ECONOMIC DEVELOPMENT

Introduction

Warrington has a buoyant economy and, since its designation as a new town, has been one of the region’s economic success stories. Changed regional priorities now make the city centres of Liverpool and Manchester the priority focus for investment and economic growth in the north west, followed by key towns in the north west other than Warrington. At the peak of new town growth, employment development in excess of 25ha per annum was regularly being completed, though over recent years an annual average of about 13 ha shows the extent to which the momentum of growth has reduced. Part of the legacy of the new town is the extensive Omega site. Omega has a long-standing planning permission for strategic regional investments, is promoted in the Regional (Economic) Development Strategy and is owned by English Partnerships. There is a need for effective and up-to-date planning policies to guide its physical development whilst respecting current regional spatial priorities.

• to ensure that sufficient and suitable land is readily available to accommodate an appropriate level of employment development to sustain the local economy
• to provide a policy framework to guide the development of the Omega Regional Investment Site

  In making provision for employment development the council has had regard to:

  • National Planning Guidance
  • Regional Spatial Strategy
  • Regional Economic Strategy
  • Recent Take-up rates
  • The need to provide for variety and choice
  • The need to review existing commitments
  • The need to monitor and manage the supply of land
  • Environmental constraints
  • The permanence of the green belt boundaries established in the UDP

National Planning Policy Guidance

PPG4 provides guidance on issues relating to industrial and commercial development and small firms. Encouraging continued economic development in a sustainable manner is one of the Government’s key aims. Development plans should give a degree of certainty to industrial and commercial developers and local communities about the types of development that will or will not be permitted in given locations.

Part 1 UDPs should include policies relating to major industrial, business and other employment generating development. Local planning authorities should aim to ensure that sufficient land is readily available to meet differing needs on a variety of sites. These should be capable of development and well served by infrastructure. A choice of sites will facilitate competition between developers to benefit end users and stimulate activity. Where local planning authorities propose policies to channel particular types of business into particular locations, these should be clearly justified.

Development Plan policies should take account of the locational demands of business and have special regard to the transport and travel implications of development. The special needs of modern distribution and warehousing industries are acknowledged. A positive approach to business development should be adopted by local authorities. Modern business and housing can often successfully co-exist and mixed use rather than separation should be pursued.

Regional Spatial Strategy

A number of RPG (now RSS) Policies are relevant to this chapter of the UDP, notably

DP1 – ‘Economy in the Use of Land and Buildings’ – Under this policy

• New development and investment should be located so as to make the most effective use of land, promote mixes of uses, make efficient use of transport and assist people to meet their needs locally
• Local Authorities should monitor the availability of vacated land and buildings, make plans and take measures to ensure their redevelopment and re-use
• Development plans should adopt a sequential approach to meeting development needs, taking account of the spatial development framework –
• Development plans should adopt a sequential approach to meeting development needs, taking account of the spatial development framework:-

1. the effective use of existing buildings within urban areas, including re-use or conversion – particularly those accessible by public transport, walking or cycling;
2. the use of previously-developed land, particularly if accessible by public transport, walking or cycling; and then
3. the development of previously-undeveloped land, where this avoids important open space, is well-related to houses, jobs and other services and infrastructure and is or can be made accessible by public transport, walking or cycling.

SD1 ‘The North West Metropolitan Area’ – establishes that urban renaissance resources should be focussed on the North West Metropolitan Area, which includes the town of Warrington north of the ship canal, and its urban area to the south. Within the overall NWMA, first priority will be given to development which will enhance the economic strength and overall quality of life in the two ‘regional poles’ (the city centre areas of Liverpool and Manchester/Salford).

It also gives high priority to physical changes, environmental enhancement and social regeneration within the inner city areas contiguous with those two ‘poles’.

Within the rest of the NWMA, priority will be given to developments which will enhance the overall quality of life in the central and inner areas of named ‘metropolitan towns’ (a list which does not include Warrington).

In the NWMA, the emphasis should be on encouraging good quality development which will provide a significant portion of the housing and other development required to cope with anticipated household growth in the region, and that this must be coupled with economic development through urban regeneration.

Development should be accommodated without encroaching on green belt areas, areas of nationally and internationally recognised ecological importance, or other open land that is protected for its agricultural, amenity, recreation or wildlife value.

RPG (now RSS) recognises that the NWDA Regional (Economic) Strategy identifies both Liverpool and East Manchester as Regional Regeneration Challenges within the ‘Mersey Belt’ Regeneration Priority Area.

SD2 ‘Other Settlements within the North West Metropolitan Area’ – Elsewhere within the NWMA, wide-ranging regeneration and environmental enhancement should be secured, especially in the older parts of a number of towns including Warrington.

In Warrington, the focus should be on regeneration and re-structuring of the older areas and preventing further significant outward extension onto open land beyond existing commitments, as at the start of the calendar year 2002. Any further sprawl of the settlement into the countryside should be curtailed, unless fully justified by reference to the new RPG (now RSS), its core development principles and the spatial development framework.

EC1 ‘Strengthening the Regional Economy’ – Development plans, in conjunction with local economic development strategies, should identify a range of suitable sites and premises for employment purposes which:

• complement the priorities identified in the NWDA Regional (Economic) Strategy;
• take account of the needs of local businesses and the needs of older manufacturing industries;
• are based on a review of existing commitments;
• have the potential to promote clustering;
• take account of the ‘sequential approach’ (as set out in policy DP1);
• support the spatial development framework

EC1 is supplemented by a range of policies relating to specific employment sectors which are referred to in detail, as appropriate, in explaining and justifying various UDP part 1 and 2 policies. Those policies are: -

EC2: Manufacturing Industry which calls on plans and strategies to make provision for the needs of both traditional manufacturing industries and new and emerging ones, including expansion and relocation needs. Locations should respect the core development principles and the spatial development framework.

