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2. JOBS & THE LOCAL ECONOMY
 
GENERAL POLICY AND POLICY CONTEXT
   
2.1 The policies in this chapter are concerned with the locational aspects of employment uses, defined for the purposes of this Chapter as offices, industry and manufacturing, wholesale warehousing and distribution (categories B1, B2 and B8 of the Use Classes Order, 1987 and subsequent updates), and ‘sui generis’ uses such as aggregates, scrap and waste processing, builders yards, haulage yards, transport depots, MOT testing stations and wholesale/trade sales that exclude the visiting public.  The policies seek to address the long-term employment needs of the local population including the unemployed, and the needs of local businesses and industries.  This chapter should be read in conjunction with relevant policies in the Town Centres chapter and the section on Mixed Use Areas in the Waterfront Chapter, which provide additional guidance for office uses, and specific guidance for other employment generators such as retail and leisure activities.  The general policies for employment uses and the local economy are:
 
SJ1 To expand and diversify the Borough’s economic base and employment opportunities by identifying good quality employment sites, and by promoting efficient use of employment land and improvements to business infrastructure.
 
SJ2 To ensure that significant employment generators are accessible by public transport.
 
SJ3 To retain, and encourage the expansion of, existing businesses, and to promote the provision of premises for small and growing firms.
 
SJ4 To resist the loss of employment land and premises that are in employment use, or that are well suited for continued employment use.
 
SJ5 To encourage training and the development of the skills of the Borough workforce, and to ensure that the benefits of economic activity are shared by all sections of the community including those disadvantaged or facing discrimination in relation to the job market.
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BOROUGH CONTEXT AND REASONS FOR PART ONE POLICIES
   
Background
2.2 Greenwich forms part of the Thames Gateway, recognized in both the Sustainable Communities Plan (ODPM 2003) and the London Plan as being one of two priority regeneration corridors in east London with the potential to accommodate a significant proportion of London’s projected population and employment growth, and to redress the economic imbalance between east and west London. 
2.3 The economic geography of Greenwich is dominated by substantial industrial areas in the north of the borough, in particular Greenwich Peninsula (west), Charlton Riverside and West Thamesmead. These are complemented by a range of smaller commercial areas and premises that are more widely dispersed, and by offices and small service industries primarily clustered around the Borough’s town centres. 
2.4 The collapse of the Borough’s traditional economic base between the 1960's and the early 1990's left a legacy of high and long-term unemployment and severe urban decay. Consequently, between the early 1990’s and the end of 2004~05, 172 hectares (net) of derelict, under-used or contaminated industrial land were released for other uses, principally through the Development Plan review process.  The decline in heavy industrial sectors disproportionately affected workers in semi and unskilled socio-economic groups, who remain concentrated in the Northern part of the Borough (although Middle Park, Ferrier, and Sherard Wards also have concentrations above Borough average). Unemployment is also disproportionately suffered by other disadvantaged groups, such as lone parents, young people, people with disabilities and long term health problems. Such groups tend to be less financially able to move to other areas where jobs suited to their existing skills may be available. They are also more likely to experience difficulties moving into different types of employment in expanding sectors like business and financial services, information and communication technology, hospitality and tourism and cultural and creative industries.
2.5 As at the end of 2005~06 there are 241 hectares (net) of land in or last used for industry including warehousing and aggregates in Greenwich (224 ha. excluding land already re-allocated for other uses). 182 hectares are identified as Strategic Employment Locations in the London Plan, comprising three Defined Industrial Areas (Greenwich Peninsula West, Charlton Riverside and Plumstead/West Thamesmead), Charlton Business Park and the Aggregates Zone.  There are 33 hectares of vacant industrial sites in the borough, inclusive of 21 hectares remaining on the White Hart Triangle, which is being developed for industry and warehousing.  As at the end of 2005-06 there was approximately 853,000m2 (gross) of industrial and warehousing floorspace in the Borough. 6.8% was recorded as vacant in the Greenwich Business Development Centre site marketing database.
   
Economic Trends
   
Employment and business growth
2.6 Following decades of persistent decline in the Borough’s employment base, there has been a period of stabilisation and employment growth. From an earlier peak of 58,000 jobs in 1991, job numbers fell to 52,600 in 1995, but have since rallied: total employment in the Borough stood at 62,600 in 2003.  After decades of contraction, total industrial employment has steadied, remaining at around 6,000 jobs.
2.7 Parallel trends are reflected in other recent data. Unemployment in Greenwich has fallen from 21.9% in 1994 to 5.7% in 2006. Greenwich has historically suffered an unemployment rate at least 2% higher than the London average, but the gap had narrowed to 1.0% in September 2005. 31% of the unemployed are aged between 16-24, and this most vulnerable age group suffers an unemployment rate of 15.4%. Almost half of the jobs filled by unemployed Greenwich residents have gone to people who live in the areas in Greenwich that suffer from the worst unemployment.  However, unemployment rates still approach or exceed 10% in St. Mary’s, West and Ferrier Wards. The incidence of long-term unemployment (those registered unemployed for a year or more) has also fallen significantly, from 45% (about 7,000) in 1994 to 19% (about 1,200) in 2006.  Over 70% of the current long-term unemployed are men.
2.8 The Greenwich economy is dominated by small businesses: 85% employ less than 10 people, and 4% employ more than 100.  Business formation and closure rates are lower than the London average, suggesting that to date the Greenwich economy has been more stable but less dynamic than the London region as a whole. However, small businesses typically have the greatest growth potential.
   
