Problems and Issues

Employment Structure

3.1 The 1991 Census of Employment showed that the District had a higher than average number of persons employed in agriculture. Between 1987 and 1989 the figure had fallen from 7.7% to 6.9% but then rose during the next two year period to 7.3% in 1991. In 2001 this figure had fallen again to 7%. This compares with a national figure of 2% and a figure of 4% for the south west region. The need for diversification within the agricultural industry will have far reaching implications for the Plan. Blandford Camp continues to be a major employer in the area.

Unemployment

3.2 In September 2002, the unemployment rate in the Poole and Shaftesbury travel to work areas was 1.3% and 0.9% respectively. Since early 1994 there has been a slow reduction in the number of unemployed persons to 230 in North Dorset, representing 0.7% of the workforce, in September 2002. This low figure, however, does disguise local out-migration to work and the loss of young people who have to leave the district to enter higher education.

3.3 The District consistently maintains an unemployment rate lower than that of the South West region which peaked at just over 10% in early 1993 but has since fallen to 2.0% in September 2002. North Dorset continues to have one of the lowest unemployment rates in the region but the high employment dependence on the agricultural sector combined with the restructuring of the industry may affect future unemployment rates. It is therefore essential that flexible policies are incorporated into the Plan to promote employment opportunities for the overall needs of the labour force.

Past Development Trends

3.4 The Bournemouth, Dorset and Poole Structure Plan requires 40 Ha. of land to be developed for employment purposes within the district by the year 2011. Having regard to this guideline figure and past development rates, it is believed that sufficient land has been identified in this plan to meet the needs of the growing economy. Between 1986 and 1995 approximately 23 hectares were developed for a variety of employment uses. Despite this development, few businesses have been attracted to the District and growth is mainly attributed to the expansion of existing firms.

3.5 The area has a variety of industrial sites and premises. Sites range from fully serviced areas on modern business parks, to low rental units in converted agricultural buildings, which provide a range of opportunities for businesses moving into the area or outgrowing their present premises.

Strengthening the Economy

3.6 It is envisaged that the principal source of additional employment over the coming years will be generated by successful companies already located in the District. The introduction of European controls will place a burden on existing businesses by requiring compliance with new regulations. In appropriate circumstances consideration will be given to providing financial assistance. In conjunction with the South West Regional Development Agency, the local authority will continue to promote the area as a location for inward investment.

3.7 The western and northern sections of the District were designated a "Rural Development Area" (subsequently re-named a "Rural Priority Area") in 1994. Joint initiatives to provide serviced industrial land and workspace accommodation will be pursued. In addition, funds will be sought from the Government and the European Commission to assist in the economic enhancement of the area.

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The Structure Plan Strategy

3.8 The Structure Plan’s strategic objectives in relation to the economy aim to;

• provide for the restructuring of the economy and the development of local enterprise
• increase job and wealth creation
• support the expansion of and creation of new firms
• attract inward investment.
• maintain and develop a tourist industry which benefits the local economy whilst respecting the host environment
• maintain the role of the towns as the main employment and shopping centres.

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(a) Employment

Overall Employment Strategy

3.9 Main employment development will be concentrated in Blandford, Gillingham and Shaftesbury in line with the overall strategy of the Plan to encourage sustainable development. Sturminster Newton is less well located to the Primary Route network but still has an important role to play as an employment centre serving a wide area which includes Stalbridge.

3.10 In the Rural Priority Area (RPA) there will be special emphasis on the creation of new enterprises which create better long term job prospects and skills training for the local workforce.

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Policy 3.1

Allocated Employment Sites within Settlement Boundaries

3.11 Continued activity on existing sites and the development of new allocated sites will ensure a ready supply of employment land. The following defined Employment Sites, both existing and proposed, are thought sufficient to meet the needs of the population throughout the Plan period. Development for business, general industrial and storage or distribution use will be permitted within the defined Employment Areas. In addition, proposals for the sale of bulky and specialised goods will be considered where a more central location is inappropriate and where the proposed development is in accordance with Policy 3.23.

