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Planning : UDP ...

Chapter 4- The Local Economy

• INTRODUCTION
• MAIN AIMS OF THE UDP
• POLICIES AND PROPOSALS
• EMPLOYMENT SITES
• MAJOR EMPLOYMENT LOCATIONS
• MAJOR INWARD INVESTMENT PROJECTS
• PROPOSALS FOR OTHER EMPOYMENT SITES
• PROTECTION OF NORTH TYNESIDE'S ECONOMIC BASE
• RETAILING FROM EMPLOYMENT AREAS
• CHANGE OF USE TO INDUSTRY OR COMMERCE
• BAD NEIGHBOUR USES
• CONTROL OF DEVELOPMENT
• PROTECTION OF RIVER TYNE FRONTAGE
• THE TOURIST & LEISURE INDUSTRY
• IMPROVEMENT POLICY
• SIMPLIFIED PLANNING ZONES
• ENTERPRISE ZONES

INTRODUCTION

The Changing Economy

4.1 In the period since currently operational planning policies were adopted in the early 1980's, the local and national economies have undergone significant structural changes. The balance has altered between primary, manufacturing and service industry, and between male/female and full-time/part-time employment. There has also been a trend towards increasing levels of long-term youth and older male unemployment. Finally the international, national and regional distribution of economic activities has seen radical change.

Table LE1 Changing structure of employment in North Tyneside District 1981-91

Type of Employment	%1981	%1991	%Change
Primary	5.3	1.4	-74
Manufacturing	36.2	25.0	-31
Services	51.6	60.2	+17
male/female ratio	60/40	54/56
full/part/time ratio	79/21	70/3

 

4.2 In planning for the next ten years or so policies and proposals for the local economy need to be sufficiently flexible and robust to cater for and respond to future variations in the level, type and distribution of economic activity.

Looking to the future

• many private and public bodies are involved in the field of economic development in North Tyneside. The UDP is required to provide a clear physical planning framework for their activities during the decade ahead.
• its provisions will need to be closely monitored and kept under review so that appropriate adjustments can be made if required through established procedures for modifying the Plan.
• strategies for attracting inward investment will need to be balanced with encouragement for the development and growth of investments already in place - the existing stock. Along with exploiting the scope for growth in indigenous enterprises such as offshore fabrication, ship repair, or tourism, the availability of prime sites benefitting from a range of incentives means that inward investment opportunities will be vigorously pursued.

Regeneration of the Local Economy

4.3 During recent decades North Tyneside has seen decline in key sectors of the District's economy; mining, fishing, ship-building and heavy engineering; and a major shift to service sector employment, some of it located outside the District, mainly in and around Newcastle City Centre. Regionally, new manufacturing investment has until recently concentrated south of the Tyne, and new service industries, particularly in the office sector, have focused on the regional capital, Newcastle. Economic decline has in turn been accompanied by population decline, with a significant loss of young, economically active from among the District's residents, though fortunately this trend appears more recently to have been arrested.

4.4 A primary aim of the UDP must therefore be to revitalise the local economy by appropriate land use planning and economic development policies. This will achieve for North Tyneside a stronger and more diversified economic base, a more successful share in the region's manufacturing and service sector activity, and an ability to attract and retain an economically active population.

4.5 Economic change has particularly affected the older, urban parts of North Tyneside, both alongthe riverside and in former mining areas, which are now undergoing a process of regeneration in both economic and physical terms. The pattern of land use left in these parts is frequently unsuited to modern industrial or commercial needs, deterring new investment and development. Local unemployment in such areas has consistently exceeded the Borough average by up to 50% or more, in spite of many years of remedial efforts through urban renewal projects by various agencies including North Tyneside Council, the Department of Environment, the Tyne and Wear Development Corporation, English Partnerships, and most recently North Tyneside City Challenge.

4.6 For these reasons the UDP must continue to support the revitalisation of the older urban areas within an overall strategy for the economy which gives residents in these areas full access to a range of opportunities across the District, by providing the necessary education and training, public transport, and childcare and other social support. More directly, a proportion of the sites for new industrial and commercial uses should be provided near to inner areas identified as being particularly disadvantaged.

Strategic Planning Policy Context

4.7 In formulating UDP policies and proposals for the local economy account has been taken of the existing policy background in this area, and in particular:

• strategic planning guidance and other government direction and advice for the planning system.
• current development plans, especially the Tyne and Wear Structure Plan and adopted local plans.
• North Tyneside Council's Economic Development Strategy and annual plan, and its other policies and programmes for the local economy, in particular North Tyneside City Challenge Action Plan.
• policies and proposals of the Tyne and Wear Development Corporation in North Tyneside.

4.8 The Government's Strategic Planning Guidance for Tyne and Wear UDP's (currently being updated for incorporation in Regional Planning Guidance) makes a number of recommendations in relation to the framework for economic policy, and specifically that:

• revitalising the economy should be the primary aim of the UDP, with particular emphasis on urban regeneration, involving provision of new employment and improvement of the working environment.
• investment should be attracted and retained by offering and developing a range of industrial and commercial development opportunities, within and outside the inner areas, and in close proximity to the strategic highway network.
• previous allocations should be carefully considered as to their adequacy and suitability, and potential for development.

