10.0 INTRODUCTION

10.1 A key objective of Denbighshire County Council is to '...strive to create a balanced and diverse economy'. This will involve promoting the development and the diversification of the local economy to enhance job opportunities and therefore the prosperity of local people. In working towards this aim, the UDP contains a planning policy framework which is separate from, but within which the co-ordinated strategies and programmes of the Council, other agencies, and the private sector may operate. Any development should be sustainable, taking into account the need to protect and enhance resources and the natural environment. Economic development must therefore be carried out sensitively in ways which respect the local environment and amenity.

10.2 Employment development is often used as a generic term embracing a wide range of employment creating land uses, activities and developments. This chapter concentrates on industrial, storage and distribution, agricultural, office and other business development. Other important sources of employment such as retail, tourism and minerals will be considered in other chapters.

10.3 ROLE OF PLANNING

10.4 Local planning authorities should ensure that

• Sufficient land suitable for development for enterprise and employment uses and well served by infrastructure is designated for employment so as to meet both identified and as yet unidentified needs; and that

• New development for enterprise and employment uses is located and implemented in accordance with sustainability principles.

10.5 The UDP acts in two main ways to assist the retention, expansion and creation of employment development. Firstly, it makes employment land allocations to enable positive provision for a range of type, size and location of employment sites. Secondly, it contains policies which on the one hand provide flexibility yet on the other hand provide controls on the negative aspects of employment development.

10.6 Diversification and regeneration of both the coastal tourism economy and the rural economy is a particular issue addressed within the UDP. Denbighshire has been awarded Objective 1 status as part of the West Wales and Valleys Initiative, reflecting its weak economic performance.

10.7 ECONOMIC DEVELOPMENT STRATEGY

10.8 The Council's Economic Development Strategy for 2001/2002 sets out the Council's approach towards economic development.

10.9 The main elements of the strategy are:

• promoting inward investment

• enabling indigenous company expansion

• facilitating training and skills development

• steering the regeneration of town centres

• developing and diversifying coastal tourism

• rural development initiative

• forging partnerships

10.10 The broad thrust of land use and development planning policies is contained in Part 1 of the UDP which sets out strategic planning policy for Denbighshire. In respect of employment, the strategic objectives of the UDP are:

i) Maintain and improve the viability, vitality and diversity of the local economy by providing improved employment opportunities.

ii) Ensure that sufficient land and buildings in terms of location, size and type is available for employment development and investment.

iii) Safeguard and provide for the needs and aspirations of existing businesses, particularly their development and expansion.

10.11 The Strategic Part 1 employment policy STRAT 8 provides the basis for the detailed policies and proposals in this Chapter. Furthermore, employment development must be considered against other strategic aims and policies, particularly in respect of highways and transportation. Employment development is a major generator of journeys and the Plan will seek to ensure it incorporates measures to achieve more sustainable patterns of travel.

10.12 ENVIRONMENTAL APPRAISAL

10.13 Generally employment development will have negative environmental effects in terms of travel, resources and local environmental quality. However, detailed criteria, backed up by policies elsewhere in the Plan will seek to reduce or nullify negative environmental effects.

10.14 The Plan directs most new employment development to existing Main Employment Areas which are generally close to centres of population thereby resulting in decreased car usage and the opportunity for alternative modes of travel. In the absence of public transport, St Asaph Business Park will continue to perform poorly in this respect . The encouragement of the expansion of existing industry on site will generally involve less environmental effects than relocation. Working from home and appropriate small-scale rural employment development can help in working towards sustainability.

10.15 POLICIES & PROPOSALS

Policy EMP 1 - Amount & Distribution of Employment Land

The Plan makes a total provision of 164ha (405 acres) of employment land comprising new allocations of 84ha (208 acres) and existing employment land amounting to 80 ha (198 acres).

Employment Land Strategy and Provision

The Council has undertaken an Employment Land Strategy study to ascertain the likely location, type and amount of employment land to be provided for. The Council has also prepared Topic Paper 7- "Employment Land" which sets out the basis for the demand for and supply of employment land in the UDP. Both of these are available separately and explains the scale, location and type of employment land provision.

Policy EMP 2 - Main Employment Areas

Main Employment Areas define where most employment development will take place over the Plan period and enable the expansion and/or intensification of existing companies. They are identified on the proposal's maps and comprise :-

i) existing employment ventures;

ii) land with employment related planning permission (commitments);

iii) undeveloped employment allocations.