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Policy 3.2

Monitoring

3.12 The take up of employment land will continue to be monitored on an annual basis to ensure that a sufficient supply continues to be readily available throughout the Plan period. The District and County Councils will publish such information annually.

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Retention of Employment Areas and Uses

3.13 The provision of a wide range of employment opportunities and adequate infrastructure is essential to the well-being of the economy. In order to maintain sites in a variety of locations, all existing employment areas will be retained. Permission for change of use or redevelopment within the defined employment areas other than for business, industrial, storage or distribution use will not be permitted, except for the retailing of bulky household, agricultural or motoring goods (see Policy 3.24).  It is essential to maintain as many buildings in employment use as possible to maintain the economic opportunities in the District.

3.14 Although some employment areas in open countryside locations are defined (e.g. Blackmore Creamery, near Shaftesbury), a considerable number of established sites lie outside the Inset Plan areas and thus are not defined. Examples include the former County Surveyor’s Depot at Todber and Wessex Park Homes near Okeford Fitzpaine. Policy 3.3 relates to all such sites and buildings irrespective of their location.

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Policy 3.3

Employment Development in Rural Areas

(i) The Villages

3.15 Many businesses can be carried out in rural areas without causing unnecessary disturbance through increased traffic, noise, pollution or other adverse effects. Such businesses create a valuable source of employment and income for the local population. Proposals which will increase the provision of local employment, reduce the need to travel and help to encourage young people to stay within the area, are supported. Consideration will also be given to proposals which make use of an under-used building(s).

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Policy 3.4

(ii) The Countryside

3.16 Major new employment developments will normally only be permitted on allocated or existing employment sites within one of the towns in the District. However, there are many small-scale rural enterprises, located in the countryside outside a settlement boundary, which provide a valuable source of local employment. One of the objectives of this Plan therefore, is to support and maintain these rural businesses. Under the following policy, the establishment or expansion of rural enterprises will be permitted especially where buildings are re-used or additional use made of land within the curtilage of the development. Whilst substantial development of greenfield sites in the countryside is contrary not only to the aims of sustainable development but also to the conservation of the countryside and will not be permitted under this policy, it is important not to jeopardise the future of rural enterprise. The small scale expansion of sites, considered to represent about a 25% increase in original site area, will be permitted where development does not harm the local environment and there is no significant increase in traffic generation. (See also Policy 1.10; Reuse and Adaptation of Buildings, including modern buildings, in the Countryside.)

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Policy 3.5

(iii) Relocation of Poorly Sited Village Industries

3.17 Village industries make a valuable contribution to the local economy and are historically, an important part of a thriving village. However, were some of the industries located within the villages to be established today, their interests could in some cases be better served in another location. Where such village industries could be better served on another identified employment area, relocation of these businesses is supported. Where it is not possible to relocate such firms to existing employment areas, permission may be granted on another unallocated site subject to the development policies of the plan.

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Policy 3.6

Restrictions on Employment Uses

3.18 Where employment uses abut residential areas, the quality of life of residents will need to be protected. Permission for employment uses adjacent to residential areas will be granted, subject to evidence that neighbouring land uses will not be adversely affected. Factors such as noise, pollution and traffic generation will be controlled through planning conditions to safeguard the quality of life.

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Policy 3.7

Working From Home

3.19 Technological advances and the growth in small businesses are likely to result in an increased incidence of home working. Where the use of part of a dwelling for business purposes does not change the overall character of the dwelling, planning permission is not required. When the business ceases to be ancillary to the use as a dwelling, planning permission is required. When considering applications for business use, regard will be given to the proposed intensity of use of the building, movements to and from the business and the nature and scale of the proposal.

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Policy 3.8

Development within the Rural Priority Area

3.20 The northern and western sections of the District fall within the Rural Priority Area (RPA). These are areas where a degree of rural deprivation is experienced and there is a stronger case for central government funding towards rural regeneration. Planning permission will only be granted in accordance with Policy 3.1. The extent of the designated area is shown on Figure 4.

