Key to Second Deposit Written Statement text - Added text and deleted text
 

CHAPTER 9: BUSINESS AND INDUSTRY

Page 111
 
9.1 Introduction 118
9.1.4 Supporting documents 118
9.1.6 National & Regional Policy Context 119
9.1.12 The Local Economy 120
9.1.15 Regional Policy Initiatives 120
9.1.23 UDP Strategy 121
9.1.26 Aims and Objectives 122
     
9.2 Promoting Investment 122
  Policy B1: Economic Prosperity (Part I) 122
     
9.3 Portfolio of Sites 122
  Policy B2: Balanced Portfolio of Employment Land (Part I) 122
  Policy B3: Business Development Allocations 123
9.3.5 Quantitative Requirement 124
9.3.7 Qualitative Requirement 124
     
9.4 Business Expansion 126
  Policy B4: Expansion of Existing Businesses 126
     
9.5 Design Standards 126
  Policy B5: Design Standards for Employment Sites 126
     
9.6 Offices 127
  Policy B6: Offices 127
  Policy B7: Loss of Existing Offices 129
     
9.7 Warehousing 130
  Policy B8: Warehousing 130
     
9.8 Employment Areas 130
  Policy B9: Defined Business Areas 132
  Policy B10 – Redevelopment of Business Land and Premises 132
  Policy B110: Ancillary Uses in Employment Areas and Premises 135
     
9.9 Employment 135
  Policy B121: Access to Job Opportunities 135
     
9.10 Hotel and Conference Facilities 136
  Policy B132: Business Tourism, Hotel and Conference Facilities 136
  Table 9.1 Business Development Allocations 117  
 
 
   
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9.1

Introduction

9.1.1 This Chapter is concerned predominantly with land uses which fall within part B of the Use Classes Order as defined by the 1990 Town & Country Planning Act. The B Use Class covers employment development for office (B1a), research and development (B1b), light industrial (B1c), general industrial (B2) and storage and distribution uses (B8). The Chapter also considers those sui generis non retail commercial uses which have similar characteristics to Class B uses. (1) Additional guidance is given on the closely allied business and conference tourism sector.
9.1.2 Employment opportunities are increasingly being created in other Use Classes such as hospitals, educational establishments and the leisure and retail industries. Key policies relating to these sectors are contained in other chapters.
9.1.3 The Plans Business and Industry policies support a number of regional, sub regional and local strategies to which the Council is party. These include the Wolverhampton Partnership's Regeneration Strategy, the Wolverhampton Neighbourhood renewal Strategy and the implementation programmes of the Regional Economic Strategy and European Union Objective 2. Of particular significance is the Plan's ability to realise the objectives of the Wolverhampton Community Plan, the most relevant of which to this Chapter are:
 

- to contribute towards a wealth generating city by

 
o
promoting and opening up sites for business development
 
o
safeguarding existing jobs by allowing companies to expand and protecting viable employment premises from redevelopment
   
 

- to contribute towards a green city by:

 
o
encouraging the reuse of prominent empty buildings
   
 

- to contribute towards a City of communities and Neighbourhoods by:

 
o
targeting employment opportunities in areas of high unemployment and poverty to reduce the worst differences between the least well off neighbourhoods with the rest of the City
   
Supporting documents
9.1.4 A background paper has been produced to support the Plan's business and industry policies and proposals. The paper incorporates the results of several studies which have been used to inform the Plan:
 
  • Regional Employment Land Study (2001)
  • Wolverhampton Economic Prospects; a report to Wolverhampton Task Force (2001) (Prism consultants)
  • West Midlands Regional Planning Guidance Review - A Study into the future of Employment Land Provision in the West Midlands (Chesterton)
  • Analysis of enquiries to the Council and its partners for land and premises (ongoing)
  • Market Sensitive Appraisal of Industrial Land and Premises in Wolverhampton (1997) (GVA Grimley)
9.1.5 Each of these reports is available from the Council.
   
   
   
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National and Regional Policy context
9.1.6 National planning guidance is set out in a number of Planning Policy Guidance Notes (PPGs) and Regional Planning Guidance (RPG). Major changes in national planning policy since 1993 require a review of the policy approach as set out in the first Wolverhampton UDP. In particular, changes in PPG6 (1996), PPG12 (2000) and PPG13 (2001) have placed much greater weight on the importance of the planning system in promoting more sustainable patterns of development.
9.1.7 PPG 6 'Town Centres and Retail Developments' (1996) supports the protection of industrial and commercial land from retail development, especially where it can be shown to have the effect of limiting the range and quality of sites in such uses. The guidance also introduces the concept of the sequential test under which town centres are regarded as the normal location for development that attracts lots of people such as commercial offices.
9.1.8 PPG12 'Development Plans' (2000) states that in preparing development plans, local authorities can create the conditions in which businesses can thrive and prosper. Local authorities should take account of the need to revitalise and broaden the local economy, the need to stimulate employment opportunities and the importance of industrial and commercial development particularly in the growing knowledge driven sector. A range of sites suitable for existing and future businesses should be provided for.
9.1.9 The contents of PPG 13 'Transport' (2001) advises that job creating development should be in locations that offer a realistic choice of modes of transport. Office developments should be directed to areas which are or may be highly accessible by public transport. It also advises that harnessing the use of new technologies can help to reduce the need to travel.
9.1.10 Regional Planning Guidance (1998) (RPG11) stresses the need to regenerate the metropolitan areas of the West Midlands region in order to support urban renaissance and reverse historic decentralisation into the shires. It also:
 
  • Emphasises the need to diversify the economy through encouragement of growth industries, the service sector, high technology activity and inward investment
  • Advises that a range of employment sites should be offered 'to reflect the differing development needs of businesses and to give a choice in terms of size and quality';
  • Locations should minimise reliance on the car for access and should provide for the juxtaposition of employment and residential uses.
9.1.11 While draft review Regional Planning Guidance carries forward this general approach, it adopts a more sophisticated spatial strategy which promotes a series of 'high technology corridors' as the catalyst for economic diversification in the West Midlands. The Guidance also encourages development plans to facilitate the development of 'clusters' of successful and growing businesses in order to promote economic regeneration and reduce reliance on declining manufacturing sectors. Wolverhampton is identified as a key location within the Wolverhampton-Telford high technology corridor where such cluster development should be promoted.
   