Planning and Development
2.9 There has been a significant upturn in development activity in northern wards and waterfront industrial areas in the late 1990's.  Flagship developments permitted on the Greenwich Peninsula, the Royal Arsenal and the White Hart Triangle alone propose to create in excess of 12,000 new dwellings and over 700,000m2 of new office, industrial, retail and leisure floorspace by 2021. 
2.10 Recent development trends underline the continuing importance of Greenwich in London’s industrial economy, and there has also been a substantial increase in industrial development activity over the previous Plan period (1994~2001).  Greater London Authority and Council records for light industrial uses, manufacturing and distribution show that in the six years 1993~94 to 1998~99 annual industrial floorspace completions averaged 5,400m2, an annual land take of 1.2 ha. (Use Classes B1c, B2 and B8, developments exceeding 1,000m2 gross only).   By contrast, 1999~00 to 2004~05 annual industrial completions averaged 21,200m2 and land take 4.8 ha. per annum, a four-fold increase.   This trend looks set to continue in the medium term.  In 2003 planning permission was granted for 106,000m2 of industrial floorspace on the White Hart Triangle (25.7 ha, construction phased to 2010 with the first units available in 2005~06). This is indicative of the fact that ‘industry’ comprises a wide range of activities, and whilst many are in decline in London or in the UK generally, others are experiencing significant - or localized - growth.  When set against the decline of preceding decades, it also highlights the need to take a long-term view in managing the stock and availability of land for future employment use.
   
Training
2.11 The decline of traditional industries has important implications for the regeneration of the Borough as a whole, in terms of the need to train less-skilled groups to increase their access to jobs within and outside the Borough.  Despite the recent economic upturn, male unemployment still exceeds 14% in many wards, indicating an ongoing need to facilitate the provision of new opportunities for less skilled members of the workforce. Similarly, availability of a suitably skilled workforce is important both for local firms and to attract new businesses into the area.  
2.12 Training is a gateway to accessing employment, and a key mechanism in tackling social exclusion. If local people are to benefit from local job creation, it is essential that training in the necessary work skills takes place. The Greenwich Local Labour and Business Service (GLLaB) has been recognised by the Audit Commission as an exemplar of best practice in creating local employment.  Between 1997 and 2002 GLLaB helped 4,800 local people into employment, and helped local businesses win £3.5 million worth of new contracts. GLLaB’s service to local people includes the arrangement and procurement of identified training needs and efforts are underway to develop customised training programmes for local people so that they can access the jobs created through the major commercial developments in the Borough. Training is also important to increase the employability of people to enable them to compete for jobs outside the Borough, as the London-wide labour market provides many job opportunities if training and transport factors allow the local labour force to compete for them.
   
Economic Strategy and the Annual Economic Development Plan
2.13 The Economic Development Strategy for Greenwich (2002) provides a framework for economic development from 2002 - 2007. Major new investment and development are creating unparalleled opportunities for Greenwich and East London. An estimated 25,000 new jobs will be created in Greenwich by 2010, and thousands more across the Thames Gateway sub-region. High quality developments are transforming vast areas of derelict land and creating business growth and new jobs. The strategy sets out the following Vision for Greenwich:
  i. An exciting thriving place to live, work and do business.
  ii. A first class business location.
  iii. A place where all residents will have the education, skills and ability to get jobs in Greenwich, or elsewhere in London.
   
Economic opportunities and initiatives
2.14 There are a range of significant events, opportunities and initiatives playing a key role in the transformation and modernisation of the local economy:
   
Funding Initiatives
2.15 Eight of the most deprived wards in the north of the Borough benefit from Assisted Area Status (as at 2003). Manufacturing companies seeking to expand or safeguard employment may be eligible for grants from the Department of Trade & Industry. Six of these wards have also been designated Objective 2 Area status, with European funding available for industrial renewal, infrastructural or workforce development. The Riverside area east of Greenwich Peninsula also benefits from the award of £10 million funding between 2000 and 2007 under the Single Regeneration Budget to improve manufacturing opportunities. The South Greenwich ‘Building New Links’ area also benefits from a further £22 million up to 2006.   In addition, committed and planned investment by the public and private sectors secured through successive regeneration programmes exceeds £2 billion. Their implementation is providing a wide range of new employment and training opportunities. The Borough is also likely to benefit from further funding and increased investment through the London Development Agency’s Single Programme and the ODPM’s Sustainable Communities Plan.
   