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Agriculture

Protection of Agricultural Land

3.21 Agriculture, despite the effects of the Common Agricultural Policy of the European Community and the drive towards diversification, continues to be a major part of the local economy. There is a continuing need therefore for the policies of this Plan to protect the best and most versatile land from large-scale development whilst allowing for sensitive diversification of the industry. Within the principles of sustainable development, the best and most versatile land, Grades 1, 2 and 3a, will be protected. However, where lower grade land, Grade 3b, 4 and 5 is of high ecological / wildlife value, this will be taken into consideration when assessing the effects of loss to development.

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Policy 3.9

Agricultural Diversification

3.22 Agriculture continues to make a valuable contribution to the rural economy and is an important source of employment. However, at a time when farmers are being encouraged to reduce levels of production, they are increasingly looking for alternative ways of generating income. Applications for permission to diversify parts of farm holdings, will be assessed with particular regard to the following policies;

• Re-use and Adaptation of Buildings in the Countryside (Policy 1.10)
• Farmyards within Village Settlement Boundaries (Policy 1.11)
• Employment development within the Countryside (Policy 3.5)

Livestock Units

3.23 Whilst the erection of certain agricultural buildings is already permitted under current planning legislation, those to be used for the accommodation of livestock which are within 400m of a protected building require the express grant of planning permission by the planning authority. Although planning legislation makes no distinction between intensive and extensive livestock units, the former are generally perceived as being those which have little or no dependence upon the farm land on which they are located. Changes to regulations governing conditions under which livestock can be kept may require existing buildings to be extended and preventative steps to be taken to reduce current levels of noise and odour. When assessing proposals for new livestock units the protection of residential amenity will be considered.

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Policy 3.10

Livestock Markets

3.24 Until 1997 there were two markets operating within the District at Sturminster Newton and Shaftesbury. However with the closure of the former the surviving market at Shaftesbury has taken over as a centre for both markets. The future of the Shaftesbury market too has been uncertain as there were proposals for the development of a supermarket on the site. Although this proposal has now been superceded by one which excludes the market site, the site could still be subject to pressure for redevelopment in the future.

3.25 In order to help resolve the future of markets within the District, the Council commissioned a Dorset Livestock Market study which was undertaken by the RPS Clouston Consultancy. The results of the study show that there is a need for a continuing livestock market to serve the District and that this would be best achieved through the development of a greenfield site. At present it is premature to identify a proposed site in this Local Plan. However, the following policy sets out criteria by which to judge any future applications.

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Policy 3.11

Storage of Hazardous Substances

3.26 The Planning (Hazardous Substances) Act 1990 and Regulations 1992 require consent to be obtained for the storage of a hazardous substance in an amount at or above its controlled quantity. The Act gives the determining authority the opportunity to consider whether the proposed storage or use of a significant quantity of a hazardous substance is appropriate to a particular location. Applications for the storage of substances identified in the Regulations as being hazardous will also be assessed against the development criteria of the Plan.

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Control of Emissions from Industrial Development

3.27 It is not the role of the planning system to duplicate controls governing emissions from industrial development. However, the production of certain products, e.g. paint and chemicals, can result in the emission of undesirable odours or the production of effluent. Although such industries are valuable as a source of employment, where emissions are considered to be hazardous to the host environment or amenity of the area, permission to develop will not be granted.

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Renewable Energy

3.28 The Government’s policy on renewable energy, as set out in Energy Paper 62 (March 1994), seeks to stimulate the development of new and renewable energy sources where proposals are economically attractive and environmentally acceptable. The Department of Trade and Industry estimates that at least 25% of current electricity use could be met by renewable sources by 2025.

3.29 Proposals for the generation of renewable energy sources form a key part of the overall Local Plan Strategy for Sustainable Development. The need for renewable energy will be balanced against the impact of the scheme on the local environment. Particular consideration will be given to the landscape and ecological value of the nationally designated areas within the District. The Council acknowledges the advice in PPG 22 that a variety of factors specific to the technology involved have to be taken into account in assessing planning applications for renewable energy systems. When considering any proposals the Council will balance the impact of development on the environment against the benefits of development.