   
   
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The Local Economy
9.1.12 The Business and Industry Background Paper emphasises the City's high levels of unemployment, narrow economic base and its dependence on declining industries, and correspondingly low levels of activity in 'growth' sectors.
9.1.13 The Wolverhampton Economic Prospects Report (2001) predicts significant changes to the size and structure of the local economy over the UDP period. Overall levels of employment are anticipated to contract to 2011, but this is predicted to contrasted by an increase in total output, indicating that firms will continue to invest in more efficient means of production.
9.1.14 These changes in the economy of the City are exacerbated by skill problems in the local workforce. The new jobs likely to be created in the service sector are dominated by managerial, professional and skilled technical occupations. Without significant levels of training, the local workforce will experience increasing problems in competing for new job opportunities, resulting in increased levels of in commuting.
   
Regional Policy initiatives
9.1.15 The City's economic vulnerability is reflected in and recognised by its inclusion in a wide range of European, national, regional and local funding and other initiatives. These include EU Objective 2, UK Government Assisted Area status (Tier 1 and 2), Single Regeneration Budget; and Advantage West Midlands Regeneration Zone. The UDP Strategy, as set out in Chapter 2, has been developed alongside the strategic approaches being promoted by these initiatives in order to maximise their effectiveness and provide a clear framework for investment decisions.
9.1.16 The implementation of these initiatives is underpinned by the Regional Economic Strategy (RES) produced by the Regional Development Agency (RDA) and set within the overall framework of Regional Planning Guidance.
9.1.17 The implementation of the RES is being carried forward by the 'Agenda for Action' which sets out a shortlist of priority projects. These projects range from spatially targeted initiatives to more thematic and sectoral assistance programmes. The most significant of these in terms of the land use planning system are:
 
  • Regeneration Zones
  • Sectors and Clusters
  • High Technology Corridors
9.1.18 Regeneration Zones provide the framework by which UK Government and EU resources can be targeted effectively to areas of greatest need in order to realise maximum benefit. The RES identifies six Regeneration Zones (RZ). The Walsall, Wolverhampton and South Staffordshire Regeneration Zone covers the great majority of central and eastern Wolverhampton including all the major concentrations of industrial activity in the City.
9.1.19 The RES also promotes the concept of cluster development to drive the sustainable economic development of the region by attracting growth sector organisations. Clusters are groups of companies and organisations in related industries that have economic links through, for example, trading, common skills and infrastructure, or other areas of mutual interest.
   
   
   
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9.1.20 The Agenda for Action identifies a number of target clusters that are either established (transport technologies, building technologies, food and drink, tourism and leisure, high value added consumer products); growing (information and communication technology, specialist business and professional services and environmental technologies) or embryonic / aspirational (interactive media, medical technologies). Appropriate clusters will be encouraged to locate within the Regeneration Zone and High Technology Corridors.
9.1.21 The Rover Task Force Report, published in June 2000 identified the promotion of three 'High Technology Corridors' as a means of diversifying and modernising the Region's economic base. These corridors now form a principal element of the spatial strategy of draft review Regional Planning Guidance. One of the selected corridors links Wolverhampton with Telford via the A449/M54 axis. The corridors were selected on the basis of the following characteristics:
 
  • The potential to attract and develop more high tech, high value added businesses by virtue of the presence of Universities, research institutions or property opportunities;
  • They were located in areas heavily dependent upon the automotive sector.
9.1.22 The corridor has deliberately not been tightly defined. It is more relevant to interpret it as an approach to discovering and delivering opportunities in a range of key established nodal points within the corridor, such as Wolverhampton Science Park or Wolverhampton Business Park.
   
UDP Strategy
9.1.23 The Council's ability to tackle underlying economic issues is severely constrained. The regeneration of the local economy is governed by the state of the national economy, levels of central government / EU policy and capital spending, and the actions of the private sector. However, the UDP is of crucial importance in complementing the regional policy initiatives described above, and local regeneration programmes, and can provide a clear framework for private sector investment.
9.1.24 In order to fulfil these requirements, the Plan adopts a flexible and positive policy framework. The UDP can ensure the protection of key sites and provide a good choice of sites to meet, as far as possible, the full range of business requirements. Employment growth will be promoted principally at key nodal points located on a series of three of the Strategic Regeneration Corridors; the A449 Stafford Road Corridor, the Bilston Corridor and the Wednesfield Corridor. The Stafford Road corridor is of particular importance to the implementation of the Plan's strategy. It contains a number of the City's larger employers, including the University of Wolverhampton and Wolverhampton Business and Science Parks. By virtue of its excellent communication links, high quality development opportunities and existing businesses, the corridor has the potential to attract high profile, growth sector cluster organisations and has a key role in supporting a range of initiatives in the Wolverhampton - Telford High Technology Corridor.
9.1.25 The Plan also contains policies which set out to support the growth and expansion of indigenous firms, as well as the attraction of new businesses into Wolverhampton. The Plan contains design guidance for new employment development, and seeks to ensure that local people are able to benefit from new job opportunities.
   
   
   
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Aims and Objectives
9.1.26 The policies in this Chapter aim to:
 
  • Maximise local employment opportunities and minimise economic disadvantage
  • Strengthen and diversify the City's economic base
  • Ensure that the benefits of economic development are shared by all, particularly the residents of those areas of greatest need
9.1.27 In order to realise these aims, the policies have the following specific objectives:
 
  • To enable the provision of an adequate supply of land for development and to ensure that the land identified provides a portfolio of sites to reflect the differing development needs of businesses and to give a choice in terms of size, location, quality and use class;
  • To ensure that the land identified is readily capable of development for the uses proposed;
  • To facilitate the expansion of existing businesses and promote the development of clusters of growth sector organisations;
  • To avoid the loss of existing viable employment land and premises to other uses;
  • To ensure that in terms of location, sites should contribute to reducing the need to travel and are readily accessible by a choice of modes of transport;
  • To ensure that local people, particularly in areas of greatest need are able to access appropriate new job opportunities and training programmes;
  • To ensure a high standard of design in new development in order to avoid significant detrimental impact upon adjacent land uses and create an attractive working environment
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9.2

Promoting Investment

Policy B1: Economic Prosperity (Part I)
 
The Council will seek to improve Wolverhampton's prosperity by granting planning permissions for inward investment, the establishment of new small and medium sized enterprises and the expansion or relocation of existing businesses on existing and allocated sites / buildings within the City.
   