Mixed Use Areas
2.16 Mixed Use Areas have been designated at Greenwich Peninsula, Deptford Creekside (West Greenwich) and at Woolwich Royal Arsenal to facilitate the continuing economic, physical and social transformation of waterfront areas blighted by the decline of heavy industry or port activity.  They contain many of the most significant waterfront redevelopment sites remaining in the Borough, and will bring further opportunities for economic renewal and diversification, employment, housing, leisure and environmental improvements.  An overall increase in business floorspace will be sought (see Waterfront Chapter Policy W3). 
2.17 On Greenwich Peninsula the prospects for the long-term regeneration of the local economy received a massive boost when Meridian Delta Limited were granted outline planning permission for their proposals for 81 hectares to be phased over 20 years.  Details include use of the Dome for a sports arena, exhibition and leisure venue, 10,010 new homes, 400,000m2 of office and business space including a hotel, plus over 50,000m2 of retail and food and drink uses.  Once completed it is estimated the development as permitted will provide over 23,000 permanent jobs on site, representing a one-third increase in jobs located in the Borough.The development of major sites around Deptford Creek and the ongoing regeneration of the Woolwich Royal Arsenal will bring further opportunities and improvements
   
Transport improvements
2.18 Infrastructural investments have improved accessibility within and into the Borough, and for Borough residents to Greater and Central London. Major schemes completed include the Jubilee Line extension and station at North Greenwich, the Docklands Light Railway extension to Greenwich, and the completion of the Woolwich Road Widening scheme. Cumulatively they enhance the Borough as a business location, and open up new opportunities for residents. Further transport investment is likely over the Plan period.  The Mayor’s 2001 Transport Strategy and the London Plan supports the Docklands Light Rail extension to Woolwich, Waterfront Transit and the provision of additional river crossings at Gallions Reach and Greenwich Peninsula (see Movement chapter).
   
Potential Economic Growth Sectors:
2.19 The Economic Development Strategy for Greenwich (2002) has identified a number of sectors with potential for growth.  These include health and social care, manufacturing, construction, tourism and hospitality, sport and leisure, creative industries, business and financial services and information and communication technologies.
2.20 The Council working in partnership with others has been successful in securing investment and additional resources for the regeneration of the Borough. The priority now is to capitalise on these new opportunities and maximise the benefits for local people and businesses.
   
POLICIES
   
Employment Locations
2.21 This section addresses the availability and suitability of sites for different types of business and industrial activities.  This is an essential aspect in safeguarding and enhancing the quality and range of employment opportunities in the Borough to address problems of social exclusion, a requirement that takes on increased importance when set against pressures to release brownfield and riverside sites for housing.
 
Defined Industrial Areas
   
J1 Defined Industrial Areas designated on the Proposals Map are particularly suited and safeguarded for activities within Use Classes B1, B2 and B8, although office developments unless ancillary will be limited to locations with good public transport accessibility (see Policies J4, J7, W3 & TC16), and B8 uses will be subject to the considerations in Policy J8.   Other uses will not be permitted unless they are:
  i. ‘Sui Generis’ uses that are industrial in character as defined in paragraph 2.1, subject to considerations under Policies J2, J10 and E1- E3.
  ii. Local service uses to predominantly serve businesses and employees within walking distance.
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  Reason
2.22 PPG4 Industrial and Commercial Development and Small Firms states that Development Plans should ensure that there is sufficient land available to suit a variety of industrial and commercial requirements.  The policy gives industrial developers and local communities greater certainty about the types of development that will or will not be permitted in a given location, allowing industrial investment decisions to be made with confidence.
2.23 The London Plan recognises the importance of industry, and seeks to ensure a sufficient ‘strategic reservoir’ of industrial capacity is retained to meet London’s future industrial requirements. Industry provides 7% of London’s jobs and 11% of its GDP, a higher productivity than some service sectors. Slower but ongoing employment decline in industry in London is predicted, partially offset by a projected increase in warehousing employment. Mayoral advice on Industrial Capacity states that to 2016 approximately 30-50 hectares per annum of employment land across London should be released to other uses, particularly in the East London sub-region, which includes Greenwich. 
2.24 However, Greenwich is a-typical of the East London sub-region as the amount of available vacant land remaining within the Defined Industrial Areas is relatively low. Large tracts of the most persistently underused land have already been transferred to other uses, principally by re-designation as Mixed Use Areas (see paragraphs 2.4, 2.16 and Policy W3). This ‘managed release’ approach largely preceded, but is consistent with, PPG3 Housing and Mayoral recommendations that East London boroughs adopt a managed approach to the release of surplus and especially poorer industrial land. There is also significant local demand with new industrial/employment development on 57 hectares 1998-2003 including works in progress (see paragraph 2.10).  It is therefore important that the remaining industrial sites, and especially sites that are readily developable, are made available to firms wishing to expand or locate in the Borough.  These factors combined with relatively low vacancy rates (see paragraph 2.5) underpin the controlled policy approach resisting the ad hoc release of employments sites between Development Plan reviews. 
2.25 The London Plan outlines a locational framework of Strategic Employment Locations (SELs) of London-wide importance. SELs include Preferred Industrial Locations (PILs), defined as medium to large-scale sites that should meet the needs of most industries in terms of their access, layout, landscaping and cost requirements, as well as their relationship with other land uses.   Within the Borough 144 hectares (net) on Greenwich Peninsula west, the Charlton Riverside Area, and the Plumstead~Thamesmead Industrial Area are designated as PILs, and form the basis of the Council’s Defined Industrial Areas. These are historically industrial in nature, are largely located away from environmentally sensitive areas, and contain a range of industrial accommodation.  Mayoral advice on Industrial Capacity is that managed industrial land release across London should take place outside SELs (see also Policy J5).
2.26 A number of factors increase the probability that industrial demand can be converted into new development over the Plan period. These include the award of £10 million under the Single Regeneration Budget to promote manufacturing in Greenwich and Bexley, and the availability of grants or other assistance from the London Development Agency, the Department of Trade and Industry and the European Union.  All the Defined Industrial Areas benefit from Intermediate Assisted Area Status and those east of Greenwich Peninsula also benefit from Objective 2 Status. Most of the Defined Industrial Areas are also Industrial Improvement Area under the Inner Urban Areas Act (1978), enabling the Council to apply its own resources where appropriate.  Planned infrastructure proposals and the Borough’s enhanced profile are also likely to help.
2.27 The policy allows flexibility between B1, B2 and B8 uses, subject to more detailed policy guidance for office and B8 uses in the policies cited. The lack of modern business units, particularly for small and medium-sized light industrial firms, is a barrier to inward investment and may hamper economic diversification.  Light industry can also usefully serve as a buffer between general industry, large-scale distribution and more sensitive surrounding land uses such as housing.  However, B1 office development is better located within town centres and other locations specified in Policy J7 (although it is not intended to prevent replacement of existing offices). 
2.28 Criterion (ii) and the site schedules provide further flexibility for business/ employment related diversification in specific locations.  In particular, the Thames Barrier Approach offers scope for employment-based diversification including provision of ancillary local service facilities for both business and visitor markets, to serve as an amenity and service zone for the industrial area which encloses it, whilst also supporting the Thames Barrier as a visitor attraction. Despite improvements, local environmental quality along Eastmoor Street is undermined by poor quality industrial buildings and ‘eyesore’ activities such as car dismantling.  Redevelopment and diversification into compatible business uses will help to address these issues. However, it is essential that new uses support rather than fetter business occupants of the Defined Industrial Area that encloses the Thames Barrier.  Residential use is not acceptable, nor are destination retail or leisure activities (see Site Schedules j4, j5). The Council is working with the London Development Agency to improve the wider Charlton Riverside Industrial Area.
2.29 Defined Industrial Areas have also traditionally accommodated a range of uses outside Group B of the Use Class Order (1987) that are essentially industrial in character and have similar locational requirements in terms of their impacts on surrounding activities. Proposals for such uses will be considered in relation to impact on the environment, and the extent to which existing or potential industrial occupiers in the vicinity might be adversely affected. 
 