3.30 A study undertaken in 1994 by the Energy Technology Support Unit (ETSU) and Southern Electric, sought to assess the potential of the Southern Electric Region as a location for renewable energy generation. The results of this study suggest that North Dorset is most likely to come under pressure from wind farm proposals. However, as technological advances are made within the industry during the plan period other types of renewable energy development cannot be discounted.

3.31 The most suitable sites for wind farm development are thought to be located on the crests of the scarp slopes where annual mean wind speeds are the highest in the District. However, the siting of wind turbines within the Dorset Downs and Cranborne Chase Area of Outstanding Natural Beauty is unlikely to be visually acceptable.

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Policy 3.12

Advertisements
(including Advance Roadside Advertising)

3.32 Advertising is a key ingredient to the vitality of town centres and is often an important factor in the commercial success of many businesses. Those located in the more remote rural areas rely heavily on roadside advertising to attract passing trade. By using the Control of Advertisement Regulations and guidance provided in Planning Policy Guidance Note No.19 "Outdoor Advertisement Control" the Planning Authority will continue to seek to ensure that the impact of advertisements, through number and location, does not have a detrimental effect on the character of the countryside.

3.33 Special consideration will be given to the effect of advertisements within designated landscape and Conservation Areas.

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Policy 3.13

Telecommunications Development

3.34 The Government policy on telecommunications is to promote growth of new and existing systems through encouraging competition between providers. Modern telecommunications are a vital element in ensuring the economic attractiveness of the region and can help to overcome the remoteness from major population and employment centres. In addition, the widespread use of modern technology can further the aims of sustainability by reducing the need to travel.

3.35 Code System Operators are required under the Telecommunications Act 1984 to provide a certain level of service, in terms of geographical coverage and to respond to customer requirements of service and quality. Each license imposes certain conditions covering such areas as mast sharing, establishing need and the removal of redundant structures.

3.36 The development of modern telecommunications networks includes underground cables, masts, satellite dishes, transmitter aerials and permanent buildings. Proposals which require planning permission, either by virtue of their size or location, will be assessed against the need to provide a comprehensive telecommunication network and the need to conserve the visual quality of the environment.

3.37 For instance, telecommunication masts on hill-tops should be located away from exposed areas and make the best use of tree cover and the topography to mask their effect on the landscape. Satellite dishes should, if at all possible, be located on rear elevations or on outbuildings which are away from and out of sight of the public domain.

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Policy 3.14

(b) Shopping

Promotion of the Existing Shopping Centres

3.38 The District has four main shopping centres at Blandford, Gillingham, Shaftesbury and Sturminster Newton. These towns offer both retail and business opportunities and provide an essential service role to their respective catchment areas. In an attempt to increase existing levels of vitality and viability a diversity of mixed use development within these areas will be encouraged. Within the four main centres, properties have been surveyed to define "primary" and "secondary" shopping frontages based on ground floor use.

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Policy 3.15

Policy 3.16

3.39 Whilst trying to create town centres which offer a wide range of facilities, a balance must be struck when allowing mixed development so as not to reduce the degree of choice within a certain sector. In an attempt to allow flexibility of use but still preserve a wide range of uses, it is thought that any change of use of A1 premises should not result in more than three adjacent units falling into another category of the Use Class Order.

Policy 3.17

3.40 There are two smaller local centres at Stalbridge and Marnhull which provide local convenience facilities for their immediate catchment areas. They have an important role to play in meeting people’s day to day needs so reducing the need to travel. In order to maintain and enhance the function of these local centres, existing shopping facilities should be safeguarded and opportunities for development promoted.

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Policy 3.18

Out of Town Centre Retail Development

3.41 Recent surveys indicate that on a national scale, the development of "out of town" retail centres can damage not only the viability and vitality of existing shopping centres but also the survival of local neighbourhood shops. Out of town retailing can also lead to additional car-borne shopping trips and is not easily justified under a sustainable development strategy.