EC3: Knowledge-based Industries which calls on plans and strategies to promote sites with direct access to research establishments, universities, higher education institutes and major hospitals particularly in the main conurbations, centres of research and science parks. Locations should respect the core development principles and the spatial development framework.

EC4: Business Clusters which calls on plans and strategies to promote the clustering of existing and new economic activities

EC5: Regional Investment Sites should be identified in plans and strategies for strategic business investment: high quality, environmentally sensitive, sustainable development well linked with existing urban infrastructure and consistent with the core development principles and spatial development framework. Proposals will need to satisfy a number of criteria. Sites referred to in the Regional (Economic) Development Strategy, including Omega, will still need to be tested through the development plan system.

EC6: The Regeneration Challenge calls on local authorities and other agencies to rectify the imbalance between parts of the region where continued growth may have unfavourable consequences and those where regeneration is needed, in a manner consistent with the core development principles and spatial development framework. In prosperous areas of the north west which have little difficulty in attracting economic growth, any further development planned which goes beyond meeting local needs, will need to be justified in terms of its wider benefits to the region and the scope for managing any adverse environmental impacts.

EC7: Warehousing and Distribution lists criteria for the location of new developments and acknowledges that urban locations are not always appropriate.

EC8: Town Centres - Retail, Leisure and Office Development calls for plans and strategies to underline the prime importance of city and town centres as the focus for retail and leisure developments and to direct office developments that generate large numbers of trips to suitable locations within or adjoining main city and town centres, or district centres, and near to major public transport interchanges within urban areas.

EC9: Tourism and Recreation, EC10: Sport, and RU2: Diversification of the Rural Economy also have some bearing on UDP policies.

Local Strategy/Part 1 UDP Policies

EMP1: Employment Development

In the absence of specific guidance in RPG (now RSS) as to the appropriate level of employment development in Warrington, this will be determined by the Council through the UDP. Prior to the borough obtaining unitary status, the level of employment development was determined by the Cheshire Structure Plan, which essentially based provision on recent activity levels plus an allowance for choice. This approach is commonly adopted by local authorities in the absence of any other accepted methodology.

The presently adopted structure plan set a requirement for Warrington 1986 – 2001 of 325 ha, equivalent to an annual average supply of 21.7 ha per annum. Over this period, completions amounted to a total of 262.37 ha (Source: WBC Employment Land Availability Statement, 1 April 2001). This equates to an annual completion rate of 17.4 ha per annum, or 80% of the policy figure. The unexpended balance of 20% provides a margin for choice, and subject to a review of availability and suitability will carry forward into the UDP as commitments. The strategic development at Omega was identified separately as additional to this local supply.

Activity levels for employment development 1996 – 2003 are considered an appropriate basis for assessing employment development needs for the UDP period 1996 – 2016. Average annual completions over this period amount to 12.78 ha. Rounded to 13 ha, this completion rate suggests a land requirement over the plan period of 260 ha. Allowing a 20% margin for choice generates a land requirement of 312 ha.

This is the basis on which policy EMP1 proposes that the UDP will make provision for up to 310 ha of land for employment development over the period 1996 – 2016.

Against this necessary provision, the Council’s April 2003 assessment of Employment Land Availability reveals the following supply: in making this assessment employment commitments have been reviewed (in a context of the current over-supply of committed housing developments) in accordance with RPG (now RSS) policy UR5.

It is evident therefore that additional employment land supply needs to be identified in order to maintain an appropriate supply of land. This is the basis of specific proposals to allocate additional land for employment development in policy EMP3.

In proposing those allocations the Council has taken account of the core development principles of RPG (now RSS). With regard to the spatial development framework, the Council is mindful of the need to restrain development in Warrington if it becomes evident that completions are proceeding at a rate which exceeds local needs at the expense of the need to focus investment and development in the region’s priority areas, and in particular the inner cores of Liverpool and Manchester.

For that reason, a plan, monitor and manage approach will be applied to the control of employment land development, including the Omega South Regional Investment Site. In managing supply through the grant of further planning permissions the Council will be mindful of the extent to which provision makes allowance for choice, and of the need to ration supply during and beyond the plan period. If the monitoring of completions at both regional and local level gives cause for concern the Council will prepare supplementary planning guidance to introduce appropriate restrictions in Warrington. The monitoring process will draw upon information supplied by the NWDA in respect of regional investment sites, whilst the Council will liaise with other authorities and the NWRA as appropriate with regard to general employment land take-up.

In monitoring local completions account will also be taken of employment development arising from the initiatives being taken in policies EMP8 and EMP9 and completions from these sources will count towards the overall UDP provision of 310 ha.

This approach is adopted in preference to a rigid phasing approach to the release of the additional sites proposed for allocation in policy EMP3. A phasing approach is not considered appropriate for the following reasons:

• all of the sites proposed for allocation are brownfield
• phasing would unduly restrict the variety and choice of sites available
• phasing would not be supportive of the need to enable business clusters, provide jobs close to where people reside, and promote mixed use, nor of the achievement of sustainable public transport improvements and related planning obligations at the Omega Regional Investment Site

EMP2: Omega South Regional Investment Site

The land benefits from planning consent under section 7(1) of the New Towns Act 1981 - effectively an outline planning approval - for development within use classes B1,B2 and B8, as follows:-

• Offices
• Light Industry
• Laboratories, Research and Development
• General Industry
• Warehousing

Under the terms of that consent the employment area was intended to accommodate international firms looking for substantial sites which allowed for immediate investment with capacity for further expansion.