4.9 The Tyne and Wear Structure Plan, through its policies for the Tyneside economy, sought to balance efforts between regeneration of older urban areas and development of new industrial land, aiming to provide a wide range of size, type and location of sites throughout the plan period. It also recognised the strong interdependence of local District economies - a characteristic rein forced by the evidence of the 1991 Census which showed that while nearly 35,600 North Tyneside residents lived and worked in the Borough, 33,300 travelled daily to work in adjoining Districts of Newcastle, Northumberland, and south of the Tyne, whilst over 22,000 travelled into North Tyneside from the same Districts.

4.10 Looking to the provision of large scale sites to meet employment needs across the county, in North Tyneside the Structure Plan proposed strategic allocations of industrial land at Longbenton (60 ha), Tyne Tunnel North Approach (nowadays described as the Silverlink) (150 ha), and Whitehill Point (20 ha) to provide major foci of new investment and activity. In the period since the Structure Plan was approved, a variety of factors constrained development of these locations, as the scale and depth of recession in the 1980's depressed demand for industrial land and premises to unforeseen levels and competition grew from other sites able to offer a fuller range of incentives and locational advantages. More recently however all 3 locations have been the subject of active preparation and major infrastructure works which together with the designation of significant parts as Enterprise Zones has greatly increased their attractiveness and potential for early development.

4.11 A consequence of the earlier low level of industrial demand is that a proportion of the area in these locations which has been developed has been approved for non-industrial use. Some of these changes have taken place as a result of TWDC housing, leisure and retail proposals for the Royal Quays area. Others have been a consequence of changing patterns of retail activity, which have seen a strong demand for out-of-town centre sites contrasting with weak demand from industrial activity.

4.12 The Structure Plan also specified the need for a wide range of smaller sites, particularly in the inner urban areas, to meet the requirements of smaller and local industries, to allow for local expansion and relocation, and to maintain the balance between inner area and peripheral development. These sites have experienced active development over the plan period, particularly those at Killingworth, Whitley Road, Longbenton and West Chirton,and their use has, in general been successfully restricted to industrial purposes (Table LE2), including, since 1987, Class B1 business development.

Table LE2 Allocated industrial land consumed in North Tyneside 1981-94 (ha) : Consumption 1981-94

	Total	Industrial	Non- Ind
Strategic Sites	114.2	46.8	67.4
Smaller Sites	86.1	70.5	15.6
All Sites	200.3	117.3	83.0
Per Annum	14.3	8.4	5.9
Redevelop/ Existing Estate	152.4
Greenfield Site	47.9

Source: North Tyneside Council:

4.13 The other significant feature of past land consumption shown in Table LE2 is its concentration within redevelopment sites and designated industrial estates, indicating a relatively successful strategy of urban regeneration, in keeping with the Structure Plan's objectives. However the vulnerability of riverside industries, coupled with a much more competitive regime for the funding of urban regeneration, means that future strategy has to capitalise on the major investments referred to in 4.10 as the best means of providing new employment opportunities not only for the District but for the wider sub-region.

4.14 Given the range of size and location and quality of sites now being made available through the proposals of the UDP to attract both indigenous and inward growth, and the effect of additional incentives, particularly the designation of Enterprise Zones, it is anticipated that rates of site consumption and new job creation will greatly increase compared with earlier rates (in 1995 some 40 ha. were consumed against an average consumption over the period 1981-94 of approximately 14 ha. per annum (Table LE2)).

4.15 North Tyneside Council's Economic Development Strategy and annual plan is the key statement of the Council's overall policy towards the local economy, based on three main strands of labour market, business development and physical regeneration objectives.

The UDP has in particular to take account of the physical regeneration objectives of the strategy which require the following:

• provision of an appropriate range of development sites to satisfy anticipated demand for commercial and industrial land.
• availability of a stock of business premises both suitable and sufficient to meet demands.
• improvement of North Tyneside's internal and external transport and communications links.
• enhancement of North Tyneside's built and natural environment to attract new investment, retain its resident labour force and exploit its tourist potential.
• implementation of comprehensive improvement programmes for areas with major opportunities for regeneration or growth.

4.16 The North Tyneside City Challenge Action Plan (1993-99) has as its main aim to strengthen the local economy and revitalise the communities dependent on it, by targeting action and funds on key locations within or adjoining the inner areas. The focus of its economic development proposals is the A19 Industrial Corridor, the subject of major infrastructure works and joint private and public investment projects, to promote employment opportunities for adjoining areas of high unemployment, and for the wider District. The Action Plan also includes measures to revitalise the commercial centres of Wallsend and North Shields through a mixture of redevelopment, commercial improvements, and traffic and transport measures.

4.17 Through its North Tyneside Economic Partnership the Council is keen to exploit the economic potential presented by the A19 corridor through North Tyneside and to protect and expand the industrial capacity along the River Tyne. The Partnership brings together key local economic agencies, landowners and the private sector aimed at promoting the area for economic and competitive advantage. The initiative is developing a common purpose and framework for economic development activities between all major economic agencies along the North Tyneside A19 corridor and the River Tyne.

4.18 The Tyne and Wear Development Corporation, which ceased to function in 1998, had as its main physical planning objectives for the area of its operations in North Tyneside:

• provision of infrastructure and other support to maintain and strengthen established manufacturing industries along the Tyne riverside.
• support to the future development of port facilities on the Tyne, and in particular to improve links with Northern Europe.
• development of the Royal Quays flagship scheme covering over 80 ha. of riverside land to include elements of new industrial, commercial, leisure and retail development.
• regeneration of North Shields Central Riverside and Fish Quay areas.