This policy is intended to retain main employment areas for mainly industrial uses and not retail / commercial (A1, A2, A3) uses. Most forms of employment related development will be acceptable within Main Employment Areas including business uses (Class B1) general industry (Class B2), warehousing and distribution (Class B8) including merchants, hire depots and other outlets which serve the trade. General retail outlets (Class A1) serving the public will not be acceptable unless it is ancillary to the main use of the premises for manufacturing or assembly purposes. This policy does not apply to the St Asaph Business Park which is safeguarded as a high quality business park.

The policy is applicable to new build, conversion and change of use, redevelopment and expansion. All development proposals will be expected to fit in well with their surroundings, in terms of siting, layout, form, design, materials and landscaping. Particular attention will be paid to the impact of industrial or other processes, and outside storage on the amenity of nearby residents or adjoining users.

Land to the east of Pilkington's included within the St Asaph's Business Park Main Employment Area is for expansion purposes only. Land to the west of Kinmel Camp Industrial Estate is included within development boundaries to enable the possibility of employment development should any of the MOD land become available.

The Main Employment Areas are as follows:

Policy EMP 3 - St Asaph Business Park

The St Asaph Business Park was granted outline planning permission as a high quality, low density business park to accommodate prestige B1 business uses. The Park has now been partly developed. Located between St Asaph and Bodelwyddan, the Park is set within an attractive rural parkland setting. Accordingly, it is necessary to ensure that developments are designed and laid out so as to respect the high quality landscape setting. A site planning / design guide is available setting out guidance for the development of the Park.

Policy EMP 4 - Employment Development Within Development Boundaries

Although most employment development takes place within Main Employment Areas, proposals for employment development will arise elsewhere in towns and villages. Where no employment land allocations are made in a rural village or town, it is important that the needs of new small businesses are met if jobs are to be provided.

The re-use or recycling of land and buildings for employment uses will relieve pressure on the need for greenfield sites and may remove untidy sites and dilapidated buildings. The encouragement of mixed use areas will help reinforce communities and reduce the need for private car journeys. However, the policy recognises the importance of safeguarding the amenity of residential areas, and other sensitive land uses. Similarly, the impact on the local environment and local highway network will be important considerations. This policy is intended to provide mainly B1 employment which can usually be satisfactorily located within either mixed residential / commercial areas or primary residential areas. What is acceptable will depend on the size/type of development and the character of the surroundings.

In some cases it will be necessary to have regard to, provide for and control the subsequent expansion and intensification of use, thereby preventing subsequent harm. This will be achieved by the imposition of planning conditions or agreements relating to matters such as hours of operation, noise, types of machinery, storage, emissions and pollution etc.

Policy EMP 5 - Small-Scale Employment Development Outside Development Boundaries

Diversification of the rural economy is an important objective of the Plan. There are many agricultural and other buildings in the countryside which have outlived their original purpose and in many cases these can be adapted to accommodate new small-scale employment uses. This will work towards achieving a viable and balanced rural economy and community whilst the re-use of buildings will prevent dereliction and ensure an important part of the rural built heritage is preserved. Conversion of rural buildings to employment uses will be preferable to residential uses.

Open countryside locations outside development boundaries, means that such development must be controlled to ensure that it complements and does not detract from the high quality countryside and landscape quality of the County. Buildings should be structurally sound and suitable for the intended use, retaining and incorporating any features of merit. Where the structural condition is unclear, an independent structural survey and report will be required. In some cases, the building may require adaptation, modification and minor extension in order to accommodate the intended use.

Considerable attention will be paid to the scale and operational nature of the proposal in terms of access, parking and turning facilities, impact on amenity and the character of the surrounding area. The proposal should neither result in over development of the building or site, nor result in an intrusive feature in the landscape. The policy requires that consideration is given to the scope for subsequent expansion and intensification of the business without unacceptably affecting the amenity, landscape, environment and highway network of the locality. In situations where a business needs to expand beyond its present curtilage, policy guidance is set out in policy EMP 11.

Under normal circumstances, proposals for new buildings in the countryside are not acceptable. However, in many rural villages there will not be any opportunities for employment development, whether new build or conversion, within development boundaries. Accordingly, an exceptions type policy has been devised which allows for genuine non-speculative and small-scale employment developments outside but adjoining development boundaries. Any built development will need to physically relate well to the existing built up area so as to not result in a poor or harmful pattern of development. Proposals will be carefully assessed as to their scale and nature of operations in terms of impact on the local surroundings by virtue of amenity, landscape, environment and traffic. Subsequent applications for the conversion of buildings permitted under this policy to residential use will not be allowed.