To facilitate this process and ensure the delivery of a high quality sustainable development, in 2002 the Council issued the Omega Context Brief as supplementary planning guidance in support of its draft UDP policies for Omega. The context brief has informed the preparation of a Development Framework and Masterplan by EP’s joint-venture partners, Miller Developments and the Royal Bank of Scotland. Following widespread public consultation, the Council has recently approved the Development Framework and Masterplan as the basis for submission of planning applications on Omega South.

The wording of Policy EMP2 has been subject to a series of changes at various stages of UDP preparation to respond to changes arising from the RPG/RSS process and also in response to objections made. Important policy changes arose after adoption of the Context Brief as SPG, and after the approval by the Council of the Development Framework and Masterplan. Both of these documents need to be revised to reflect the adopted UDP policy framework embracing Policies EMP 1, 2 and 3 and ‘new’ Policy LUT25. In terms of the Context Brief, this will mean that the document will need to be re-produced as Supplementary Planning Document under the provisions of the Planning and Compulsory Purchase Act 2004. The amended UDP wording also includes specific references to the key RSS policies against which the Council will assess detailed development proposals.

The Council will have particular regard to the spatial development framework established in RSS, as well as the detailed criteria for regional investment sites listed in RSS policy EC5, in considering planning applications for development of the regional investment site. Attention will be focused on the need to complement strategic business investment in the ‘regional poles’, and the economic benefits which the Omega South regional investment site will bring to the region as a whole and Warrington’s immediate neighbours in the sub-region.

Preliminary research ¹ commissioned by EP to inform the joint-venture bidding process has considered the potential socio-economic, property and labour market impacts of the Omega development at both regional and sub-regional levels.

With regard to land supply and take-up, this research anticipates that the total Omega development- including the non-strategic elements of Omega North and Omega South - represents only 6% of the identified total employment land supply of the North West for the period up to 2011, or 3% based upon the land expected to be brought forward at Omega over a ten-year period. In terms of jobs, it anticipates that Omega will provide some 24,300 jobs over the next 25 years – equivalent to 1% of the current existing workforce within a travel to work area based on a 30 minute drive-time. This level of job creation is entirely dependent upon the developer’s ability to bring forward adequate transport infrastructure and achieve modal shift to the satisfaction of the Council, having regard to the views of the Highways Agency, without detriment to the safety and efficient operation of the motorway and trunk road network.

Taking these and a range of other factors into account, the study concludes that Omega will not have a significant impact upon the conurbation cores of either Liverpool City Centre or East Manchester, which have been identified by the NWDA as the key regeneration challenges for the region. However, as a result of background traffic growth, the motorway network around Warrington will be running close to its design capacity over much of its length, and design capacity will be exceeded in some locations during weekday peak periods during the Plan period (ending 2016). The motorway network will be subject to further stress as a result of the trips associated with the UDP’s committed and allocated developments (specifically the proposals for the Omega site). As a result of these developments by the end of the Plan period, the motorway network around Warrington will be subject to severe stress. Design capacity would be exceeded over much of the network and there will be sections of the M6, M62 and M56 where demands would exceed the absolute limit for safe and efficient operation.

Notwithstanding the need to ensure conformity with regional investment priorities, the Council shares the view of the NWDA that the Omega South regional investment site will play a critical role in boosting the region’s overall economic competitiveness. It is notably capable of accommodating business clusters within the NWDA’s cluster development programme, which covers the following employment sectors:

• Aerospace
• Automotive
• Aviation
• Chemicals
• Construction
• Creative Industries
• Digital Industries
• Energy
• Environmental Technology
• Financial & Professional Services
• Food & Drink
• Healthcare (including Biotechnology)
• Maritime
• Sport
• Textiles
• Tourism

The scale of Omega South is expected to make it especially attractive to businesses requiring high specification property of a size not available within the conurbation cores, or not available at a cost which enables them to be competitive and sustainable. The campus-style development envisaged in the Masterplan will also enable businesses to expand over a number of years without the need for relocation: such a development format would be less appropriate within the conurbation cores, where it is expected that the focus will be on securing early development gains in higher density formats.

The location of the Omega site in the north west of Warrington’s urban area makes it ideally suited to provide employment and training opportunities which will promote social inclusion in neighbouring priority regeneration areas in Halton, St Helens and Wigan. This role is acknowledged and supported by each of those authorities who are represented on the Omega Partnership Group, which has been established by the Council, NWDA, EP and their joint-venture partners to address the strategic economic, land use and transportation issues presented on Omega South. The emphasis on high quality, sustainable development within regional priority sectors will serve to address known weaknesses in this part of the sub-region, these being:

• Lower business stock growth
• Higher levels of unemployment
• Variable levels of average earnings

as illustrated in the table below :

The Omega Skills Challenge Group was also set up in 2001 to ensure that the opportunities offered by development of Omega South are brought to fruition: this group works with education and training agencies from across the region to identify the skills requirements of businesses within the regional priority sectors, and disseminate this information to influence curricular development. The following organisations are currently represented within the group:-