MAIN AIMS OF THE UDP

Employment

4.19 Notwithstanding the planning policies and economic initiatives currently in place, recent analysis for both North Tyneside and Tyne and Wear continues to show a local economy in which employment opportunities are inadequate to meet the needs of, and retain the labour force of the area, and in which chronic structural weaknesses continue to threaten security of employment. These are especially evident in large scale manufacturing, where employment depends on a small number of major employers operating in evermore competitive national and international markets.

4.20 Looking to the decade ahead recent forecasts offer little respite, especially in the shorter term, with a predicted further decline in manufacturing and construction, involving losses too large to be fully replaced by service growth. The value of employment is likewise set to decline with higher than national average shifts to poorer paid, parttime and female unemployment (in 8 out of 20 wards already in North Tyneside the largest single group in employment is part-time females). Finally, studies for Tyne and Wear show the local economy to be poorly placed and requiring exceptional stimulus to benefit from national forecasts that over half the growth in total employment during the 1990's will come from self-employment, (local self-employment being only two-thirds of the national rate and growing at only half that rate).

4.21 In the light of current forecasts, and the need to arrest further population decline in the District, the UDP must therefore aim to establish physical development policies and proposals whose objectives and main policies are set out in Part I of this document.

Existing Industry

4.22 A main requirement of policy is also to protect and enhance those existing areas of industrial and business development for current providers of employment, to secure existing jobs and encourage their further expansion. Present historically high levels of vacant property indicate a need to encourage refurbishment and redevelopment where appropriate, to modernise the fabric, layout and amenities of older areas, to capitalise on established infrastructures and past investment, and also to meet demand for economically priced accommodation.

Office Development

4.23 Structure Plan policy for North Tyneside envisaged modest new office development appropriate to local demand in North Shields, Killingworth and Wallsend town centres. Development has now taken place in the centres of North Shields and Wallsend but over the past decade the more significant feature has been the growth of out of centre office development, on sites designated for B1 (business use) especially those which since 1996 have had the benefit of Enterprise Zone status. The main locations constructed or approved are at Longbenton (Gosforth Business Park and Balliol West), in the A19 Corridor (Hadrian North and Silverlink) and at Royal Quays, with a smaller business park at Brenkley, Seaton Burn, in all involving more than 200,000 square metres of floorspace.

4.24 Sites committed so far are in general well located in relation to both public transport and the main highway network, although the internal layout of major development locations in some cases requires further works to ensure an acceptable level of public transport provision. In the case of future proposals for office development it is intended that policy should reflect the importance attached by the Government, through PPG6 and PPG13, to ensuring that consent is only given to locations within or adjacent to the urban area readily accessible to the local residential workforce by public transport. This will involve a renewed emphasis on town centre locations as first preference, with a sequential approach to justifying any alternatives

The Tourist and Leisure Industry

4.25 Within North Tyneside tourism provides a higher than average proportion of employment, as a consequence of the range of attractions which the coast, River Tyne and countryside provide, and as a result of their accessibility, particularly by public transport, from the rest of the conurbation and beyond. In coastal parts of the District more than 20% of employment is provided by this sector, while in others, such as the riverside area and Wallsend, potential exists for tourism projects based on the local historical and industrial heritage, which studies elsewhere have shown can have a significant and costeffective impact on local unemployment. Improvements to facilities at North Shields Fish Quay have greatly increased its attraction to tourists while the growth of passenger shipping services through the recently improved facilities at the Tyne Commission Quay, and events such as the Tall Ships Race have enhanced North Tyneside's ability to attract an international market. For these reasons the UDP aims to maximise the economic and employment benefits of tourism, and encourage its physical development, so long as this is compatible with environmental and conservation objectives.

4.26 Allied to the potential of tourism development, the Council recognises that significant employment can arise from other forms of intensive leisure and recreation uses such as cinema, bingo, fitness and leisure centres, and indoor sports such as bowls and tennis. Provided they conform with other policies it will therefore generally welcome proposals for such projects, which if carefully located, can make a substantial contribution to the Borough's potential for attracting tourism and business, as well as enhancing facilities for residents. It is neverthe less also anxious to ensure that such projects are well served by public transport, and that wherever possible they contribute to the vitality and viability of North Tyneside's town centres, and of its main centres of tourism.

The Fishing Industry

4.27 The fishing industry is diminishing significantly in terms of employment numbers and under pressure to restructure and contract as a result of dwindling fish stocks, conservation measures and changing markets. It nevertheless merits protection and support for its local base in North Shields, where it represents an important part of the local heritage, is a major attraction to visitors, and provides valuable employment in related activities in an inner urban location. Additionally, under restructuring of the industry, North Shields is in future likely to attract the largest concentration of regional activity. The UDP will therefore aim to protect the area required for fish landing, marketing, processing and transport, and encourage development of training and other facilities required for the successful continuation of the industry, under the management of the North Shields Fish Quay Development Company.