9.2.1 Creating a prosperous and successful economy is a key objective of the Council and the Local Strategic Partnership. The Plan can help to achieve this by ensuring the protection of key sites and providing a good choice of sites to meet, as far as possible, the full range of business requirements. The Plan also provides a flexible and positive policy framework, against which planning applications for different types of business development can be assessed, bearing in mind other planning considerations
   
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9.3

Portfolio of Sites

Policy B2: Balanced Portfolio of Employment Land (Part I)
 
The Council will work towards the provision of a balanced portfolio and geographical spread of Class B employment land that is readily capable of development and well served (or capable of being served) by existing infrastructure.
   
   
   
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9.3.1 One of the key roles of the UDP endorsed in Regional Planning Guidance is the establishment of a balanced portfolio of development sites in order to assist in the process of urban regeneration.
9.3.2 Balanced portfolio means a supply of land available for development, capable of meeting anticipated market demands. It requires a diversity of sites and premises in terms of size, location, market sector and quality, the balance of which changes to reflect market requirements. The allocation and range of sites to provide this balanced portfolio is elaborated in Policy B3 and in other sectors of the Plan dealing with office and retail development.
   
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Policy B3: Business Development Allocations
 
Business Development Allocations are sites of over 0.4ha (1 acre) and available at 1 April 2002. They are safeguarded for Class B employment uses subject to Policies B6 and B8 and are shown on the Proposals Map and listed in Table 9.1.
   
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Table 9.1 Business Development Allocations
Site category Site reference Site name Size (ha)
Premium
(Regional
Investment
Site)
B3.1 Wolverhampton Business Park 8.6 (o)
    Total premium 8.6
       
Sub regional B3.2 Brook Point 8.1
  B3.3 Wolverhampton Science Park 5.2 (o)
(3.7ha net)
  B3.4 Science Park extension 2.9 (o)
  B3.5 Antar Phase 4 4.4++
  B3.6 Citadel Junction 5.7+
  B3.7 Bowmans Harbour 9.8** (2)
    Total sub regional 36.1

Good local B3.8 Planetary Road 4.4
  B3.9 Ladymoor Road 3.0+ (3)
  B3.10 Corus 4.9
  B3.11 Pendeford Business Park 0.9 (o)
  B3.12 Spring Vale 0.4
  B3.13 Stafford Road 1.0 (4)
  B3.14 Bentley Bridge 2.0
  B3.15 Former IMI works 3.7** (2)
  MU1 Former GKN site 3.8 3.2 (o - office block only) (5)
  Strategic Regeneration Area Bilston Urban Village 7.0
  B3.18 Rear IMI Marston 2.3
  B3.26 Rolls Royce 2.5++ (6)
    Total good local 33.4 34.3 (6)

Other local B3.19 Old Heath Road 0.7
  B3.20 Phoenix Road 1.5
  B3.21 Qualcast Bridge 1.5
  B3.22 Qualcast Road 0.49 (8)
  B3.23 Vulcan Road 2.3
  B3.24 Crown Works 1.5
  B3.25 Cable Street 1.2
  B3.26 Rolls Royce 2.5++ (9)
    Total other local 12.1 9.1 (10)
    Grand total 90.288.1(11)
** development could include other employment generating community uses
+ known nature conservation interest on site that should be considered in development proposals
++ compensatory provision for the loss of recreational open space required compensatory provision or commuted payment in lieu of on site provision for the loss of recreational open space required (12)
(o) development for Class B1
(a) office uses will be acceptable
   
   
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9.3.3 Policy B2 states that the Plan will allocate and seek to retain a portfolio of sufficient employment land of appropriate size and quality. The UDP employment land requirement is based upon a two-stage process:
  Stage 1 - establish minimum quantitative requirements on the basis of past build rates
Stage 2 - identify qualitative shortfalls in terms of the requirements of review Regional Planning Guidance, and the needs of the property market.
9.3.4 This approach is discussed in more detail in the Business and Industry Background Paper.
   
Quantitative requirement
9.3.5 Build rates for Class B1, B2 and B8 uses over the period since 1986/87 have equated to some 8.06.4ha per annum. Over the two most recent five yearly monitoring periods, build rates have been slightly higher, varying between 9.4ha per annum and 10.0ha per annum. Using these rates as the basis for UDP land supply would equate to between 84.675.2ha and 90.080.0ha. (13)
9.3.6 Class B employment land availability at April 20022003 comprised 90.288.1ha. This is made up of 40.038.5ha from undeveloped 1993 UDP sites carried forward, 29.328.7ha on large 'windfall' sites, and 20.9ha of land identified though the Regional Employment Land study. The City is therefore able to satisfy quantitative employment land requirements over the UDP period. (14)
   
Qualitative requirement
9.3.7 Policy PA 8 of review Regional Planning Guidance promotes a two-tier approach to defining the employment land portfolio. First tier sites are of regional significance and are made up of the following sub tiers:
 
  • Regional investment sites
  • Major investment sites
  • Regional logistics sites
9.3.8 Second tier sites are of more local importance and consist of:
 
  • Sub regional employment sites
  • Good quality employment sites
  • Other local employment sites
9.3.9 Policy B3 demonstrates that the UDP is able to provide a balanced portfolio of sites in terms of potential market sectors and geographical location. This portfolio of sites is considered appropriate to meet anticipated development requirements over the UDP period without the need to identify additional sites through the Plan process. The principal sites within each of the review RPG categories are described below.
   
   
   
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Regional Investment Sites (RIS)
9.3.10 Wolverhampton Business Park forms the City's Regional Investment Site. The site has been identified through the regional planning process as a site with the potential to help diversify the regional economy and assist in the development of clusters. The site serves the Wolverhampton-Telford High Technology Corridor and the Walsall, Wolverhampton and South Staffordshire Regeneration Zone. Wolverhampton Business Park is safeguarded for Class B1 use only and has an approved masterplan for a Class B1 business park that comprises largely office development. The Council will not permit any additional large-scale ancillary development on the site following the completion of the hotel and health club.
9.3.11 In addition to Wolverhampton Business Park, two further sites comprising 43.7ha of land within the RIS category are located to the north of Wolverhampton within South Staffordshire District as shown on Map 2.1. These sites are located at Wobaston Road (35ha) and Hilton Cross (8.7ha).
   
