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1 Report Meeting Cabinet Date 7Th. May 2003 Agenda Item Number 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, Bolsover, Derbyshire. 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 Bolsover District 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 Duckmanton 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 Glapwell bypass and the Pleasley 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 Nottinghamshire 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 Midlands Regional Assembly (EMRA) and the East Midlands 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, Shirebrook 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.
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