The Agricultural industry

4.28 Although a small employer in numerical terms, the agricultural industry in North Tyneside is nevertheless significant in terms of its responsibility for contributing to the maintenance of the rural landscape for the enjoyment of the public, and as an attractor to general economic investment in the District through the creation of a 'green' image. The UDP will therefore aim wherever possible to protect and improve agricultural activity through the maintenance of viable working units, in order to secure existing agricultural jobs, as well as ensuring these wider benefits at a time of restructuring and contraction in the industry. The Plan will also seek to facilitate diversification of farm activities, within the framework of its Green Belt and open land policies, including the establishment of appropriate activities for re-use of farm buildings where this can secure the maintenance of attractive buildings or groups of buildings in the landscape, as well as providing local employment.

River and Port-related Development

4.29 Direct access to the River Tyne is an essential requirement for a number of major employment uses, particularly marine construction and repair, offshore fabrication and supply, and maritime trade in goods and passengers, as well as for fishing and related activities. Additionally adequate lengths of frontage are required for laying-up facilities, and some minerals and waste disposal activities also need access to water-borne transport. Land with river frontage is therefore a valuable resource, whose area has recently diminished as a result of residential development and other commitments within the area of the Tyne and Wear Development Corporation, at a time when demand for recreational access is growing.

4.30 In view of the importance of riverside industries to the local economy as a whole, and the fact that sufficient land is available outside riverside areas to satisfy general industrial requirements, the UDP will aim to protect areas occupied by uses requiring river frontage from loss to other purposes, so that the future success of their operations will not be prejudiced. The Plan will thereby ensure the continuing successful operation and future growth of the Port of Tyne, as an essential pre-requisite in developing North Tyneside's links with Europe. In addition, since coastal shipping represents up to a third by weight of all freight moved annually in the UK, the securing of accessible and well-serviced wharves and harbour facilities can make a significant contribution to minimising traffic movements by land.

General Control of Development

4.31 Changing patterns of land use, and market demands for a higher quality of industrial and commercial development mean that in relation to control of development the UDP must aim to embody flexible locational criteria; for example in allowing new forms of employment such as business units in mixed development on the fringe of town centres. Policies at the same time need to ensure a high quality of design and overall environment in existing and new development. These, together with good accessibility, and up to date telecommunications, will become increasingly important factors in attracting and retaining investment, and in enabling existing enterprises to grow and compete more successfully.

POLICIES AND PROPOSALS DOR THE LOCAL ECONOMY

Principal Objectives

4.32 In meeting the general aims discussed, and in consideration of the economic and planning policy context outlined, the UDP will have the following specific objectives:

(1) to assist in retaining the Borough's population by maximising the number and range of employment opportunities, to achieve the highest possible level and quality of employment.

(2) to provide Borough residents with optimum access to employment opportunities by:

• aiming for the closest possible juxtaposition of employment and residential uses so that people have increasing opportunities to work near their homes.
• facilitating movement across the Borough and sub-region through improved public transport, and strong support for a new lower Tyne river crossing.
• locating new housing to maximise access by public transport to local and regional employment.
• seeking to afford equal opportunities for female and male, full and part-time labour of all skills, in terms of access to, and choice of employment.

(3) to focus employment support and job creation in areas with greatest potential by giving priority to developing opportunities in the A19 Corridor and Longbenton/Killingworth areas, as well as meeting local employment needs in the older riverside neighbourhoods, and in Whitley Bay.

(4) to protect the manufacturing base of the local economy from further decline, and attempt to foster its stability and growth by:

• supporting and encouraging new opportunities for existing manufacturing industry along the riverside, and in other established industrial areas.
• protecting and enhancing existing key employment sites in terms of access, layout, building refurbishment, environmental quality and social facilities.
• bringing forward additional sites capable of attracting and retaining new manufacturing investment, and allowing for expansion and relocation of existing enterprises.

(5) to encourage continued growth in service sector employment by supporting a full range of opportunities - in town centres, commercial and industrial areas, where flexible forms of development can where appropriate be mixed with other uses - as well as in new purpose-built business developments.

(6) to help existing businesses by facilitating planning approval for individual alterations and extensions, and to promote creation of new business by encouraging rapid adaptation and take-up of vacant premises, subject to normal planning safeguards.

(7) to capitalise on the availability of well-located, easily accessible development sites by promoting a number of high quality, premium business locations capable of contributing to the employment needs of the wider region.

(8) to support employment in agriculture and fishing industries by encouraging successful continuation of these activities within current constraints on their development, and within a framework of good environmental practice.

(9) to promote further development of tourism in North Tyneside in order to:

• provide additional job opportunities in areas of high unemployment along the riverside and in Whitley Bay.
• capitalise on the accessibility of the Borough's natural and man-made leisure and recreational resources.
• attract new investment to this growing sector of the economy.

(10) to support and develop the main centres of North Tyneside, in particular Wallsend, North Shields, Whitley Bay and also Killingworth as major foci of economic activity and local employment, through a mix of retailing, business, workshop and service activities, combined with a range of public service uses.

(11) to integrate development of the Borough's economy with economic planning across the region, in order to promote a successful regional economy, taking advantage of European integration, for the benefit of North Tyneside residents and those in the wider region.

(12) to achieve a sound basis of partnership between public and private sector interests, in order to optimise use of existing employment facilities, and bring forward a range of new opportunities, in accordance with the Plan's overall objectives and to complement other economic development initiatives in place.