Major Investment sites
9.3.12 Current provision of Major Investment Sites in the Black Country is limited to the Wobaston Road site to the north of Wolverhampton and within South Staffordshire District. This site abutts the Wobaston Road RIS and is identified in the Staffordshire Structure Plan. The Structure Plan requires that the site should comprise some 50ha and be reserved for one or exceptionally two large firms within the B1 and B2 use class.
   
Regional Logistics sites
9.3.13 The Plan does not provide for a Regional Logistics site in the City. This approach is consistent with Policy PA11 of emerging Regional Planning Guidance which does not identify the Black Country as a priority location for such development. The development of Class B8 floorspace in the City will be limited to small scale proposals in accordance with Policy B8.
   
Sub regional sites
9.3.14 Sub regional sites are around 10ha in size with the potential to attract regional, sub regional and national operators. Sites are close to the strategic highway network, with good (or potentially good) public transport links well sized and attractive with the potential to meet both cluster priorities and local needs. Size and location are key when identifying such sites.
9.3.15 In Wolverhampton, the larger Wednesfield Way sites, Antar Phase 4, Wolverhampton Science Park, Citadel Junction and Bowmans Harbour have been included on the basis that they have excellent links to the strategic highway network and are thus likely to prove attractive market propositions. In particular, the proposed extension to Wolverhampton Science Park is proposed to build upon the success of earlier phases of development in attracting inward investment and indigenous high technology research and development organisations.
   
Good quality local employment sites
9.3.16 Good quality local employment sites are above 0.4ha and other large sites that may be some distance from the strategic highway network. Such sites are usually best suited to accommodating local investment needs although they are also capable of attracting small to medium sized projects from further afield. The majority of sites in Wolverhampton are within this category. Indeed, over the past 10 years the majority of employment development has taken place on such sites and has been to accommodate sub regional indigenous needs.
   
   
   
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Other local employment sites
9.3.17 Other employment sites are predominantly to meet local needs and are usually located such that they provide an important source of moderately priced land.
   
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9.4

Business Expansion

Policy B4: Expansion of Existing Businesses
 
The extension or expansion of existing businesses will be permitted providing that the proposal can be satisfactorily accommodated within the existing site or other suitable land for the purpose is available, subject to other UDP policies.
   
9.4.1 The growth and expansion of existing businesses often leads to demand for physical development. One of the key objectives of the Wolverhampton Community Plan / RZ Partnership is to encourage sustainable indigenous business growth, and the UDP has a role in supporting this objective and the many actions linked to it. Overall, it is important that expansion proposals do not lead to over intensive development of a site or premises, and that adverse consequences, for example environmental impact or traffic generation, are avoided. It may be the case that the expansion needs of a growing business are best met through relocation rather than continued occupancy of an increasingly restricted or cramped site. In this event the Council will assist wherever possible.
   
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9.5

Design Standards

Policy B5: Design Standards for Employment Sites
 
Proposals for Class B employment purposes and appropriate sui generis commercial uses should provide for adequate infrastructure and the protection of the amenity of surrounding land uses, particularly residential uses, by: (15)
 
1. Limiting proposals for land adjacent to residential areas or other noise sensitive uses to Class B1 and small scale B8 uses or other commercial uses where this would protect amenity, and imposing conditions as required to protect amenity; (16)
2. Orientating buildings and operations away from residential or other sensitive areas, and limiting door and window openings and external plant in buildings facing such areas to a minimum;
3. Providing a buffer between buildings and land used for employment purposes and residential curtilages, such buffer to include landscaping, fencing, acoustic bunding, screen planting and noise attenuation measures as required and to exclude buildings and vehicle parking and manoeuvring;
4. Incorporating a landscaping scheme which respects the site features, existing and potential, and the nature conservation value of the site, makes provision for amenity open space areas, includes perimeter screen planting and integrates with other aspects of the development;
5. Ensuring that outdoor storage areas are kept to a minimum and, where essential, that they are suitably located, properly designed and screened;
6. Providing appropriate environmental protection by ensuring satisfactory means for the disposal of trade effluent and the storage of by-products and waste awaiting disposal;
7. Incorporating pedestrian and cycle links to residential areas and existing footpaths and greenways, together with access for public transport vehicles where appropriate and including measures to improve access for employees by alternative means of transport, including Travel Plans, where appropriate (see AM7); (17)
8. Not permitting proposals where the traffic generated is likely to cause serious nuisance to adjacent uses, adversely affect the effective use of land for employment uses, or lead to a significant increase in environmental disturbance caused by heavy goods vehicle movements on the local road network.Transport Assessments may be required when appropriate, as set out in Policy AM6; (18)
9. Providing appropriate levels of vehicle parking and circulation and on-site turning space as required by Policy AM12;
10. Taking full account of the need to prevent crime and reduce the fear of crime in line with Policy D10; and
11. Minimising levels of light pollution as set out in Policy EP4.
   
   
   
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9.5.1 In considering the development control criteria to be applied to Class B employment development, it is appropriate to provide more detailed policy guidance to supplement that set out in the Design Chapter of the Plan. This reflects the importance of ensuring that the environmental and amenity aspects of employment related development are properly assessed and controlled.
9.5.2 It is important that employment and allied development can fit into the surrounding pattern of land uses without detriment, with particular emphasis placed on ensuring that residential amenity is protected through a variety of means including landscaping, use of buffer zones, building siting and use, and design and the depth of any buffer will be determined through a development brief or negotiation. Conditions may be imposed to ameliorate or reduce the impact of certain uses or processes, including restrictions on days and hours of operation, where this is justified in order to overcome potential problems or concerns for proposals adjacent to sensitive areas.
9.5.3 A number of the Principal Employment Sites listed at Policy B3 are known to include areas or landscape features of importance for wildlife or geology. Urban 'wasteland' sites can also be of great importance for wildlife and a survey and impact assessment may be required in relevant cases as set out in Policy N5.
9.5.4 In some cases, development briefs will be prepared setting out detailed development guidance for particular employment sites. Suitable car parking and operational space for servicing and manoeuvring will be required in accordance with relevant Plan policies. The design of junctions and estate access roads should be to the requirements of the highway authority.
   