3.42 In some cases however, it may be possible to locate additional large stores (in excess of 500m², 5,400ft², of net retail floorspace) on the edge of town centres. Development on the edge of town centres can often provide an additional attraction which will promote use of the existing town centre, particularly where additional walkways, public transport facilities and car parking promote links to the town centre. ‘Large stores’ are defined as in excess of 500m² in the definition of major development contained in Policy 1.1; The Sustainable Development Strategy. For the purposes of this policy, 500m² is the maximum unit size appropriate for a village or a neighbourhood location. Stores in excess of this size may adversely affect the viability and vitality of existing shopping centres.

3.43 Any proposals for new major retail development will be considered with regard to the "sequential" approach contained in Planning Policy Guidance Note 6 "Town Centres and Retail Developments". The onus is on the developer to demonstrate to the satisfaction of the Local Planning Authority that all potential town centre options have been fully investigated and there is no other suitable site closer to the town centre. Where the proposed store is thought to pose a potential threat to certain sectors of the town centre, planning consents may be conditioned to limit the range of goods sold in out-of-town centre stores.

3.44 All applications for more than 500m², (5,400ft²), net retail floorspace outside the town centre shall be accompanied by retail and transport assessments. It is considered that, due to the specific local circumstances that operate in North Dorset, this figure represents the limit in terms of the size of development above which there is the potential for the development to adversely affect the vitality and viability of existing centres. A recent research paper published by DETR entitled "The impact of Large Foodstores on Market Towns and District Centres" (1998) identified a number of issues associated with the provision of new large scale convenience stores. It highlighted the fact that their impact may not be solely limited to other supermarkets but may also adversely affect comparison and service uses. Impact was increased for stores located away from the town centre and cumulative and long term impact were found to be particularly important considerations. Indeed the report concluded that large foodstores can have an adverse impact on market towns and smaller centres may require additional protection. The relatively small size of existing shopping centres in the District and the already high incidence of convenience retailing in large stores as a proportion of total floor space highlight the importance for all applications for out of town centre retail developments in excess of 500sq. metres of net floorspace to be accompanied by appropriate retail and transport assessments.

3.45 Retail and transport assessments must contain the following information:

• The need for the development and the estimated extent of existing and future demand in the town’s shopping catchment area for additional floorspace for either food or non-food retailing (whichever is relevant).
• Whether a sequential approach to site selection has been adopted and the availability of alternative sites.
• The likely economic impact on town centres, local centres and villages including the cumulative effects of recently completed developments and outstanding planning permission.
• The accessibility by a choice of means of transport, assessing the proportion of customers likely to arrive by the different modes.
• Likely changes in travel pattern over a catchment area.
• Any significant environmental effects.

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Policy 3.19

Design of Shopfronts

3.46 Shopfronts make a significant contribution to the street scene and their retention, where appropriate, will be sought. This is particularly important in Conservation Areas and other areas of historic or architectural importance. The retention and restoration of shopfronts will be promoted where they are in keeping with the character of the building. (See also paras. 1.113 –1.114 relating to Conservation areas).

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Policy 3.20

Village Facilities

3.47 Village shops, post offices and public houses are an essential part of the rural economy, particularly in villages where the level of car ownership is low or the population is elderly. The loss of such facilities usually has a detrimental effect on the vitality and attractiveness of such settlements. It is therefore desirable to maintain these facilities and their loss will thus be resisted. However, in certain cases it may be uneconomical for the use to continue; any planning application for a change of use made on these grounds must be accompanied by evidence that attempts have been made to dispose of the business as an ongoing concern. The mixed use of premises will be encouraged where this will ensure facilities are maintained.

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Policy 3.21

Development of Local Shopping Facilities

3.48 Some local shopping areas have the ability to expand thus increasing the range of facilities, particularly in rural areas. Where such proposals will meet a local need, permission will be granted subject to the proposal meeting all other policies in the Plan.