Aggregates and other ‘Open Yard’ Industries
   
J2 The Aggregates Zone within the Charlton Riverside area shown on the Proposals Map is the Council’s preferred location for open yard aggregates, crushing and scrap uses, subject to the safeguarding of the Riverside Walk (Policy O16). Such uses will also be acceptable on Safeguarded Wharves providing the significant majority of raw and part-processed materials are transported by river (see Policy W5).
  Open yard aggregates, crushing and scrap uses will normally be resisted elsewhere unless alternatives to road freight are utilised, and operations will not unacceptably compromise regeneration objectives or the amenity of adjoining areas.
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  Reason
2.30 The availability of riverside wharves and the potential to develop greater commercial use of the Thames are important Borough assets. The provision of an aggregate zone contributes to meeting the London-wide need for aggregates, while its wharf side location reduces road congestion and pollution by allowing aggregates to be moved as water freight, in accordance with the London Plan. The zone also benefits from a railhead in current use.
2.31 The designation of a specific location with rail and river access is intended to minimise potential problems from aggregates or scrap operations in other parts of the Borough. Problems typically arise on sites that are too close to residential areas or businesses that require a clean operating environment, and/or on sites requiring frequent heavy truck access through residential streets. Aggregate uses are likely to continue on three safeguarded wharves outside the defined zone: at Victoria Deep Water Terminal, Riverside Wharf and at Brewery Wharf (see Policy W5 Safeguarded Wharves). Subject to appropriate environmental and amenity safeguards, temporary on-site processing facilities may also be acceptable on major development sites. Aggregate and scrap operations within the confines of a building will generally be treated as a B2 general industrial use, which will normally be acceptable in Defined Industrial Areas (see Policy J1).
 
Charlton Business Park
   
J3 Within Charlton Business Park the Council will permit development within Use Classes B1 (excluding non-ancillary offices) and B8. The Council will oppose any proposals leading to either a loss in land or premises in employment use, or an increase in retail floor space unless in accordance with Policy TC16. 
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  Reason
2.32 Charlton Business Park is within a Strategic Employment Location identified in the London Plan.  It is a mixed business location and a preferred location for light industry, distributive and trade wholesale uses. It also accommodates retail warehouse units. The Council does not support any increase in retail floorspace in  Charlton Business Park (nor the surrounding area) within the Plan period, unless in accordance with Policy TC16 (hybrid uses which combine wholesale use with retailing will be considered individually on merit against the most relevant parts of Polices TC16 and J8).  
2.33 Charlton Business Park contains a number of ‘first generation’ retail warehouses approaching the end of their useful life. Redevelopment proposals that reconfigure existing retail units are also addressed in Policy TC16. Site Schedule mu29 identifies an opportunity to reconfigure existing retail warehouse units to simultaneously meet a need for additional bulky goods floorspace and potentially to redress an imbalance in DIY provision identified in the Greenwich Retail Study (2002). In reconfigurations site access and servicing should be provided from Bugsby’s Way wherever possible.
 