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9.6

Offices

Policy B6: Offices
 
Wolverhampton City Centre, as defined on the inset map, will provide the main concentration of office employment and will be the primary location for major new office development proposals. Proposals for office development within the City Centre inset map area will be determined against the criteria in Policy SH4 and SH5, (19) and subject to any site specific policies and proposals where relevant
Office development of an appropriate scale will also be encouraged in the following locations:
  • identified key sites within the Stafford Road Corridor as listed in Table 9.1 (20)
  • within the inset maps for Bilston town centre and Wednesfield Town Village Centres in accordance with Policies SH4 and SH6 (21)
  • Other defined centres District and Local Centres (as defined on the Inset Map) in accordance with Policies SH4, SH7 and SH8 (22)
Office development in other locations will only be permitted where:
1. the development is compatible with adjacent uses and is consistent with Policy B5. (23)
2. it is ancillary to an existing or proposed production or storage / distribution use, or
3. Development will result in the retention of a building or group of buildings of architectural or historic interest and subject to Policy HE2, or (24)
3.4. there are no other suitable locations in or adjacent to a defined centre and the proposal will meet an identified local employment need as set out in Policy SH9. In such circumstances the site should be accessible by a choice of modes of travel including public transport, walking or cycling. (44)
 
   
   
   
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9.6.1 Business office uses are any of those defined in Class B1(a) of the Use Classes Order but specifically exclude those financial and professional services found in Class A2 of the Use Classes Order.
9.6.2 The 1990s has seen some decentralisation of Wolverhampton's office market, resulting in developments at Pendeford Business Park and Wolverhampton Business Park. These developments have been successful in attracting and retaining firms within Wolverhampton, particularly large-scale requirements that could not be accommodated in City Centre locations. While these sites are peripheral, existing and proposed improvements in public transport do permit a choice of modes of transport for employees. While the UDP will continue to promote appropriate development in such sustainable locations, the Plan will seek also seek to direct additional office development to the City Centre. The City Centre is accessible to the majority of the City's workforce and is the hub of the public transport system. Large-scale office development also contributes to the vitality and viability by attracting more people to leisure, retail and cultural facilities. It is envisaged that over the plan period there will be a number of opportunities for new office development within the Canalside Quarter and St Johns Urban Village. More information on specific proposals can be found in the Wolverhampton City Centre Chapter.
9.6.3 As described above, opportunities also exist for office development on key sites identified at Policy B3, namely remaining plots at Pendeford Business Park (site B3.11), Wolverhampton Business Park (B3.1) and Wolverhampton Science Park (B3.3, B3.4). These are the key sites in the Wolverhampton-Telford High Technology Corridor and will benefit from significant public transport investment over the plan period, which will enhance their accessibility. Furthermore, a number of planning permissions for offices are extant on these sites, particularly high technology and research and development.
9.6.4 Bilston Town Centre and particularly the Bilston Urban Village also have the potential to accommodate new office development given their high levels of public transport accessibility. Wednesfield Town Centre also offers the opportunity for smaller scale office development. More details can be found in the appropriate chapters of the Plan.
9.6.5 There may be some scope for small-scale office development within Wolverhampton's district and local centres provided it is of a scale consistent with the size and function of the centre (as defined in Policies SH6 and SH7) and does not detract from their primary role of providing convenience-shopping facilities and associated local services. In many instances, such provision may be limited to the reuse of upper floors. The Council will not encourage such proposals where it will detract from local amenity. (25)
   
   
   
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9.6.6 On other employment sites, the Council will resist office development unless it is ancillary to an established or proposed production or distribution use. When new development is proposed, conditions to this effect may be imposed. Such an approach is intended to steer such development to the most accessible locations and to safeguard other sites in the portfolio for more suitable employment uses. Free-standing office development on such sites will only be considered when there are no realistic options in the preferred locations and there is an identified local employment need for the types of jobs to be provided at the site. In such instances, only sites that can be easily accessed by a choice of modes of transport including public transport will be considered.
9.6.7 Office development in predominantly residential areas will not generally be considered acceptable due to traffic generation and amenity considerations. However, in exceptional circumstances, and where a building is of architectural or historic importance the Council has a duty to encourage its retention and restoration wherever possible, and office uses of such buildings may be an appropriate way of achieving this. The criteria which should be used to assess such proposals for ‘enabling development’ are set out in Policy HE2. (26)
9.6.8 The design and layout of proposals for office development must comply with planning standards, including satisfactory car parking provision and amenity considerations and the requirements of Policy B5 where relevant. (27)
   
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Policy B7: Loss of City Centre Offices
 
Proposals involving the loss of existing City Centre offices will only be permitted where:
  • it can be demonstrated that the size, location or physical characteristics design of the property render it unsuitable to modern business requirements; or (28)
  • the development and / or land use is of acknowledged strategic benefit to the functioning of the City Centre.
   
9.6.97 It is recognised that some buildings in the City Centre are no longer appropriate for office use. The reuse of obsolete office buildings, particularly for residential purposes and subject to Policy H7, will be supported if it can be demonstrated that they are no longer of a standard capable of meeting modern business requirements. The loss of modern buildings that are capable of providing good quality office accommodation, or older premises more suited to the needs of small and start up companies will be resisted. Where this is the case, the Council will consider the individual circumstances and the applicant may be required to produce market and financial evidence to justify the loss of office floorspace.
9.6.108 In addition, in exceptional circumstances, change of use or redevelopment of viable office accommodation but may be supported because the proposal is of significant strategic benefit to the role and status of the City centre. For example, major development proposals of town centre uses such as shopping in the City centre which enhance its role as a sub regional centre in accordance with Policy SH 1 may be supported. In locations outside the City Centre, proposals involving the change of use or redevelopment of offices will be determined in accordance with Policy B9.
   