• Axis
• Business Link Cheshire & Warrington
• Chartered Management Institute
• Cheshire & Warrington Voluntary Sector Learning Forum
• Cheshire County Council
• Cheshire Learning Partnership
• Connexions Cheshire & Warrington
• Consortium of Cheshire Colleges
• Construction Industry Training Board
• EMTA
• Education Business Links
• Engineering Employers Federation
• Impact Research
• Job Centre Plus
• Knowledge North West
• Learning & Skills Council - Cheshire & Warrington
• Learning & Skills Council - Greater Manchester
• Learning & Skills Council - Greater Merseyside
• Learning & Skills Council - Lancashire
• Miller Developments/Royal Bank of Scotland
• North West Chemicals Initiative
• North West Development Agency
• North West Universities Association
• Science Technology and Maths Council
• St Helens Learning Partnership
• TUC Learning Services
• UK Skills
• United Utilities Properties
• University of Liverpool
• University of Salford
• Warrington Association of Secondary School Heads
• Warrington Borough Council
• Warrington Chamber of Commerce
• Warrington Collegiate
• Warrington Disability Info Services
• Warrington Learning Partnership

The Council and the Omega development partners have also visited each of the neighbouring authorities concerned to discuss in detail the economic development, transport, spatial planning and skills development issues to ensure that they are able to influence and benefit from the development. Business support agencies have been closely involved in all of this work to enable regional working on supply chain requirements, workforce development issues and to raise awareness of business opportunities for existing businesses in the region.

In addition to the social inclusion benefits for Warrington and its immediate neighbours, development on Omega South will act as a catalyst in improving sustainable transport linkages to the wider sub-region. In particular it will make a vital contribution to enable early delivery of the proposed new railway station on the adjoining Chapelford Urban Village, thereby providing a direct public transport link to both ‘regional poles’. The Council and the NWDA are also in the process of constituting a strategic transport forum to address the provision of sustainable transport infrastructure from an economic development viewpoint.

EMP3 PROVISION OF LAND FOR EMPLOYMENT DEVELOPMENT

The following sites are allocated for employment development:

Site Area (ha) Primary Uses

• Land at Omega North (Limekiln) 31.39 B8

• Land at Omega South (non strategic) 58.18 B1, B2 59.76 B1, B2

Development proposals at these sites will be assessed against their ability to be accommodated within the existing road network without prejudicing its absolute limit of efficient operation and against Policy LUT25.

Policy Derivation:

PPG4, PPG12, PPG13

Reason and Explanation:

Policy EMP1 sets the basis for the supply of land for employment development over the plan period in order to sustain the local economy. The associated explanatory text records that the current supply is some 212 ha against an assessed requirement of up to 310 ha. Accordingly it is necessary to identify additional land for employment development through allocations in the UDP.

The necessary proposed allocations are made in this policy and comprise two sites in total, as follows.

1. Omega North (formerly referred to as Limekiln)

The Omega North (Limekiln) site was a proposed Employment Development Opportunity Area in the Warrington Borough Draft Local Plan and was endorsed as such by the Inspector. The draft local plan acknowledged that its development was dependent upon completion of the proposed M62 Junction 8, which was opened in December 2002. It comprises part of the former Burtonwood Air base and is now being marketed by English Partnerships as ‘Omega North’ in association with the ‘Omega South’ Regional Investment Site. Proposals for its redevelopment will be brought forward as part of the wider masterplan for the Omega South site (policy EMP2). However, the land at Omega North (Limekiln) is not part of the Omega South Regional Investment Site, and is formally allocated for employment development which will count towards the borough’s employment land requirement as set out in policy EMP1. Its location makes it particularly well-suited for B8 uses.

The traffic impacts on Burtonwood village arising from Junction 8 and the employment development of these sites will be addressed in the context of the approved Development Framework and Masterplan and policy LUT19 and LUT25 and their explanatory texts.

The heritage value of the site lies in its historical significance as an American military base rather than the architectural value of the existing hangars, which are not listed buildings. Recognition of its heritage value may be achieved by the erection of a commemorative piece of public art and/or a financial contribution towards the provision of the Heritage Centre at the Chapelford Urban Village.

2. Omega South : Non-strategic element

The non-strategic element of Omega South also counts towards the borough’s employment land requirement as set out in policy EMP1. The major part of this land, in the north east corner of Omega South, is also owned by EP and being marketed in association with the Regional Investment Site. It forms an important gateway to the Regional Investment Site from the new M62 Junction 8, and is included in the area covered by the approved Development Framework and Masterplan, thereby ensuring a comprehensive approach to the planned redevelopment of the whole of EP’s landholding.

The allocation referred to in Policy EMP3 also includes the undeveloped portion of land presently in the ownership of United Utilities in the south west corner of the Omega South site, which is being brought forward and marketed by United Utilities as part of its Lingley Mere Business Park.

As well as catering for local employment needs, ongoing development of the non-strategic portion of Omega South will underpin the role of Regional Investment Site in creating employment opportunities for residents of Halton, St.Helens and Wigan.

Taken together, the Regional Investment Site and the non-strategic employment allocation on Omega South provide a balancing package of employment uses in this part of Warrington in relation to the on-going major housing developments in the Whittle Hall area and especially at the adjoining Chapelford Urban Village, which is expected to deliver about 2000 new homes in the next 10-15 years, in addition to providing a new primary school and healthcare facilities. The close proximity of the Omega South site to Chapelford was a key factor which influenced the decision not to include a signficant element of employment uses within the Urban Village itself, since the two projects would effectively deliver well integrated mixed-use development at the wider neighbourhood level.