Policy EMP 6 - Office Development

Many office developments fall within Class B1 (Business Use). These are not intended to provide services principally for visiting members of the public, as opposed to financial and professional services offices, which fall within use Class A2 and are usually found in town centres. Class B1 offices tend to be footloose and can operate in a variety of locations. Within town centres, B1 offices will not be allowed on ground floors within principal shopping streets which are intended for A1 retail purposes only, or for A2 (financial and professional services) or A3 (food and drink) which provide services to the general public elsewhere within town centres. Where existing buildings are converted to B1 office use, whether in general countryside or residential areas, the impact on the character of the surroundings will be carefully assessed.

Policy EMP 7 - Potentially Polluting Employment Development

Following amendments to the Town and Country Planning (Use Classes) Order 1987 in March 1995, the former Special Industrial Use Classes (B4-B7) have been incorporated into the General Industrial Use Class (B2). There is therefore no separate special industry use class. However, there is still a need to provide policy guidance on the location of potentially polluting developments which, by their very nature, have industrial processes which have the greatest potential to harm the environment, local amenity and health and safety.

Although a principal objective of the Plan is job creation, this is not at the expense of the environment. In view of the rural nature of Denbighshire, potentially polluting industry will only be acceptable following the most rigorous scrutiny to ensure that the location, siting, design and operational nature of the use minimises any potential impact upon the surrounding areas. Generally, planning permission will be granted subject to stringent conditions to ensure that mitigation measures are carried out and the use operates in an acceptable manner. The Environment Agency Wales is statutorily responsible for controlling potentially polluting emissions of noise, liquid, solid waste etc., to air, ground and water. Any business/industrial process must conform to that legislation and be granted any necessary licenses and consents and the purpose of the land-use planning policy is to control impact on the character of the surrounding area.

Policy EMP 8 - Bad Neighbour Employment / Uses

A necessary section of the local economy is concerned with uses such as disposal and storage of waste material, coal and scrap yards, car breaker and handling of heavy/bulky goods, and other similar uses. However, if not properly controlled they can have an unacceptable effect on their surroundings, in terms of noise, dust, smell, visual qualities of the area, and local highway network.

In view of the nature of those uses they will generally not be acceptable on new employment allocations and the St Asaph Business Park as they are suited to existing or older industrial sites or to old quarries, subject to safeguards. In order to protect the spread of untidy uses into more sensitive areas, 'bad neighbours' should be located so that they are not unduly visually intrusive or impair the development or use of nearby land. The operational nature of such uses will be controlled through the imposition of planning conditions.

Policy EMP 9 - Working from Home

Many small businesses and some types of job are either started or based in the home. As a result of evolving technology and communications, it is becoming increasingly possible for people to work from home. This is particularly important in isolated rural properties and villages where travel is both difficult and expensive, thereby reducing commuting and aiding sustainability. However, it is important that any home working does not introduce activity which will exceed that which can be reasonably tolerated within a residential area, or which could reasonably be located in town centres to assist their viability and vitality.

Generally, home working provided that it is ancillary to the main use as a single dwelling does not require planning permission. However, when the use of part of a dwelling house or its curtilage for business purposes, changes or is likely to change its overall character as a single dwelling then planning permission is required as a result of a material increase in activity, visitors, noise, storage and traffic.

Examples of home based working include private hire vehicles, childminding, high technology, small scale/home engineering and craft related activities. Each proposal will need to be considered on its individual merits, recognising the different nature and impacts of each. Unless it is clear how a home-based business will operate, it may be appropriate to grant planning permission for a temporary period so that the nature of the use can be assessed. Applications will be expected to be accompanied by floor plans and site plans detailing the extent of the business use which may be controlled through planning conditions.

Policy EMP 10 - Protection of Employment Land / Buildings

Owing to the high quality landscape, environmental and other constraints present in the County, the identification of employment sites is limited, especially in the rural areas. It is therefore important that sites and premises earmarked for employment development are retained to that use in order to ensure a range of opportunities in terms of location, type and size. However, there maybe exceptional circumstances where employment land or premises are reused for an alternative development or use. This will depend upon the nature of the existing premises or site, the nature of the proposed development, and any other relevant factors as set out above.