   
   
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9.7

Warehousing

Policy B8: Warehousing
 
Proposals for large scale warehousing will only be permitted if it can be shown that:
1. it is essential and ancillary to local manufacturing or has demonstrable links elsewhere in the local economy; or
2. employment generation is comparable to that which could be expected to result from other forms of employment development; or
3. it is to accommodate an established Wolverhampton based distribution use.
 
   
9.7.1 Warehousing (including wholesale cash and carry uses) means those storage and distribution uses in Class B8 of the Use Classes Order. It does not include retail warehousing which is a Class A1 Use and is subject to the policies and proposals of the Shopping and Role of Centres Chapter. (29)
9.7.2 Warehousing requires a considerable site area but usually provides fewer job opportunities than similar sized Class B1 or B2 uses. The Council considers large scale uncontrolled warehousing development is not appropriate in an urban area like Wolverhampton with a limited supply of employment land.
9.7.3 It is recognised that warehousing may be complementary to manufacturing industries in Wolverhampton and, therefore, large scale warehousing may be acceptable if it can be demonstrated that it is essential to the efficient functioning of these industries. Wholesale cash and carry outlets may also serve local retailers and traders and their development on employment land may be supported.
9.7.4 Exceptionally, large scale warehousing may be acceptable if it can be demonstrated that the resultant employment levels compare favourably with those that might be expected from similar sized Class B1 or B2 employment uses. Proposals to accommodate the expansion needs of established Wolverhampton based distributors will also be considered on employment land.
9.7.5 Large scale warehousing is defined as being in excess of 4000sqm of gross internal floorspace (approximately 1ha of land)
9.7.6 The design and layout of proposals for warehouse development must comply with planning standards set out in Supplementary Planning Guidance, including satisfactory car parking provision and amenity considerations and the requirements of Policy B5 where relevant. (30)
   
   
   
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9.8

Employment Areas

Policy B9: Defined Business Areas
 
In the Defined Business Areas (DBAs) shown on the Proposals Map, and subject to Policy B5, the following uses will be considered acceptable on both vacant sites and through the redevelopment of sites already in use:
  • B1 (business) subject to Policy B6
  • B2 (industry)
  • B8 storage / distribution) subject to Policy B8
  • A1 (food), A3 (food and drink) and D1 care facilities of a scale, nature and location to serve the needs of the DBA, in accordance with Policy SH8
  • Uses ancillary to the principal Class B use of the property as defined in Policy B11
On appropriate sites, Sui generis commercial uses may also be appropriate where they have the characteristics comparable with uses within Classes B1, B2 and B8 where they create job opportunities, assist the regeneration of an Employment Area or accommodate uses that cannot be located in defined centres or residential areas. Such development will only be permitted if the extent to which the area can function as an Employment Area will be maintained or enhanced. Factors to be taken into account are job creation, the availability of land for employment uses and the compatibility of the proposed use with the use of the adjacent land for employment uses.
development will be permitted for Class B employment purposes both on vacant sites and through redevelopment of sites already in use.
Proposals in Defined Business Areas, or at individual or small groups of existing employment premises not shown on the Proposals Map, for uses other than those listed above Class B employment, will not be permitted unless the requirements of Policy B10 can be satisfied. (31)
1
  • the size and physical characteristics of the site, its access from the highway network, the proximity, nature and sensitivity of surrounding land uses, the effects of traffic generated by the site on the highway network in the vicinity, and the environmental quality of the site and its surroundings make it unsuitable for continued employment purposes; and
  • the proposal would not be likely to inhibit or prejudice the activities of any neighbouring occupier or business;
or
2. the proposal is ancillary to the principal Class B use of the property as defined in Policy B10;
or
3. the site is subject to other UDP policies and proposals.
   
9.8.1 The Proposals Map identifies a series of Defined Business Areas (DBAs). [Maps 9/1, 9/2, 9/3, 9/4, 15/6] These DBAs accommodate the majority of the City's industrial activity and will continue to do so in the future. The purpose of DBAs is firstly to identify areas where Class B employment development is likely to be acceptable having regard to the criteria set out in Policy B5. For example, in some instances, the proximity of residential or community uses may preclude employment activity to Class B1 or B8 uses. The second objective of DBAs is to set criteria by which proposals for non Class B uses on existing employment sites (including those not shown on the Proposals Map) will be permitted.
9.8.2 Sites within DBAs may be appropriate for uses which serve the needs of businesses and employees working within the area. Such uses include food and drink or care facilities. Such uses should be of a scale, nature and location to serve the immediate needs of the DBA, where existing facilities are inadequate, and where the requirements of Policy SH8 are satisfied. The location and extent of the DBAs is based upon the 1993 UDP. However, these boundaries have been subject to review having regard to the nature of existing uses and the suitability of introducing alternative forms of development such as housing. This review has resulted in a number of changes to DBAs, as detailed in the Business and Industry background paper.
9.8.3 On appropriate sites, other acceptable sui generis employment uses which would otherwise be difficult to locate, such as plant / machinery hire, builders merchants or motor trade may be acceptable within DBAs. Such uses can assist the regeneration of DBAs and create jobs. In considering proposals for development account will be taken of the cumulative impact of land lost to non Class B uses, and the availability of alternative sites in appropriate locations.
   
   
   