Area of Coverage:

As identified on the Proposals Map.

Other Related Policies:

EMP1, DCS2, DCS4, DCS7, LUT1, LUT10, LUT12, LUT14, LUT21, LUT25, GRN24

EMP4 DEVELOPMENT IN EXISTING EMPLOYMENT AREAS

The Council will approve planning applications for development, redevelopment and changes of use within existing employment areas as shown on the Proposals Map, provided that the use falls within Use Classes B1, B2, or B8, or is a sui-generis employment use, or other appropriate use that will contribute to the local economy, and provided that: -

1. the development provides for access in accordance with the transport priorities set out in policies LUT1 and LUT2 to prioritise walking, public transport and cycling and minimise new trips by car, and will not materially worsen traffic conditions or adversely affect road safety;

2. there is no detriment to the amenity of people living or working nearby, or to the effective use of other nearby land; and

3. in cases of new development or redevelopment, the design and appearance of the development relates well to its setting and the character and quality of the local environment in terms of its scale and density, its height and massing, its landscape and layout, and its use of materials.

Policy Derivation:

PPG1, PPG4, PPG12, PPG13

Reason and Explanation:

1. There are a number of dedicated employment areas and industrial estates throughout Warrington, which are an established feature of the borough’s land use pattern, with established transport links to local communities. In overall terms these areas are not suited to the introduction of other uses, or their introduction would not be consistent with other UDP policies. The employment they provide form the backbone of the local economy. The majority were established in the context of the Warrington New Town Outline Plan.

2. This policy is aimed at ensuring that they remain a focus of employment in the borough, principally for B1, B2 and B8 uses, but not to the exclusion of other and supporting purposes which contribute to the local economy. The policy also provides for the enhancement of sustainable transport measures as part of further development in these areas.

3. In relation to one of the key sites, where substantial development had taken place prior to the establishment of the new town (the Birchwood Park area), the Council is already working in partnership with the landowners to agree a long-term vision and structure for the comprehensive regeneration of the site, to enable it to play an enhanced role in attracting high quality economic development to the borough. It is intended that this will lead to the publication of a jointly agreed masterplan to guide the future development of this site.

Area of Coverage:

Existing major employment areas are shown on the Proposals Map.

Other Related Policies:

DCS1, DCS2, EMP1, GRN2, LUT1, LUT2

EMP5 EXISTING EMPLOYMENT SITES IN INNER WARRINGTON

Except within identified Potential Urban Regeneration Areas where the provisions of policy EMP8 apply, the Council will safeguard existing unallocated employment sites in inner Warrington and will not approve redevelopment proposals for non-employment uses unless: -

1. an employment use cannot be maintained economically without detriment to the amenity and safety of adjoining residential, business or commercial areas. If the site is particularly well placed in relation to walking access to local services and facilities and in particular a local or neighbourhood centre and a primary school, the site may be used for housing, if such development would not unduly inhibit the existing or future business activity in the area and a satisfactory living environment can be created; or

2. the site is on the edge of Warrington town centre and is demonstrably required to meet a need for retail, entertainment or leisure development which cannot be accommodated within the town centre itself; or

3. the proposal is for a mixed use development including a significant element of business and commercial activity; or

4. the proposal is for, or includes, a use that will contribute to regeneration through the development of sustainable mixed-use communities by improving the level of local services, facilities or amenities in the area.

Policy Derivation:

PPG4, PPG12, PPG13

Reason and Explanation:

1. This policy relates to inner Warrington, the older core areas of Warrington town which are characterised by extensive mixed use areas which have developed over time. Over the past 20 years or so, the traditional land use pattern has altered significantly with the decline of many of the town’s traditional industries including tanning, wire working, and other manufacturing industries. Many sites which previously provided employment in these central locations have been redeveloped for other uses including housing and out-of-centre retail parks. At the same time extensive new employment areas have been developed in more peripheral locations. This dispersal of uses has had significant transport implications in promoting car dependency, particularly for travel to work.

2. The purpose of the policy is to bring more stability to the overall employment land use balance and distribution in the town and reduce the loss of central employment which is more easily served by public transport and generally within relatively easy walking and cycling distance from residential areas.

3. The policy sets out criteria for a judgement to be made based on the circumstances of particular sites that may become available for re-use over the plan period, and acknowledges that there may be good reason to introduce land use change. The policy also encourages mixed use developments which can also contribute to regeneration through the development of sustainable communities. Proposals which include an element of housing development will need to address the requirements of policy HOU2A and 2B.

4. The reallocation of sites from employment to housing is not currently necessary during the plan period, in order to meet housing requirements and to prevent the loss of greenfield land in the borough. The policy will be reviewed as part of the 'Plan, Monitor and Manage' approach to housing land supply.

Area of Coverage:

The boundary of Inner Warrington is shown on the Proposals Map. This policy does not apply to the identified Potential Urban Regeneration Areas within this area, which are subject to policy EMP8.

Other Related Policies:

HOU1, HOU2, HOU3, LUT1, GRN2, TCD4, TCD6, EMP8, SOC1, REP1

EMP6 EMPLOYMENT DEVELOPMENT IN OTHER AREAS OF THE BOROUGH

Employment development of an appropriate scale and character will be permitted within residential areas and villages provided that:

• no detriment to residential amenity or the character of the area arises;

• the development would not attract inappropriate numbers or types of vehicles to the site;

• the site is accessible by public transport; and

• provision is made to encourage walking and cycling.

