Chesterfield rail line being reserved within the MEGZ site in order to provide passenger links into the development as proposed by the M1 Multi Modal Study. This possible station facility along with the reopening of the Clowne Branch would allow for direct services to Mansfield and Chesterfield/. Unfortunately these particular recommendations and many others relating to improvements to the sub-regional rail network have not been supported by the Strategic Rail Authority in their latest Strategic Plan. It is important, however, that land for a station served by the Clowne to Chesterfield line is reserved within the development in order to provide for improved and more sustainable public transport in the longer term and to spread the economic benefits of the proposal to surrounding towns.

23 The supporting information refers to the provision of additional bus services being introduced in cooperation with the local bus operators building on the regular service from Chesterfield to Staveley and Bolsover. This proposal could go further by seeking to contribute to the proposed -- Mansfield-Bolsover-Chesterfield express bus service proposed by the M1 Multi Modal study which would link the MEGZ employment area to aforementioned urban centres.

24 The economic development associated with this proposal will inevitably lead to increased traffic movements that will substantially affect the surrounding strategic road network, including the A617 between Mansfield and the M1 at Junction 29. When the Secretary of State for Transport made his announcement on the M1 Multi Modal Study in December 2002 he encouraged local partners to take forward further development work on proposals for bypasses for Glapwell (Derbyshire) and Pleasley (Nottinghamshire). Nottinghamshire County Council has already commenced preparatory work on the Pleasley Bypass and accords it the highest priority for a new major scheme in the North Nottinghamshire Local Transport Plan. It is anticipated that a Page 7 of 9 7 bid for funding will be made in July 2005. It is strongly supported by Council and Mansfield’s Local Strategic Partnership. The final link to secure completion of the vital connection of Mansfield to the M1 Motorway would be the Glapwell Bypass. Accordingly Derbyshire County Council are urged to commence preparatory work on the scheme so that both schemes can move forward urgently in a coordinated manner.

Conclusions 25 On balance both RPG and the DSP are generally supportive of the MEGZ proposals which will assist in regenerating the area. The QUELS study indicates a need for good quality industrial/warehousing sites. There is also a case for good quality sites to support high technology value added manufacturing. MEGZ is also a high priority of the Sub Regional Strategic partnership and a joint marketing strategy is in place that will promote both the MEGZ and the MARR sites as being complementary to one another. There is therefore a strong case for this Council to support this proposal subject to the following provisos. Firstly, the need to discourage inappropriate office development from locating at MEGZ thus potentially harming nearby town centres to be achieved by the imposition of a planning condition. Secondly, the need to ensure that public transport is effectively provided that can connect people from the wider area including towns such as Mansfield to employment opportunities at the MEGZ.

26 The three Councils concerned should also consider whether the MEGZ proposal is so significant as to be prejudicial to the outcomes of the various local plans being prepared covering the area in which case the proposal should be considered as part of the local plan review process.

Statutory and Policy Implications

27. This report has been compiled after consideration of implications in respect of finance, equal opportunities, personnel, Crime and Disorder and those using the service. Where such implications are material; they have been described in the text of the report

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Recommendations

28 It is recommended that the District of Bolsover be thanked for inviting the strategic planning and transport views of this Council and that Bolsover District Council along with the other two local planning authorities concerned (Chesterfield Borough Council and North East Derbyshire District Council) be informed that this Council supports the MEGZ proposals subject to the concerns and provisos set out in paragraphs 15 to 27 of this report.

County Treasurer's Comments

29. There are no specific financial implications arising from the report.

Head of Legal Services Comments

30 This report has been seen by Legal Services Section, who have no comments on its contents (JA 22.04.03)

Roger Latham Peter Webster Chief Executive Director of Environment

Background Papers Available for Inspection Markham Employment Growth Zone application file. Quality of Employment Land Study, July 2002, EMRA

Electoral Divisions Affected The proposal may have implications for electoral divisions in Mansfield, North and West Ashfield and West Bassetlaw.

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