Policy EMP 11 - Expansion/Intensification of Existing Employment Sites / Premises

Existing industrial and business concerns play an important role in the economy of Denbighshire. Encouraging the expansion and development of indigenous business is an important part of the Council's Economic Development Strategy. This is particularly relevant in rural Denbighshire given its peripheral location and rural character which limits the scope to attract major inward investment.

Expansion or intensification will ensure the most efficient use of existing infrastructure and is often preferable to relocation to greenfield sites and even outside the county. Within established employment areas there are unlikely to be any objections to expansion in principle. In village locations or within a residential area or open countryside, there will be a need to look carefully at its impact and whether it has outgrown its present site or premises and best located in an existing employment / commercial area. The aim is to achieve a delicate balance between supporting small growing businesses and irreversible unacceptable damage to the environment and open countryside.

Policy EMP 12 - Major Employment Development

Large firms, whilst requiring extensive areas of land and significant infrastructure investment, can provide substantial job opportunities and have important catalytic effects on the local economy. Demand for sites for such development may only be occasional and the Plan does not allocate any specific sites.

The policy caters for high quality major employment developments in exceptional circumstances which cannot be accommodated either on allocated sites, sites with planning permission for employment development, or underused land. In order to be eligible for consideration the Council will need to be satisfied that the proposal is genuine and is not speculative or piecemeal. Proposals must be in the form of a full, detailed application which will be rigorously assessed with regard to impacts on landscape, nature conservation, highways and other interests of acknowledged importance. Any planning permission must be commenced on site within two years. An environmental impact assessment would usually be required. Where appropriate, off-site works including infrastructure, community facilities, landscape enhancements and wildlife habitats, may be secured through planning agreements.

Policy EMP 13 - Agricultural Development

Despite the continuing decline in employment terms and possible changes over the plan period, agriculture will continue to be an important part of the local economy and a source of significant employment. This policy is intended to support investment in farm business to help secure their future vitality and viability, whilst continuing to protect the environment. Agriculture like all other business adapts and changes to circumstances, new technology etc. which may lead to new forms of building.

Much agricultural development is exempt from the need for planning permission. This policy applies only to those proposals which require planning permission or are subject to the need to give advance notification to the planning authority. Proposals would need to meet the general requirements of policy GEN 6.

Policy EMP 14 - Dyserth Quarry

Dyserth Quarry is a dormant limestone quarry. This means it has the benefit of planning permission issued on 19th June 1979 perpetuated until the year 2042 by the Environment Act

1995 as a dormant quarry. This also means that the site cannot resume working until a full set of modern conditions for the working, restoration and aftercare of the quarry has been approved by the Minerals Planning Authority (Denbighshire County Council).

Employment uses are the preferred uses bearing in mind the acknowledged local shortage of employment land, the previous history of the site and its characteristics. However, other uses such as commercial, tourism and leisure uses and housing could be considered if it was shown that the preferred use was unviable, unsuitable or would have an unacceptable impact on the locality.

Bearing in mind the difficulties experienced in the past with quarrying operations it is also important that as part of any development of the quarry the dormant mineral planning consent is extinguished. Any development of the quarry would also be subject to other legislation and regulations.

Policy MDA 4 - Major Mixed Development Area - Former North Wales Hospital, Denbigh

The Hospital, which was previously a large regional mental hospital, was fully closed in 1995. Attempts to find alternative beneficial economic uses since that time have been unsuccessful. The site covers 126 acres of wooded, landscaped grounds within which is set buildings totalling 400,000 sq. ft. The original hospital building is a Grade II* listed building and many of the surrounding buildings are also listed although there are later, more modern additions.

The Plan adopts a realistic but flexible approach to the future development of the site. The Council's objectives for the site are to find a viable, alternative use or a mix of uses for the site because of its value as a significant group of listed buildings and for any development proposal to contribute to the viability and vitality of Denbigh town.

Development and use of the site should be mainly for employment or economic uses along with any associated facilities and service sector uses including:

• B1 (light industrial, offices, research & development)

• C1 (hotels)

• C2 (residential homes)

• C3 (dwelling houses)

• D1 (non residential institutions)

• D2 (assembly and leisure)

• A3 (food and drink) but with no permitted development / conversion to A1 shops unless ancillary to the main use of the building, but not greater than 100 sq. m floorspace.

Any residential development, should be to enable a suitable economic use of the main buildings to proceed and should be ancillary to the main use. Development proposals should be of high quality and respect the integrity of the listed buildings, and their setting, as a whole.

Further development guidance is available in a site development brief which forms one of a series of Supplementary Planning Guidance Notes.