Changes of use or redevelopment of existing employment sites to non-employment uses in these locations will not be allowed unless:

• continued employment use is demonstrably unviable; or

• continued use would not fulfil the above criteria; and

• the loss of employment use causes no harm to the local economy or sustainability by adversely affecting the mix of uses in the locality.

In areas where there is a deficiency in open space, sport or recreational facilities, new development will be required to contribute to new or enhanced provision.

Policy Derivation:

PPS1, PPG4, PPG13, PPG17

Reason and Explanation:

1. This policy is necessary to provide a basis for the control, where necessary, of established industrial uses in or near residential or mixed use areas where there exists, or is potential for, conflicts of interest between groups in the community as regards amenity, environmental and traffic issues. Investment in such established uses is to be welcomed and can often be the means of achieving amenity improvements to bring benefits to the local economy and the environment.

2. Many employment uses can operate without detriment to residential amenity or the character of residential areas, and can contribute to the development of sustainable mixed use communities. The policy also facilitates home working. It is also important that local employment continues to be available in village communities in the borough to provide local job opportunities and the policy provides for the retention of employment uses where appropriate. This can have social, economic and environmental benefits.

Area of Coverage:

The built areas of the borough.

Other Related Policies:

HOU4, HOU7, LUT2, LUT12, GRN4, GRN5

EMP7 TOURIST / VISITOR ACCOMMODATION

The Council will approve proposals to provide, expand, or improve the range of visitor accommodation in the borough, provided that they are located within existing built areas, or involve the acceptable conversion or change of use of a building(s) within the green belt (policy GRN6).

Policy Derivation:

PPG2, PPS7, PPG21

Reason and Explanation:

1. In association with Cheshire County Council and the North West Tourist Board, the Borough Council has prepared a Tourism Action Programme to promote the economic performance of the industry in the borough. The policy sets this in the context of the safeguards needed to protect the environment. First and foremost are the special restrictions on development in the green belt which apply to tourism as much as to other forms of activity (policy GRN1).

2. The purpose of this policy is to contain proposals for visitor accommodation within the existing built areas of the borough, or, exceptionally, to the re-use of suitable redundant buildings in the green belt which meet the criteria laid down in policies GRN3 and GRN6, and other relevant planning policies.

Area of Coverage:

Borough-wide

Other Related Policies:

GRN1, GRN3, GRN6

EMP8 POTENTIAL URBAN REGENERATION AREAS: INNER WARRINGTON

The following areas of Inner Warrington are currently inefficiently used or under-used and are identified as having potential to be brought into use in ways which can contribute positively to the regeneration of the borough in economic, environmental and social terms.

1. Arpley Meadows

2. Monks Hall site

3. Winwick Street / Winwick Road (west) area

4. Winwick Road / Hawleys Lane area

5. Dalton Bank site

6. Winwick Street (east) / Cheshire Lines Building area

7. Farrell Street (south) area

8. Wilderspool / Bridgefoot / Wilson Patten Street (south) area

9. Britannia Works site, Bewsey Road

The development of these sites should be facilitated by and controlled within the framework of a comprehensive redevelopment and improvement scheme to be led, where appropriate, by a planning and design brief drawn up in partnership between the Council, the land-owners and other stakeholders having an interest in the area.

Development may consist of either a mix of uses including employment, housing, open space and service provision of a scale and type appropriate to the site and to its location within its particular community area, or for a single use, where this would complement the mix of uses in the surrounding area.

Whilst the contrasting characteristics of the areas and the variety of opportunities that they offer in terms of contributing to the Council’s overall promotion of urban regeneration make it inappropriate to propose a common set of specific land-uses applicable to all areas, the following general priorities will be taken into account in the production of planning and design briefs and in guiding their development:

• Provision of a range of residential accommodation targeted at meeting identified needs creating mixed communities.

• Maintaining and, if possible, widening of the range of local employment opportunities, including wherever possible, the retention of existing active uses within the area, accommodated within a more efficient overall development pattern and an improved physical environment.

• Provision of services and facilities which contribute to the availability of community facilities, leisure and recreation in the local area.

• Provision and maintenance of amenity open space, wherever possible, incorporating measures which contribute to the implementation of the greenway network and to the realisation of the Mersey Forest strategy.

Development should be of a quality which, wherever possible, can contribute to and act as a stimulus for regeneration of a wider area beyond the boundaries of the Development Opportunity Area.

Planning permission for development which would be likely to demonstrably harm the contribution that a development scheme as a whole could make to regeneration of the town may be refused for that reason.

Policy Derivation:

PPS1, PPG3, PPG4, PPS6, PPG12, PPG13, PPG17

Reason and Explanation:

1. All of the areas and sites covered by this policy lie within the area which can be generally referred to as ‘Inner Warrington’, i.e. the part of the town which accommodates what is still, to some extent, the environmentally-unsatisfactory legacy of the industrial revolution. Parts are still characterised by poor quality of development and surrounding environment, for which there may not have been the necessary incentive for comprehensive development and improvement in earlier years.

2. With renewed determination and optimism at national, regional and local levels, to achieve sustainable regeneration with its focus on previously-developed (brownfield) sites, coupled with protection and enhancement of the countryside and urban open space, it is imperative that every effort be made to bring Warrington’s substantial areas of inefficiently-used urban land into beneficial use in a modern context.