Employment Sites

4.33 In respect of the key objectives of the Council's Economic Development Strategy, the main purpose of the UDP is to enable and to stimulate the physical development of sufficient suitable land and premises to meet all foreseeable employment needs throughout the Plan period. Therefore;

4.34 Having reviewed the disposition of sites in current use or presently allocated for employment purposes, whose development would make the most efficient use of existing resources, and taking into account the recently greatly accelerated rate of take-up of major sites, it is proposed to allocate a number of specific locations to meet the requirements of Policy LE1. The Local Planning Authority is concerned to capitalise on existing investments, often resulting from substantial public funding. It also wishes to ensure that in a period of scarce investment resources, declining public funding, and other adverse economic and social conditions, priorities are clearly established as to the location of main efforts and initiatives in terms of physical development for the economy.

4.35 The sites identified for these purposes are shown on the proposals map and specified in Policies LE1/1 (Major Employment Locations) and LE1/3(Other Employment Sites).

Major Employment Locations

4.36 The main locations proposed for high quality business development total 238 ha. and are indicated as follows:

4.37 In designating these major sites, most of which (apart from (1), (2) part of (4) and (5)) are currently allocated for industrial purposes, and promoting their use for high quality business development, the Local Planning Authority intends to maximise the benefits of their locations, which are in general ideally related to public transport services, the principal highway network (with improvements where necessary), and areas of greatest employment need, as well as providing a relatively even distribution of sites across the Borough. In considering proposals for these sites the Local Planning Authority will, in addition to requiring approval of a detailed planning brief, seek in discussion with the landowners and development agencies, to achieve a reasonable balance between B1, B2 and B8 Use Classes, in accordance with market requirements, both within each site, and across the District. By virtue of their location in relation to the main highway network and Tyne Port facilities respectively, sites (1) and (10) are considered particularly appropriate for storage and distribution uses. In the case of those parts of sites LE1/1 (3), (4), (6) and (7) which are included in the New Tyne Riverside Enterprise Zone adopted in 1996 the approved enterprise zone scheme, including its annexed conditions and reserved matters, prescribes the type and general form of development.

4.38 In keeping with modern practice in large business neighbourhoods, the Local Planning Authority is concerned to ensure that employees have easy access to facilities for their immediate needs and convenience. These facilities may include nursery, financial services. However, the scale of such development will be restricted by Policy LE1/2(II) so that it does not damage local shopping centres, or compromise the proper intended use of the sites. The principal control on the sale of retail goods from land used or allocated for employment purposes is maintained by Policies LE1/4 and S8.

Major Inward Investment Projects

4.39 Some proposals for very large projects of national or regional significance are anticipated to be so exceptional in their size and locational requirements that it will not be possible to make suitable provision for them within the major sites designated under Policy LE1/1. The provision of a site or sites of this scale is a matter to be considered in the wider context of regional planning guidance where crucial resource and locational criteria can be addressed. At the present stage it is not therefore intended to identify a site for very large projects and should any proposals be received they will be considered on their merits, against the relevant policies and proposals of the Plan.

Proposals for Other Employment Sites

4.40 In addition to designating major locations under Policy LE1/1 the Local Planning Authority intends to provide a well-distributed complementary range of small to medium sized sites (10 ha. or less), advantageously located in relation to employment needs, and the majority adjoining Metro stations, for optimum access. Some sites are by virtue of their size, location and accessibility, appropriate to be reserved for Class B1 business use only, while the remainder are indicated for business (B1), general industrial (Class B2) or storage and distribution (Class B8) purposes. The sites, totalling 37.5 ha. are shown on the proposals map and indicated as follows:

4.41 Given the overall size of the existing supply of industrial sites and their distribution across the District, the majority of the above sites are based upon existing allocations, which are well located for employment needs. Additional allocations are proposed to be limited to a small number of medium sized, but strategically placed sites, capable of contribution to the overall objectives of the Plan. Site (12) East Howdon is by virtue of its size and location in relation to the strategic high way network and Tyne Port facilities respectively, considered to be particularly appropriate for Class B8 storage and distribution uses. Site (5) Silverlink East is regarded, by reason of its location in relation to the Retail Park, to be also appropriate for leisure use under Policy LE2/1 and the proposals map therefore reflects its dual designation. Sites (1) West Moor and (6) Backworth Metro/Holystone are by virtue of their location adjoining strategic highway inter sections, considered to be also appropriate for hotel/restaurant purposes as an alternative to business use. The part of site (6) Backworth Metro/Holystone north of the A19 Holystone roundabout is also indicated in the policy to be acceptable for leisure purposes in the light of its current consent for that use.

4.42 A number of major industrial and commercial enterprises hold vacant land for their own operational or expansion purposes. Generally the proposals map indicates these sites to be designated for industrial or commercial development, protecting them for eventual use in association with the currently operational part of the site. A large area of land at Howdon, for example, in the ownership of Northumbrian Water Ltd has been indicated as likely to be required for water treatment purposes, and is therefore to be regarded as industrial expansion land, for which any proposals would be subject to any relevant planning considerations, including environmental impact. Proposals relating to the unused part of such sites will be considered in accordance with the following Policy LE1/4 and development control Policy LE1/7, and other relevant policies of this Plan. In the case of Formica Ltd a major employer which occupies a site at West Chirton Industrial Estate, part of its expansion land includes an area equipped for playing field purposes. It is proposed that in view of the demand for such facilities in the part of the Borough east of the A19, this area, although considered part of the operational area of Formica, should be maintained for playing field use until such time as it is required for expansion of the adjoining industry.