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Policy 3.22

Retailing within Employment Areas

3.49 Some large non-food retail developments, (e.g. bulky goods, retailing builders merchants, car dealers and those involving the on-site manufacture of ancillary goods) are inappropriate in historic town centres where there are problems of accommodating large floor areas and car parking/ servicing areas. Larger developments however, may be more appropriately located on employment areas, providing that there are premises/land available and sufficient vacant land remains to cater for future employment demand.

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Policy 3.23

Farm Shops

3.50 Farm shops can be a valuable local asset but can also create problems, (e.g. increased traffic generation), and may have a harmful effect on existing village facilities. Whilst the sale of produce from the farm does not usually require planning permission, permission will be required for more extensive retail use. In such cases planning permission may be granted providing that the viability of existing shops is not reduced.

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Policy 3.24

Garden Centres

3.51 A garden centre normally sells goods brought into the site in addition to those produced on the site. The scale of the business and the range of products sold means that garden centres usually require large sites to accommodate sufficient numbers of buildings, car parking spaces and display areas. The visual impact of garden centres on the locality can thus be significant and development will be strictly controlled to safeguard the quality of the area. Garden centres can also attract large numbers of visitors. In many parts of the area, the local highway network is incapable of accommodating the resultant increases in traffic flow. Any proposals for the development of garden centres should be well located in relation to the primary highway network. Unless controlled through planning agreements, a wide range of goods, e.g. sheds and conservatories may be sold from the site. To ensure that the site does not become a general shopping development, the goods to be sold will be restricted to those associated with horticulture and gardening.

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Policy 3.25

Commercial Nurseries

3.52 Unlike a garden centre a nursery business generally sells goods which are produced on the site. They provide a valuable source of local employment, particularly within the rural environment. The scale and impact of nursery development on the landscape is generally less than that of a garden centre.

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Policy 3.26

Space over Commercial Premises

3.53 There are many sites within town and neighbourhood centres where the re-use of space above commercial premises offers the opportunity to create additional housing for those wishing to live within a more "urban" environment. Such conversion will not only lead to an economic use of an under-utilised asset, but will ensure that a mixed range and tenure of housing is created to meet the needs of a broad cross-section of the community. Where conversion to a residential use is not acceptable, other economic uses will be considered providing that a retail use is retained at ground floor level.

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Policy 3.27

(c) Tourism

Tourism Developments

3.54 North Dorset has a varied landscape, and historical features are attractive to a growing number of holidaymakers. Tourism forms part of the employment base of the District and can help to assist rural diversification. At the same time, care must be taken to ensure that tourism does not destroy the environment which forms the basis of the attraction to the area. Some built facilities may be required within the District; the conversion of an existing building is preferable to the construction of new buildings. The link between countryside recreation and tourism is illustrated by the circular cycleway which has been signposted around the District. Further opportunities may arise with the development of additional cycling routes such as the National Cycle Network (see para.4.31, Policy 4.10 and Policy 4.11.). The appeal of long distance walks is increasing in popularity, again providing opportunity for the further development of tourist facilities away from the traditional destinations. This will help to secure the wider development of facilities throughout the District.

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Policy 3.28

Development of Built Holiday Accommodation

3.55 Most of the holiday accommodation within the District is small scale, ranging from quality hotels to friendly bed and breakfast and self catering accommodation. In some cases planning permission is not required for private houses to be used for bed and breakfast accommodation. However, where planning permission is required for bed and breakfast accommodation and where proposals for the change of use of large properties to hotels are being considered, the general assessment criteria will apply. In the case of purpose built holiday accommodation, the following policy will also apply.

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Policy 3.29

Chalets, Caravans and Camping

3.56 The District only has a few holiday caravan and camping sites at present. The Structure Plan gives more encouragement than previously to the development of caravan parks inland. The location of such sites will need to be assessed against environmental policies and there should not be an over concentration in one location. It is recognised that in the Areas of Outstanding Natural Beauty there may be opportunities for the development of small scale sites for tents and caravans.

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Policy 3.30