3. Nine areas, with particularly severe problems, but with opportunities to contribute positively to regeneration, are covered by this policy. The problems and opportunities that they possess vary markedly. There is, however, a range of general principles that can be adopted in ensuring that they play a full part in the economic, social and environmental well-being of Warrington in the future. In this regard, the Council is especially concerned to seize opportunities to help sustain the communities of Inner Warrington through provision of affordable homes suited to the requirements of local people; to ensure that a wide range of job opportunities is available to them; to maintain and improve the availability of local facilities; and to enhance the local environment as part of the overall regeneration process. Positive action to those ends can and should be taken within the life-time of the UDP. Proposals which include an element of housing development will need to address the requirements of policies HOU2 and HOU3.

4. The Council is currently tackling regeneration issues in a concerted way through a Regeneration Strategy, and specific proposals will be developed for the areas referred to. In some cases, action and initiatives are under way, and this is recognised within the brief characterisation of each of the sites, as set out below.

5. In all cases, the regeneration of the areas, or significant parts of them, will need to be facilitated by formal agreement between the Council and relevant stakeholders as to a strategy within which detailed development proposals should be shaped. In the case of most - if not all - of the sites, development should be led by planning briefs prepared in partnership.

6. The characteristics of the individual areas are:

1. Arpley Meadows

A more extensive area than that now defined was proposed in the Warrington Borough Draft Local Plan as a Development Opportunity Area. The area as a whole continues to be beset by infrastructure constraints. The reduced area now identified may be capable of being developed and adding to the range of sites upon which regeneration objectives can be met, without the major infrastructure investment that would have been required for the larger area. Preparation of an Area Action Plan under the new planning system commenced in January 2006.

2. Monks Hall site

This was included within the Arpley Meadows Development Opportunity Area in the Warrington Borough Draft Local Plan. Its potential for regeneration has, however, been realised independently of the remaining parts of that area. The site has benefited from extensive works to address its potential contamination and drainage issues to a standard considered suitable for residential development and a scheme is under construction at January 2006 (Saxon Park).

3. Winwick Street / Winwick Road (west) area

This area contains distinct sectors.

The area as a whole abuts the Town Centre to the south, with a history of planning permissions for Retail and Commercial leisure facilities which are within walking distance of the Town Centre’s retail core. Detached from that area, and to the north, is the site of the former Carlsberg Tetley Brewery. The Council supported proposals for the development of a new Stadium to accommodate Warrington Rugby League Football Club and to accommodate a variety of community uses, facilitated by adjacent development of a food/non-food superstore. This development was approved by the Secretary of State after a ‘call-in’ inquiry and development has now been completed.

4. Winwick Road / Hawleys Lane area

A less extensive area than that now defined was identified as a Development Opportunity Area in the Warrington Borough Draft Local Plan. Development is now progressing, but the issue remains as to the opportunities for further development - and shaping of access to and circulation within the area - that might be brought about should the withdrawal of safeguarding of the Northern East-West Route be confirmed.

5. Dalton Bank site

This was proposed as a Development Opportunity Area in the Warrington Borough Draft Local Plan. Its proposed allocation was for a mixed-use development, comprising some or all of the following elements: housing; employment (B1, B2); pub/restaurant (A3); car showroom (not general A1 retail development), and open space. Development proposals were, if possible, to incorporate the refurbishment and re-use of the former grammar school building which is of local historical importance. The greater part of the site comprised the Dalton Bank wireworks and the redevelopment of this area for housing is well advanced in January 2006. The former grammar school has however been demolished and the site is being marketed for an appropriate commercial use.

6. Winwick Street (east) / Cheshire Lines Building area

This area shares, with the Winwick Street/Winwick Road (west) area, the characteristic of being physically close to the town centre with access, for the most part, to the potential high frequency public transport corridor centred on Winwick Street/Winwick Road. Whilst it contains some recent retail warehouse and other buildings, much of its southern and eastern parts and its Winwick Street frontage, could benefit from improvement. The Cheshire Lines (Warehouse) Building has been recognised as having significant potential for refurbishment of what is a prominent and distinctive single building. Approximately a quarter of the area is within a conservation area, which would benefit from upgrading of its overall setting within the area.

7. Farrell Street (south) area

The potential of this relatively under-used area could be released following the discontinuance of safeguarding of the route of the northerly extension of the Latchford Relief Road. Whilst its potential for development for B1 and B2 employment uses might be greatest, it has an extensive river frontage to the south, so an element of appropriate housing could not be discounted. Development of the site could afford the opportunity to bridge a gap in the greenway network between the Twiggeries (north of Farrell Street) and the riverside. Adequacy of access to businesses with frontages onto Farrell Street could be an issue, whilst temporary uses currently operating in the area would need to be considered within any development strategy. The area is relatively remote from any existing community or community facilities.

8. Wilderspool / Bridgefoot / Wilson Patten Street (south) area

This draws together two areas, astride the River Mersey, both in close proximity to the town centre. The characteristic which indicates the potential for an integrated resolution of the issues facing the two areas is that they share a river frontage which was included in the area of a recent ‘Regenesis’ submission. In the case of Wilderspool, the significant issue to be addressed is the possible redevelopment of the present rugby stadium, if the club is successful in achieving its desired move to a new stadium. The Arpley site is adjacent to the town centre. It is not, however, well connected to the town centre functionally, but opportunities for more closely linking its northern part to the town centre may increase markedly, if the Bridgefoot By-Pass scheme is implemented and removes through-traffic from Wilson Patten Street. This area is also included in the Area Action Plan under the new planning system referred to above on which work commenced in January 2006.