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9.8.4 In considering whether a site or building within a DBA is suitable for a sui generis use, the Council will need to ensure that the efficient operation of industrial uses elsewhere in the DBA are not prejudiced. Permission may therefore be refused where, for example, the future industrial activity in neighbouring premises and sites could be unduly constrained; where the public may be brought into contact with atmospheric or noise pollution, contaminated and, heavy industrial traffic, etc; or where other conflicting land use patterns may be established. Proposals for change of use of modern industrial premises to non employment uses will also be resisted, due to the impact on the supply of such premises. (32)
9.8.52 The location and extent of the DBAs is based upon the 1993 UDP. However, these boundaries have been subject to review having regard to the nature of existing uses and the suitability of introducing alternative forms of development such as housing. This review has resulted in a number of changes to DBAs, as detailed in the Business and Industry background paper.
9.8.6 Over the lifetime of the UDP it is anticipated that a number of sites and premises within DBAs will become available for redevelopment as a result of a number of macro economic (structural economic changes) and micro economic factors (the changing fortunes of individual firms). In some instances, and subject to Policy B10, some of these sites will no longer be suited to continued economic activity, and other uses may be supported. These sites may make a contribution towards the provision of new homes in the City, as set out in Para 13.3.6-13.3.7 of the Housing Chapter of the Plan. (33)
9.8.3 In addition to the major concentrations of activity in the DBAs, the Council recognises that there are smaller pockets of industrial uses across the City that are vital for providing local employment and a balanced portfolio of different sizes and quality of sites. These areas are a key characteristic of the City where industrial activity sits side by side with housing and other land uses. The loss of these areas would mean that residents may have to travel increased distances to work. Among other things, these areas may provide a less expensive source of industrial floorspace.
9.8.4 If sites within the DBAs or other employment areas become available during the Plan period the Council will seek their reuse for Class B employment purposes in the first instance particularly if they have the potential to accommodate a large number of local jobs. Such employment ‘windfalls’ will make a contribution towards the City’s employment land portfolio. Similarly, a stock of available property is also needed if companies are to start up and expand. A range of sites is essential to the Council’s strategy to promote indigenous growth, and also to attract new forms of employment, including small and start up firms, to counterbalance the dependence upon declining traditional industries (34)
   
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Policy B10: Redevelopment of Employment Land and Premises
 
Proposals in Defined Business Areas, or at individual or small groups of existing employment premises not shown on the Proposals Map, for uses other than the uses set out in Policy B9, will only be permitted where the applicant has carried out an economic and market assessment which demonstrates that:
1 The introduction of alternative uses will not inhibit or prejudice the operations of any nearby occupier or business; and
2 Redevelopment will not affect the quality and quantity of employment opportunities in the area, having regard to the ability of new or continued activity at the site to contribute towards the regeneration of the surrounding area, particularly in Priority Neighbourhoods, Strategic Regeneration Areas and Strategic Regeneration Corridors; and
3 The site does not make an important contribution towards the supply of a balanced portfolio of employment land. The redevelopment of the site should not have an unacceptable adverse effect upon the range and quality of sites available for employment use in the area; and
4 Existing or potential activities carried out at the site have an unacceptable impact upon the amenity of surrounding land uses, particularly residential, or the effects of existing and potential traffic generated from the site has an unacceptable impact upon the highway network, or on the amenity of surrounding land uses; or
5 The site is subject to other UDP Policies and Proposals, or
6 The location or standard of the accommodation renders the site / premises unsuitable for continued employment use and there is no demand for such use (premises and sites being adequately marketed for an existing / potential use). (35)
 
   
   
   
   
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9.8.5 Policy B9 safeguards land and premises within Defined Business Areas for appropriate employment generating uses. In addition to the major concentrations of activity in the DBAs, the Council recognises that there are smaller pockets of industrial uses across the City that are vital for providing local employment and a balanced portfolio of different sizes and quality of sites. These areas are a key characteristic of the City where industrial activity sits side by side with housing and other land uses. The loss of these areas would mean that residents may have to travel increased distances to work. Among other things, these areas may provide a less expensive source of industrial floorspace. (36)
9.8.6 If sites within the DBAs or other employment areas become available during the Plan period the Council will seek their reuse for Class B employment purposes in the first instance particularly if they have the potential to accommodate a large number of local jobs. Such employment ‘windfalls’ will make a contribution towards the City’s employment land portfolio. Similarly, a stock of available property is also needed if companies are to start up and expand. A range of sites is essential to the Council’s strategy to promote indigenous growth, and also to attract new forms of employment, including small and start up firms, to counterbalance the dependence upon declining traditional industries (37)
9.8.7 For these reasons, redevelopment for alternative uses will only be permitted where:
  1 The use will not inhibit the operation of an existing or proposed class B use. For example, where a housing development is allowed next to an employment use, this may lead to pressure from new residents to seek to curtail or restrict the operating hours or processes at the site. Such pressure may compromise the ability of existing or new Wolverhampton businesses to compete effectively; or
  2 A business does not conform with the predominant land use, such as established industrial operations within residential areas, or otherwise creates environmental, traffic or amenity conflicts. The benefits to be gained from the removal of such businesses will need to be balanced against the wider advantages of retaining the site or premises in employment use. Mitigating measures such as sound insulation or revised access arrangements might enable a sites retention rather than change to a non employment use; or
  3 The site is subject to other UDP policies and proposals. For example, the proposed core expansion in the City Centre retail area may result in the loss of a limited quantity of employment premises. It is considered that the benefits to the overall function and role of the City Centre that will result from this development outweigh the retention of these Class B premises, or
   
   
   
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  4 Due to the location (including its accessibility by a choice of modes of transport), design or physical condition of land and buildings, and the nature of market demand for them, continued employment use is no longer viable. The economic and market assessment should provide evidence that every reasonable attempt has been made to secure reuse for employment purposes, taking account of any possible regeneration funding that may be available, and that sufficient time and effort has been expended to market the site for employment uses.
  5 Redevelopment will not affect the quality and quantity of employment opportunities in the area, having regard to the ability of new or continued activity at the site to contribute towards the regeneration of the surrounding area, particularly in Priority Neighbourhoods, Strategic Regeneration Areas and Strategic Regeneration Corridors;
  6 The site does not make an important contribution towards the supply of a balanced portfolio of employment land. The redevelopment of the site should not have an unacceptable adverse effect upon the range and quality of sites available for employment use in the area
  In many situations, particularly outside DBAs, housing development may be the best option but other uses including community facilities and open space may also be considered. Proposals for non ancillary retail or other uses more appropriately located within centres will be subject to the policies and proposals of the Shopping and Role of Centres Chapter.
  and
  applicants can demonstrate that the site is no longer suitable for continued employment use having regard to its size and physical characteristics of the site, access from the highway network, the proximity, nature and sensitivity of surrounding land uses, the effects of traffic generated by the site on the highway network in the vicinity, and the environmental quality of the site and its surroundings make it unsuitable for continued employment purposes.
  Or
  2 the use is ancillary to a principal Class B use, for example a small factory shop or creche facility. Ancillary uses are defined in Policy B10.
  Or
  3 the site is subject to other UDP policies and proposals. For example, the proposed core expansion in the City Centre retail area may result in the loss of a limited quantity of employment premises. It is considered that the benefits to the overall function and role of the City Centre that will result from this development outweigh the retention of these Class B premises.
9.8.6 In such circumstances applicants should provide evidence that every reasonable attempt has been made to secure re-use for employment purposes, taking account of any possible regeneration funding that may be available, and can demonstrate that no demand exists for land or buildings for employment in the local area
9.8.7 Where applicants can satisfy the criteria listed in this Policy, redevelopment to other uses such as community facilities, housing and other commercial uses such as vehicle sales, hire and repair premises may be acceptable. (38)
   