Town Centres
   
J4 Woolwich, Eltham and Greenwich are preferred locations for office developments, and the Council will seek to retain good quality office accommodation in these centres.  B1 development at an appropriate scale will be acceptable in all Major, District and Local centres, providing proposals:
  i. Do not result in the unacceptable loss of retail and leisure sites, nor the unacceptable loss of reasonable residential accommodation;
  ii. Are conveniently related to, and adequately served by, public transport; and
  iii. Comply with approved planning briefs, site schedules and other policies in the Plan.
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  Reason
2.34 Woolwich and Eltham are the Borough’s main office locations, and existing office accommodation will be protected where office use is ongoing or likely. These centres and Greenwich are preferred locations for office development, which could help to lessen dependence on commuting to Central London (other suitable locations are identified in Policy J7).  Other uses may be more appropriate for office sites in some circumstances – see Policy J5.
2.35 Town centres are generally well served by public transport, and can also offer employees convenient access to retail, leisure and other service facilities.  They are thus generally suitable for larger office developments. Offices can also stimulate demand for and investment in shopping and other town centre services, to the benefit of town centre vitality and viability.  Guidance in PPS 6: Planning for Town Centres (2005) notes that in smaller town centres such development should be at a scale that is appropriate to the centre. 
 
Employment Sites Outside Defined Employment Locations
   
J5 The Council will seek to maximise the contribution to employment in the Borough from sites in existing or previous employment use outside designated employment areas.  Planning permission will be granted for an alternative employment use, provided that it does not impact unacceptably on residential amenity, the environment, traffic levels, road safety or parking congestion.
  Planning permission for non-employment uses will be granted only if the site is vacant and evidence is submitted to clearly demonstrate at least one of the following:
  i. The site is environmentally or physically unsuitable for any employment generating use.
  ii. Marketing on fair price and terms for at least 2 years indicates there is no realistic prospect of any form of employment use arising.
  iii. Employment use is only viable within a mixed-use scheme.
  Where development without employment use is justified, priority will be accorded to residential use wherever practicable, and the maximum viable contribution to affordable housing will be sought.
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  Reason
2.36 There are a number of industrial and business sites of varying sizes dispersed throughout Greenwich. This is a sustainable pattern of economic development where business premises, services and jobs are close to residential areas. The Council's objectives are to retain as many of these sites and businesses as is practicable, and to protect cheaper 'seedbed' accommodation, by resisting premature change to higher value land uses (such as private housing). This will help to safeguard locally accessible employment and services, and to meet the requirements of PPG4 Industrial and Commercial Development and Small Firms and the London Plan by ensuring the continued supply of premises for start-ups and small firms that often cannot afford premises on purpose-built industrial estates. For the purposes of this policy employment uses are as defined in Paragraph 2.1.  This policy is not applicable to sites identified in the Site Schedule Proposals if the uses specified therein do not include employment, industry or business. 
2.37 Circumstances are identified in the policy where it will be more appropriate to redevelop former industrial and business sites for other uses, or for a mix of uses including employment-generating uses. This meets the general policy thrust of PPG3 Housing and the London Plan (including Mayoral advice on Industrial Capacity) to make effective use of urban land and increase the supply of housing, and to manage the supply of lower quality employment sites outside Strategic Employment Locations. That said, the approach has been adapted to fit Greenwich circumstances.  Key local considerations are regeneration and job creation priorities in a relatively deprived Borough, an established track record of managed and large scale release of surplus employment land through the Development Plan review process, plus housing land allocations and planning permissions to meet and exceed strategic housing provision targets. In the absence of any clear justification for employment land release other than apparent lack of demand, it must be demonstrated that an employment use is not forthcoming despite at least two years active site marketing on realistic terms (well advertised, fair price, lease length, and occupier criteria).  Up to five years marketing history will be needed for readily developable sites that form part of a wider area in predominately business use, especially if the alternative uses proposed would significantly fetter or compromise the continuation of existing employment uses on adjoining sites.   In either of these circumstances the marketing period will be halved if the supply of vacant premises in the Borough exceeds 10% of the total stock (excluding premises under construction), as recorded in either the Council’s Unitary Development Plan Annual Monitoring Report or the DCLG’s Commercial and Industrial Property Vacancy Statistics. 
2.38 Where sites are wholly released from employment use the priority alternative use is housing where it is suitable.  In recognition of the potentially enhanced economics of provision for such developments engendered by the change of use, 50% affordable housing will be sought, subject to the considerations in Policy H14 and its Reasons.
 