4.43 Some commercial uses such as car showrooms (which are often combined with servicing facilities) are not included in general use classes, and are not therefore allocated any particular sites, though their characteristics when service workshop facilities are included in the facility, may indicate that a site allocated for B1 use would probably be appropriate. As indicated in para. 7.46 and shopping Policy S9 the Local Planning Authority is prepared to consider such proposals within employment sites, subject to conditions or agreements to mitigate the potential effect of permitted development rights which would other wise allow change of use from car showrooms to class A1 shops.

Protection of North Tyneside's Economic Base

4.44 In order to maintain and protect the existing base of the local economy, the main areas of North Tyneside presently in industrial use, which total some 500 ha, and provide nearly 30,000 jobs in manufacturing, distribution, transport and service employment, are identified on the proposals map to be protected from loss to other uses, and therefore:-

4.45 In order to provide maximum flexibility of opportunities for economic regeneration the final part of Policy LE1/4 allows the change of use of employment land to other purposes where this is shown to be desirable in exceptional circumstances; for example to facilitate the relocation of a poorly sited local enterprise, or in circumstances where an industrial or commercial use has been demonstrated to have an excessively adverse impact on neighbouring uses by virtue of noise, smell, traffic movement or some other factor. Where the opportunity arises, such a use might be better terminated, and re-located to a site more appropriate for the purpose. Replacement by a more acceptable use could thereby be facilitated, to satisfy the need for housing, for example. In an area where industry is the predominant use however it will generally be inappropriate to introduce new housing or similar development where it may have an inhibiting effect on any future expansion or intensification of local industry.

4.46 Likewise care needs to be taken to ensure that proposals for sites in close proximity to areas allocated for, or occupied by industrial or commercial activities do not inhibit the successful establishment or continuation of those activities, thereby prejudicing existing and potential investment and employment. Where proposals re in close proximity, physical measures such as mounding and planting can often be devised to minimise conflict between uses. However in cases where such conflict can not be resolved the following policy will apply:

Retailing from Employment Areas

4.47 The Local Planning Authority's policy to control retailing from employment areas is covered by (i) LE1/2 in the case of retail activities designed primarily to serve occupants of major employment sites, or (ii) LE1/4 and S8 in the case of other retail proposals.

Change of Use To Industry or Commerce

4.48 In line with its economic regeneration objectives, the Local Planning Authority is prepared, in appropriate cases, to approve a change from other use to industry or commerce, for example, to encourage building conversion or infill within suitable locations in the built-up area such as district or neighbourhood centres, and therefore:-

4.49 The main purpose of this policy is to encourage redevelopment of redundant sites and premises within the built-up area, in the interests of local economic regeneration, and to maximise the range of premises and locations available to provide employment.

Bad Neighbour Uses

4.50 Proposals for those industrial activities previously specified as classes B4 to B7 of the Town and Country Planning (Use Classes Order) 1987 but now included within Class B2 (general industry), need especially careful consideration in view of their possible impact on local communities and the environment. They may nevertheless be seen in positive terms, of securing employment by the continuation or expansion of an existing activity, for example, and of contributing to sustainable development by offering recycling facilities such as vehicle dismantling or scrap collection and processing.

4.51 None of the sites allocated under Policies LE1/1 and LE1/3 are however considered appropriate for the purpose. Certain locations in the Borough, generally in the lower Tyne riverside areas, may be suitable for these bad neighbour uses by virtue of their compatibility with much of the surrounding development, their long establishment in the area and the absence of alternative suitable sites. As well as being subject to the general policy LE1/7 for control of industrial development, in appropriate cases proposals will also be assessed against the criteria set out in policies E30/3 and E30/4 for controlling waste disposal, where comparable considerations are involved.

4.52 A number of vehicles dismantling and storage facilities, some apparently unauthorised, are currently operating in northern and western urban fringe areas of the Borough. To improve t he quality of such areas, and to complement proposed land reclamation initiatives, the Local Planning Authority will seek opportunities to relocate these facilities to a more appropriate location. It will therefore take steps to identify a suitable site or sites to facilitate such re-location, possibly in association with land reclamation projects for those parts of the Borough. These sites should be accessible to the main highway network, but substantially screened to minimise their visual impact on adjoining areas, and the effects of noise, dust and other harmful emissions should similarly be restrained.

Control of Development

4.53 In considering any proposals for industrial or commercial development the Local Planning Authority intends to apply the following general conditions, in order to secure the highest possible quality of development, and to safeguard the wider interests of the community, whilst not wishing to place any unreasonable restraints on uses generating employment. For example the Local Planning Authority wishes to facilitate and encourage the adaptation, conversion or extension of existing premises and sites in order to help existing businesses and encourage formation of new enterprises. Therefore:

4.54 In considering proposals for new development the Local Planning Authority is particularly concerned to ensure a quality of development in keeping with highest present day standards, which will enhance the image of the Borough in terms of its promotion for inward investment and as an attractive place in which to live. The strategy of English Partnerships in constructing advance units to a high standard, to provide a model for subsequent development, is a commendable approach in this respect.