9. Britannia Works site, Bewsey Road

This is a former manufacturing works, located between 500 metres and 1,000 metres north-west of the town centre. It is set within a largely employment area, but is adjacent to a primary school. Whilst a mixed-use solution was not ruled out, in 2006 the site is being developed for residential use, which is a potentially-sustainable solution, given its close proximity to a range of employment opportunities and local facilities. It is close to fairly frequent bus services on Lovely Lane.

The extent of potential that these areas possess, individually and collectively, is indicated by the following table, showing total area and area of vacant land and associated buildings (in hectares) in each case (at 2004).

Area of Coverage:

The areas concerned are shown on the Proposals Map

Other Related Policies:

DCS1, DCS2, GRN2, REP1, LUT1, TCD1, TCD2, TCD3, TCD4, TCD5, TCD6, SOC1

EMP9 EMPLOYMENT DEVELOPMENT OPPORTUNITY AREA: FIDDLERS FERRY POWER STATION

At Fiddlers Ferry Power Station, within the area defined as a development opportunity area on the Proposals Map, the Council will support proposals for employment development including the following :

1. Development which promotes or brings about traffic and environmental benefits through a transfer of material from road to rail or waterway.

2. Development which supports and enhances the operational efficiency of the site.

3. Development which contributes to sustainability through the use of renewable natural resources or the recycling of secondary or man-made resources.

4. Development which helps to secure the long-term nature conservation value of the Mersey Valley or enhances its recreational value.

5. Development which uses the unique advantages of the site to enable clustering of businesses and industries to increase economic activity in the area.

Development proposals should be framed within a comprehensive masterplan for the site as a whole.

Policy Derivation:

PPG4

Reason and Explanation:

Fiddlers Ferry Power Station uniquely enjoys a combination of good access to power, water, rail and road and is a major brownfield site situated on the edge of the borough adjoining Halton Borough. The Power Station is a key component of the National Grid serving the greater Merseyside area. Coal is imported through Liverpool Docks and delivered to the site by rail, and this is now the main source of fuel stocks for power generation.

The site is now owned and operated by AEP and recent investment of £300 million has created a long-term business which delivers high levels of reliability. A sustained investment programme has removed doubts about the operational future of the station and the company is seeking to promote additional business ventures which can be attracted by and benefit from the resources, skills, and services it has at its disposal, to the benefit of the local economy. The company can supply electricity, rail access, surplus energy in the form of heat, and is a major source of secondary aggregate for projects utilising PFA (Pulverised Fuel Ash), a product of coal combustion.

In addition, the company’s own investment plans are likely to bring forward further operational development which, with encouragement through this policy, can be used to provide spin-off benefits for other uses to mutual advantage. This may in due course include additional rail sidings and facilities.

The settlement lagoons which form part of the station’s operational area, but which are included within the proposed green belt in the UDP, are of major importance for nature conservation. All operational activities are carried out in the context of an annual management plan prepared by the Mersey Valley Partnership to ensure no net loss of the ecological resource while enabling the company to operate efficiently. Over the longer term, the site operator is obliged to remove the lagoons when they no longer fulfil any operational purpose and it may be necessary to engage in further discussions to ensure an enabling mechanism that will secure and sustain the nature conservation resource.

Area of Coverage:

The extent of the opportunity area is shown on the Proposals Map

Other Related Policies:

LUT1, LUT14, LUT18, EMP1, REP1, REP16, REP17, REP18

EMP10 DIVERSIFICATION OF THE RURAL ECONOMY

Proposals for the diversification of farm enterprises such as farm shops and tourism will be permitted provided that they:

1. Help to secure the long-term viability of the agricultural holding;

2. Do not result in the severance or fragmentation of the farm holding;

3. Do not result in the loss of the best and most versatile agricultural land;

4. Do not conflict with policies for green belt or adversely affect the character of the surrounding countryside;

5. Do not have a detrimental impact by virtue of increased traffic flows on local roads;

6. Do not adversely affect the amenity of nearby residents or other sensitive land uses within the locality; and

7. Utilise existing buildings wherever possible. Where this is not feasible and new buildings are proposed, these will be subject to policies for the green belt. The scale, layout and design of any new buildings should not have a detrimental impact on the character or amenity of the surrounding area or the openness of the green belt.

Policy Derivation:

PPG2

PPG7

Reason and Explanation:

PPG7 emphasises the government’s commitment to promote the well-being of rural areas by encouraging the diversification of the rural economy. This has been further underlined by advice published by the Countryside Agency.

The green belt designation (policy GRN1) of all parts of the borough outside of existing built-up areas carries with it a presumption against inappropriate development, which includes new buildings for purposes other than agriculture or forestry.

This policy seeks to promote rural diversification in so far as this is consistent with policies for the green belt, with an emphasis on the re-use of existing buildings or uses which are appropriate and do not compromise the openness of the green belt or the character of the countryside.

Area of Coverage:

All areas outside the built area of the borough.

Other Related Policies:

GRN1, GRN3, GRN4, GRN5, GRN5, GRN6, GRN9, GRN15, GRN16, GRN17, GRN18, GRN19, GRN21, GRN22, GRN24, GRN25

PERFORMANCE INDICATORS

1. Take-up of employment land in relation to overall policy figure.

2. Number, variety and range of sizes of sites available for a range of business needs.

3. Progress on development of areas for which planning briefs are being prepared in partnership with stakeholders (Omega and Birchwood Park)

4. Progress on development within potential urban regeneration sites, indicating, in particular, the amount of land brought back into beneficial use, categorised by land-use.

¹ English Partnerships - OMEGA - Economic Impact Assessment (Draft), 18 April 2002, Amion Consulting.

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