Industrial and Business Developments
   
J6 The Council will seek to ensure that wherever possible industrial and business developments:
  i. Are designed and specified to enable convenient adaption to a range of business uses, and large units can be readily subdivided, and;
  ii. Connect premises to broadband information technology infrastructure (or, if this is demonstrably impractical, make provision for convenient connections to be made in the future); and
  iii. Address the need to provide business premises on flexible and affordable terms.
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  Reason
2.39 The Borough’s industrial and business accommodation varies in age and quality.  Whilst older premises provide affordable workspace and generally remain in productive use, some are reaching the end of their economic life. The policy encourages new development, redevelopment or refurbishment to maintain an adequate stock and range of premises.  It also seeks to ensure new premises are attractive to a broad range of industrial or commercial occupiers including technology and knowledge-based industries, and are sufficiently flexible in design to be adaptable to changing business requirements.   In servicing new developments it should be ensured that they are connected to existing broadband infrastructure wherever possible, and opportunities to upgrade servicing and telecommunications on surrounding sites are improved rather than reduced.  Section 106 contributions may be sought to improve IT infrastructure. Mechanisms to secure other forms of flexibility, for example tenancy lengths and occupier terms, will be considered where appropriate.  These are also becoming increasingly important as businesses seek to retain the freedom to adapt to rapidly changing market conditions.
   
TYPES OF EMPLOYMENT USE
 
B1 uses
   
J7 Activities within Use Class B1 will normally be permitted in the locations below, providing they are appropriately scaled, environmental and traffic impacts are within acceptable levels, and the site is not allocated or safeguarded for another use elsewhere in the Plan.  Office developments should be conveniently accessible by public transport.
  i. Defined Industrial Areas (see Policy J1);
  ii. Charlton Business Park (see Policy J3);
  iii. Town Centres (see Policies J4 and TC16);
  iv. Mixed Use Areas (see Policy W3); and
  v. Other sites allocated for employment use (see Site Schedules) or in current or former employment use (see Policy J5).
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  Reason
2.40 The B1 use class encompasses offices, research and development and light industry.  B1 uses do not normally create significant environmental problems, and thus can often be incorporated into mixed-use schemes or within mainly residential areas.  They can thus contribute to employment objectives without conflicting with existing activities, providing development does not utilise land safeguarded in the Plan for other purposes.
2.41 In terms of transport implications, light industrial activities usually require access to a main road for heavy goods vehicles. Larger B1 developments, especially office uses, can generate high levels of car traffic and road congestion, and therefore should be conveniently located for public transport. This will ensure that the jobs created are accessible to people who do not have the use of a car whilst offering car users the opportunity to travel by public transport; further reducing congestion and road related pollution, meeting requirements set out in PPG13 Transport. Town centres are generally well served in this regard, and are thus particularly suitable for office development (see Policy J4). 
 
B8 Distributive Industries and Trade Wholesale uses
   
J8 Distribution, logisitics, warehousing and trade wholesale activities (use class B8) will be permitted in Charlton Business Park and within Defined Industrial Areas, providing proposals do not result in the closure of a viable and significant B1 or B2 use, and providing speculative developments also offer opportunities for B1 and B2 uses including small businesses. Other environmentally acceptable locations with good trunk road access will be considered on merit, particularly where opportunities to transfer freight by rail and water are utilised (see also Policies W5 & M36-M39). 
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  Reason
2.42 The London Plan advises Boroughs to promote positive policies for distributive uses, including identifying sites and assisting in making land available. It advises sites within Preferred Industrial Locations can be suitable for B8 use.  Distribution is an industrial sector with potential for employment growth across London over the Plan period, which on average offers employment levels approaching that of manufacturing.  It is also an important logistical complement to manufacturing and other commercial activities essential for the efficient operation of the London economy.
2.43 Use Class B8 also includes trade wholesalers and ‘trade counters’.  To be acceptable on employment sites such proposals must be clearly distinguishable from A1 retailing by demonstration that a significant majority of their customers will be other businesses, and that sales to the general public would be minimal and ancillary.  Conditions may be used where appropriate to ensure retailing to the public remains ancillary.   Uses which combine wholesale and retail use will be considered individually on merit against the most relevant parts of this policy and Policy TC16.
2.44 Developments to satisfy demand from the higher value distribution sector for large, high-bay warehouses may cumulatively threaten existing businesses or constrain opportunities for other types of businesses seeking to relocate or expand.  Where Defined Industrial Area sites not last or currently in B8 use are redeveloped to include B8 uses, planning conditions or legal agreements may be applied to ensure premises are also suitable and available for B1 and/or B2 use, to protect economic diversity, meet the needs of small firms and provide a range of employment opportunities.
 