Protection of River Tyne frontage

4.55 The main operational area of the Port of Tyne in North Tyneside lies between Howdon Pans and the river mouth. In view of the significance of the Port to the external functioning of the local economy, and its increasingly important trade and tourist links with Europe, and to meet the Local Planning Authority's objective of securing the unique resource of river frontage areas for maritime activities, in areas shown on the proposals map the following additional policy will apply in respect of control of development:

4.56 In the particular circumstances of tourist or leisure development requiring access to river frontage which cannot be provided elsewhere, an exception to this policy may be justified in accordance with the objectives of Policy LE2.

4.57 The Local Planning Authority is also aware of the essential requirement of access to river frontage for the marine fabrication and servicing and supply industries. It will therefore aim to ensure that as far as possible in areas occupied by these industries the facility of river frontage will continue to be protected, especially in the area between Wallsend and Willington Quay. In this connection, in order to give as much flexibility as possible for the operations of Amec Offshore Ltd, the Tyne and Wear Development Corporation in 1994 introduced a Simplified Planning Zone Scheme (the Willington Quay/Wallsend Simplified Planning Zone Scheme) to cover the Company's Hadrian West Complex together with areas formerly known as Hadrian Yard Central and Hadrian Yard East. The main effect of the scheme is to stimulate and facilitate regeneration of the area by streamlining planning procedures in giving a general approval for industrial use Classes B1, B2 and B8 within the Zone. The Zone comprises a total of some 39 ha and will operate for 10 years from 1994. Its area is shown for information on the proposals map.

The Tourist and Leisure Industry

4.58 In considering proposals for tourist related activities and other leisure developments, the Local Planning Authority is conscious of their importance to the local economy (referred to in para. 4.25) and their potential for generating new economic activity and job opportunities, reflecting increased personal income, leisure time and mobility. Additionally, since tourism often depends on a high quality of environment its development can act as a positive force for protection and enhancement of the natural and built environment. Conversely planning policy must also take account of the possible adverse effects of existing tourist attractions and activity, and be sufficiently flexible to respond as new types of activities and attractions become popular. It must also ensure that activities involving a significant number of trips, such as cinemas, bingo or indoor sports facilities are located on sites already well served, or with a clear potential to be well served by public transport.

4.59 In respect of its objective to support the local tourist industry and encourage its physical development therefore:

4.60 Given the close proximity of main tourist facilities to North Tyneside's coastal residential communities, proposals for extending or introducing tourist developments in close proximity to residential areas will be very carefully considered as to impact in terms of noise, traffic and other disturbance. In order to resolve these and other issues within a properly planned frame work which takes account also of the UDP's policies for the environment, leisure, recreation and open space and nature conservation, the Local Planning Authority will prepare and implement a Coastal Management Plan for North Tyneside.

4.61 Additionally the more specific objects of policy LE2 will be to encourage tourist development in the following main areas: (1) coastal parts of Whitley Bay, Cullercoats and Tynemouth. (2) further action in the area of North Shields Fish Quay and Riverside to enhance its attractiveness as a tourist destination. (3) support for further development of the Stephenson Railway Centre and Steam Railway as a major tourist attraction. (4) further promotion of tourist and visitor use of Tynemouth Station. (5) development of the Roman heritage at Wallsend, and (6) work in partnership with the private sector to stimulate investment in tourism.

4.62 With the exception of sites listed in policy LE2/1, land is not generally specifically identified for leisure and tourism purposes on the proposals map since these are considered to be predominantly town centre uses. Applications will be considered against the policies and proposals of the plan and in particular the criteria set out in (I) - (VII) of Policy S8 for allowing key town centre uses on non-central sites.

4.63 There are a number of locations in the Borough where development for leisure would generally conform with the above criteria. However six sites have been specifically identified for leisure purposes - at West Allotment, adjoining the Country Park, a site of 2.0 ha. at Silverlink East, adjoining the Retail Park, which is considered appropriate for either business use under Policy LE1/3(5) or for leisure development, a site of 4.0 ha at Royal Quays adjoining the factory shopping outlets, a site of 15.0 ha at Shiremoor West, north of the Metro,a site of 2.0 ha at Backworth Metro, and a site at Spanish City Whitley Bay whose precise delineation is dependent on studies to be concluded. The proposed use for the sites identified shall be for leisure purposes except in the case of site (2) Silverlink East, which is also considered appropriate for B1 Business Use, (4) Spanish City, whose uses may also include open space, play space, education and housing, the precise uses to be determined in accordance with a development brief to be drawn up, and (6) Backworth Metro, which is also considered appropriate for B1 Business Use." Therefore:

4.64 In the case of Whitley Bay Caravan Park which lies outside the built-up area and immediately adjoins proposed Green Belt the Council is concerned to ensure that the site should continue to make an important contribution to the local tourist economy. It also recognises the need to minimise its impact on the sensitive surrounding environment particularly the neighbouring site of nature conservation importance and the Coastal Protection Zone. For these reasons it is proposed that any intensification of its use as a caravan park should be restricted to within the existing site boundary, and any proposals for development within the site should be subject to strict environmental safeguards, particularly at its margins. In order to ensure that a range of tourist accommodation continues to be available in North Tyneside, particularly in its coastal area, it is intended that any future proposals for the site should also be examined against the need to maintain a supply of both touring and static caravan provision. To further its objectives the Council also intends to maintain discussions with the Holiday Park operators regarding further improvements to their site and the continuation of their important contribution to the local tourist economy. And therefore:

Improvement Policy

4.65 The success of the Local Planning Authority's policies in maintaining and generating employment opportunities, and in achieving its wider objectives of enhancing the image of the Borough to attract and retain its population will depend to a considerable extent on achieving improvement in the quality of its older commercial and industrial areas. To deal with th outdated pattern of land use, low quality of environment, and poor physical condition of land and premises shown by recent surveys, in its older industrial and commercial areas the Local Planning Authority will therefore adopt the following policy and proposals:

4.66 With regard to industrial improvements, it is intended that any action should particularly focus on riverside areas of Wallsend, Willington Quay and North Shields and the older industrial areas in the A19 Corridor, particularly West Chirton South Estate, to include: (1) selective redevelopment of sub-standard premises. (2) continuing access and service improvements for difficult to reach or unattractive sites, in particular the Dock Road Industrial Estate, former Bullring Docks and Hudson Street/East George Street areas of North Shields, and at Willington Quay. (3) provision and improvement of operational infrastructure such as access and service facilities and security measures within post-war industrial estates such as West Chirton, and (4) improvements to the appearance and presentation of industrial estates through landscaping and other environmental and signposting work.

4.67 With respect to improving the main commercial areas of the Borough the Local Planning Authority will concentrate resources on the older town centres of Wallsend, North Shields and Whitley Bay, together with necessary revitalisation of post-war centres at Longbenton and Killingworth. Improvements will cover both redevelopment of sites and refurbishment of buildings, community safety, improved access, traffic and public transport management, and landscaping and other environmental improvements.

4.68 The proposed redevelopment of Killingworth Town Centre will provide particular opportunities for new commercial and leisure development, including offices and retailing, in a location which has been the subject of considerable investment in recent years, and is very well located in relation to public transport and major new housing developments, both existing and proposed.

4.69 It can be anticipated that the Local Planning Authority's Economic Development partners, and in particular North Tyneside City Challenge, the Tyne and Wear Development Corporation and English Partnerships will play a significant role in achieving the objectives of its improvement policies.

Simplified Planning Zones

4.70 Apart from the adopted Willington Quay/Wallsend Simplified Planning Zone referred to in 4.57 the Local Planning Authority does not consider it necessary to propose any further sites for such designation, since the aims of flexibility and streamlining to stimulate economic development and regeneration are already embodied in the policies of the Plan, and in the Local Planning Authority's approach to planning control and implementation. It further considers there be sufficient other special incentives and programmes already in place, including the declaration of some 98 ha, or nearly 24% of the Borough's allocated employment land as

Enterprise Zones

4.71 Following an application from North Tyneside Council, and the Tyne and Wear Development Corporation, the Secretary of State for the Environment has designated 8 sites in North Tyneside as Enterprise Zones. The eight zones involved are:

Tyne Riverside Enterprise Zone No. 1: Hadrian Business Park South (20.4 ha). Part of Siemens site, north of Middle Engine Lane.

Tyne Riverside Enterprise Zone No. 2: Silverlink North (24.8 ha). [Part of UDP Site LE1/1 (6)]

Tyne Riverside Enterprise Zone No. 3: Silverlink Business Park (0.85 ha). [Kingfisher Way, south of Middle Engine Lane].

Tyne Riverside Enterprise Zone No. 4: Middle Engine Lane (1.1 ha). [Silverlink/Middle Engine Lane].

Tyne Riverside Enterprise Zone No. 5: New York Industrial Park (14.7 ha). [Part of UDP Site LE1/1 (7)].

Tyne Riverside Enterprise Zone No. 6: Balliol Business Park West (11.4 ha). [Part of UDP Site LE1/1 (3)].

Tyne Riverside Enterprise Zone No. 7: Balliol Business Park East (17.8 ha). [Part of UDP Site LE1/1 (4)].

Tyne Riverside Enterprise Zone No. 8: Baltic Enterprise Park (6.6 ha). [Part of UDP Sites LE1/3 (2), (3), (8) and (9)].

Lasting for 10 years from 1996, they are intended to maximise incentives to investment in order to address a number of serious and inter-related problems, namely:

• the exceptional job losses arising from the closure of Swan Hunter, Wallsend, and from the recent significant decline in employment in the riverside areas and their hinterland, particularly in the sphere of engineering and marine industries.
• the chronic and very high unemployment rates in riverside areas, coupled with increasing competition for available vacancies as other job losses take effect, particularly in energy and service sectors.
• the slow take-up of land identified for employment purposes, arising from locational and other factors, a depressed local economy, and from an inability to compete on equal terms for a diminishing amount of inward investment.

4.72 The planning schemes submitted for the zones have been designed to accord with the policies of the UDP, and the Local Planning Authority, in conjunction with its economic partners, is committed to putting in place the streamlined planning and administrative procedures integral to the operation of the Zones. Therefore:

4.73 Given the additional stimulus to development arising from Enterprise Zone status it can be anticipated that rates of take-up of employment land will increase significantly compared with past levels. The process of regular UDP monitoring and review will allow assessment to be made of any need arising to allocate additional land. The Local Planning Authority is also conscious of the need to employ measures to stimulate development of other sites lacking the benefits of special status, but which can nevertheless benefit from the general increase in economic activity in the District.

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