Cultural and Creative Industries
   
J9 Town Centres and Mixed Use Areas are preferred locations for Cultural and Creative industries.  Office-based activities will also be appropriate in any B1 location identified in Policy J7, and workshop-based activities in any B1 or industrial location. Other sites will be considered against the relevant Plan policies for the use proposed.   
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  Reason
2.45 Cultural and creative industries can be anything from a film and video production firm through to a small crafts workshop, a theatre or the offices of a fashion designer. Whilst such activities generally fall within Class B1 of the Use Classes Order (1987) they can include a wide range of other land uses. The Cultural Strategyfor Greenwich (2003) promotes the growth of these activities because they have the potential to play a key role in economic regeneration and expansion. Cultural and creative activities are the country's fourth largest invisible earner, employing more than 1.4 million people nationally. They are particularly important in the London context, as 80% of the nation's artists, cultural and creative activities are based in London. This concentration of cultural activity in London provides the opportunity for the Borough to draw such activities into the area and to develop a cultural industrial base. This would not only widen the Borough's economic base but would also increase the range of local job opportunities, while providing local people with access to cultural activities.
2.46 The West Greenwich/Creekside area (straddling the borough boundary with Lewisham) is recognised to be an emerging node for cultural and creative industries, a role promoted in the 2000 West Greenwich Development Framework.  The policy seeks to support this role as it is widely recognised that creative industries benefit from proximity to other creative industries.  West Greenwich and Woolwich also offer a range of commercial floorspace.   In addition, the most successful clusters tend to have access to a wider range of cultural resources including entertainment and leisure facilities.  These are typically to be found in town centres, which are generally convenient for public transport.   The policy also identifies other suitable locations, in recognition that West Greenwich/Creekside will not be appropriate or convenient for all cultural and creative industries.
   
THE WORKING ENVIRONMENT
   
2.47 This section addresses the need to encourage the development of safe, flexible and healthy working environments with high standards of layout.
 
'Bad Neighbour' Industries
   
J10 Proposals for ‘bad neighbour’ industries, in particular ‘open yard’ uses or activities generating significant emissions, will not be permitted where surrounding businesses or residential areas would be unacceptably affected, or where the activity proposed would fetter prospects for the occupation or redevelopment of underused industrial sites in the locality (see Policies E1 – E3).
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2.48 To ensure that new business contribute to rather than detract from the performance and prospects of the local economy, and to foster a healthy working environment.  Significant provision has been made for large scale ‘bad neighbour’ uses in the defined Aggregates Zone (see Policy J2), and the SELCHP facility meets Borough requirements for disposal of local non-hazardous waste (see paragraph 5.37).   Small scale processing or recycling of locally produced non-hazardous waste or to provide materials for use in the local area may be appropriate in environmentally acceptable locations (see Policy E14). 
 
Home Working
   
J11 Home working for business purposes will normally be supported.  Planning permission for change of use may be required if there is a significant intensification of business use, and will be refused if the proposal would  generate visitors, traffic, noise, vibration, fumes or other impact significantly above levels that would be expected from residential use alone, to the extent that it would demonstrably harm the amenity of nearby residents.
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2.49 Home working in part of a dwelling where it is incidental to the residential use is not normally ‘Development’ and thus would not require planning permission.  It is a valuable source of employment for some Borough residents and is consistent in principle with the Council's planning policies, provided it does not cause a loss of housing accommodation or a loss of amenity to neighbouring occupiers.  Providing these broad principles are adhered to, the use of equipment at home for business purposes can make a valuable contribution to sustainable development by reducing work-related travel.  However, PPG4 Industrial and Commercial Development and Small Firms recognises that where the business use becomes dominant or intrusive, planning permission should be required and may be refused. Home workers are advised to seek a determination in writing as to whether or not a planning permission is required. Further guidance for Home workers on whether or not planning permission is required is set out in an Advice Note.
 
Work/Live Units
   
J12 Work/live units will normally be permitted in Mixed Use areas, and other environmentally acceptable sites not allocated for or occupied by an employment use as defined in paragraph 2.1. Work/live units must include at least 20m2 (net) of specifically designed business accommodation to standards suitable for B1 use, which will be safeguarded from change to purely residential use. 
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2.50 Work/live units are a hybrid use incorporating both business and residential areas.  Business areas should comprise at least 20 m2 (net), occupy not less than 25% of the total internal floor area, and must be clearly separable from the residential element (preferably on a separate floor). It is expected that they will include elements such as high speed information technology connections, and be constructed to commercial standards, to includes elements such as service lifts, noise insulation and ventilation, so as to be capable of  accommodating a range of B1 uses and a level of business-related disturbance that would not normally be acceptable in the use of a room for work purposes in a traditional home.  In effect, work/live units are considered to be an intermediate step between home working and use of a separate small business unit.   The ‘Live Work Network’, supported by the Office of the Deputy Prime Minister and the Housing Corporation, provide further useful advice, including a definition of ‘true live-work’ (www.liveworknet.com).
2.51 Work-live units are not considered well suited for family use, and residents should reasonably expect some amenity loss through business-related disturbance.  Conditions may be applied to mitigate or avoid potential problems on surrounding residential areas that might arise from hours of operation, use of machinery or hazardous materials, waste and emissions, and vehicular movements.
2.52 The Council wishes to safeguard and encourage the provision of suitable accommodation for start-up enterprises, and it is recognised that work/live units can offer an affordable and flexible alternative to small business units. The provision of rental work/live units, either self contained or as part of a flexible work/live ‘complex’, is a Council objective.  Accordingly as work/live units have a residential element, the provision of affordable units for rent will be sought in developments exceeding 15 units or 0.5 hectare (the threshold for affordable housing Policy H14).
2.53 However, the Council’s experience with work/live units suggests occupiers often perceive them as living space and may seek permission for purely residential use, which is contrary to their purpose and this policy.  In granting consent for work/live units, conditions or legal agreements will be used to prevent future residential use of the business accommodation, and to ensure that occupiers of self-contained units use both the residential and business floorspace, and enforcement action may follow where appropriate.   Business rates will be applicable to the commercial floor area.
2.54 Work/live applications have also been used to attempt to circumvent restrictions on residential development in areas allocated for other uses.  In line with PPG4 Industrial and Commercial Development and Small Firms, work/live units will not be permitted in Defined Industrial Areas and Charlton Business Park, to avoid the introduction of residential uses that may be incompatible with and fetter industrial operations.  Nor will they be permitted on other business/industrial sites except under conditions set out in Policy J5, to prevent the premature loss of land for dedicated industrial and business use.
   
EMPLOYMENT OPPORTUNITIES
   
2.55 This section encompasses access to employment, training for groups at a disadvantage in the labour market, and community benefits from development.
 
Quality Jobs
   
J13 The Council will resist development proposals that result in the loss without qualitatively adequate replacement of jobs suited to the needs and skills of local people, and will seek to encourage employment development which provides good quality jobs, in particular for the most disadvantaged groups in the Borough workforce.
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  Reason
2.56 The historic decline in manufacturing and industry in general has resulted in a mismatch between job opportunities and local skills. Suitable jobs for both the skilled and unskilled, traditionally employed in the industrial sector need to be both protected and promoted.  Preventing the loss of land in active employment use will help to safeguard such employment that might otherwise be lost.  Training is also an important element in eradicating this skills mismatch (Policy J12). The unskilled are becoming increasingly disadvantaged in the labour market.  As a typically low income group they are less able to move to find suitable work.  Lacking transferable skills or the means to retrain, they are less able to take advantage of new opportunities. 
2.57 Other groups of workers or potential workers are also disadvantaged when competing for work and/or suffer difficulties at work.  People with disabilities suffer from access problems, minority ethnic groups from discrimination, women from the lack of childcare facilities, and those on low incomes from the high cost and inadequacy of public transport.  Whilst possessing few powers of direct intervention, the Council will encourage employment development that assists these groups and others such as school leavers and the longer term unemployed.
 
Training and Business Support
   
J14 The Council will support the establishment of training centres, training workshops and other training provision to develop the skills of the Borough's resident workforce, and to help those facing disadvantage in the labour market.  In new developments the Council will seek to negotiate commitments or commitments and contributions to Greenwich Local Labour and Business, to provide opportunities for local job seekers, contractors and local businesses.
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  Reason
2.58 Greenwich Local Labour and Business (GLLaB) plays a central role in improving the attractiveness of the Borough as a business location to existing and incoming firms, and in providing employment and subcontracting opportunities for local businesses and residents.  GLLaB is in part financed by Section 106 developer contributions, which are sought on all major development proposals. It was established with two primary objectives. 
2.59 First, to train local people and help them secure employment, in particular groups who are often disadvantaged in the job market such as women, minority ethnic groups and people with disabilities.  For regeneration policies to be effective, the local workforce must be suitably trained to take advantage of new opportunities.  Training opportunities supported by GLLaB reduce the mismatch between available skills and skills required, and allow residents to compete for jobs in new and growing sectors of the local economy. The resulting availability of a well-trained local workforce is important in attracting new businesses, and with the constant pace of technological change the need for training is on-going.
2.60 Second, to create new business opportunities for local companies, advise local firms of contract opportunities arising from the Borough’s extensive redevelopment and regeneration projects, and raise their capacity to secure contacts and successfully deliver them.  Access to competent local firms and suppliers can assist in attracting new companies to the area.
 
Community Benefits
   
J15 In appraising employment development schemes, the Council will use planning agreements to secure community and workplace benefits as appropriate, in accordance with Policy SC2.
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2.61 Most developments normally provide benefits of one kind or another be they leisure facilities or job opportunities, but these do not necessarily meet the needs of their host communities. It is the Council's aim to maximize and channel the benefits of development towards the community on the one hand, and on the other to avoid the problems that often result from new developments, for example the intensification of pressure on existing facilities such as childcare services.  The provision of community facilities also benefits the developer. For example, the provision of workplace creches will help employers to encourage women to re-enter the workforce.  Other benefits may be sought under Policies J6 (premises and infrastructure) and J14 (training and business support).
 
Accessibility
   
J16 All employment developments, including refurbishment and conversions, should be designed to meet the needs of visitors and employees with disabilities unless demonstrably impractical.
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2.62 People with disabilities suffer higher levels of unemployment than the Borough average.  Employment opportunities are often unnecessarily restricted by the physical design of buildings, which can make access or use difficult or impossible.  Ensuring that the buildings are accessible and equipped to meet their needs will open up the range of employment opportunities available to people with disabilities.  See Policy D6.
 
 
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