   
   
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Policy B110: Ancillary Uses in Employment Areas and Premises
 
Within existing and proposed employment sites and premises, proposals for ancillary uses will be supported where the proposal does not conflict with Policy B5, and having regard to:
  • the principal purpose of the business operating from the site;
  • the mode of operation and impact of the ancillary use;
  • the level and type of employment provided by the ancillary use compared with the principal use of the premises; and
  • the location and size of the ancillary use within the site as a whole.
   
   
9.8.8 Some established and proposed employment uses are hybrid in nature, including for instance elements of non Class B uses, such as factory shops, food and drink or childcare facilities. (39) In order to prevent inappropriate uses from encroaching into established industrial areas, and to protect existing and proposed employment land and premises it is important to ensure that any ancillary use is related directly to the principal purpose of the premises as a whole.
9.8.9 The extent to which the non class B use is ancillary to the principal operation of the premises will be determined having regard to the purpose of the business, the predominant use of the premises, the mode of operation and impact of such uses, and the criteria set out at policy B5.
9.8.10 In the case of retail uses it will be appropriate to limit any sales to only the products of the in situ company and planning conditions will need to be applied to restrict the area accessible to visiting members of the public. Where retail development is considered ancillary and appropriate, the sales area should not exceed 10% of the gross floorspace of the unit concerned, or 200sq metres, whichever is the least.
9.8.11 Proposals for town centre uses, as defined in Policy SH2, which are not considered ancillary to a Class B use, will be determined in accordance with the policies and proposals of the Shopping and Role of Centres Chapter.
   
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9.9

Employment

Policy B121: Access to Job Opportunities
 
When considering proposals for employment development, the provision of job and training opportunities, particularly for residents of the Priority Neighbourhoods, will be promoted and sought through, for example, planning agreements. The Council will negotiate planning obligations with the developers and occupiers of major new developments to secure initiatives and/or contributions towards the recruitment and training of local people. The training schemes should offer help particularly to disadvantaged groups, so that they may obtain the necessary skills to increase their access to job opportunities. (39)
   
9.9.1 In attracting new employers to Wolverhampton, it is recognised that people commuting from the rest of the region will take some of the new jobs. It is important, however, that the jobs created in the new and existing sectors of the economy are made available to all of the City's workforce.
9.9.2 In particular, many of Wolverhampton's industrial areas and development sites are in close proximity to 'Priority Neighbourhoods' as identified in the City's Neighbourhood Renewal Strategy. These areas form the focus for a range of public sector initiatives designed to improve problems of high unemployment, poor health, crime, low educational attainment and a poor physical environment. Although close proximity to job opportunities is important, it is not the only factor in determining employment levels. As such, a proactive multi-agency approach to secure job opportunities for residents in Priority Neighbourhoods is required.
   
   
   
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9.9.3 When new job creating development is proposed the Council and its partners will negotiate with the company to devise suitable training and recruitment programmes that benefit local people. In some instances childcare will be appropriate. This is consistent with key aims of the plan that seek to tackle high unemployment and minimise economic disadvantage. In certain circumstances, the Council may require the company to enter into a Planning Agreement (S106).
9.9.4 The Council will also support proposals which develop new employment within the community through ‘Social Enterprise’ projects. Social Enterprise projects aim to reinvest profits made into developing new employment within the community or delivering a service in the neighbourhood. These projects can play an important role in promoting neighbourhood regeneration, particularly in Priority Neighbourhoods. (40)
   
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9.10

Hotel and Conference Facilities

Policy B132: Business Tourism, Hotel and Conference Facilities
 
Proposals for large-scale hotel and conference facilities will be supported on sites within and immediately adjacent to Wolverhampton City Centre, Bilston Town Centre and defined District Centres and Local Centres of a scale appropriate to the scale of those centres as defined in Policies SH4, SH5, SH6 and SH7, and subject to Policy SH3. (41)
Proposals for hotel and conference facilities will only be permitted in other locations where the form, scale and design of the development is appropriate to the site and location and satisfies the requirements of Policy SH2. (42):
1. the development is small in scale, and
2. there are no other suitable locations in or adjacent to a defined centre and the proposal will meet an identified local need. In such circumstances the site should be accessible by a choice of modes of travel including public transport, walking or cycling.
 
   
9.10.1 Throughout the 1990s, Wolverhampton has experienced some growth in leisure and tourism and this is expected to continue during the Plan period. This sector is of benefit to both visitors and residents, providing valuable local employment and supporting and diversifying the local economy. In recognition of this, the Council has recently adopted a Tourism Strategy covering the period to 2005. The Strategy outlines actions to promote the City as a tourism location, encourage new infrastructure development and co-ordinate activity within the sector as a whole. Within the tourism sector, business tourism, defined as hotel and conference facilities, is widely acknowledged as being at the high yield end of the market. It accounts for a large number of overnight stays and a significant proportion of overall expenditure.
9.10.2 Although the sub regional business tourism and conference market has grown strongly in recent years, there is considerable scope for further development in Wolverhampton. As such, the Tourism Strategy identifies the need to promote the area as a business and conference location and encourage the development of new facilities. Research has indicated that there is a particular need for a dedicated conference venue. In accordance with Central Government Guidance contained in PPG6 and PPG13, proposals for hotel and conference facilities will be directed to defined centres or to locations that are well served by a choice of means of transport. Locations within or adjacent to the City Centre and town centres are likely to be the most suitable and are able to contribute towards vitality and viability.
   
   
   
REASONS FOR PROPOSED CHANGES
1 In response to Objection 178/787, 178/790, 178/75, 181/854, 185/896 and 188/930
2 In response to updated information
3 In response to updated information
4 In response to updated information
5 In response to objection 76/643 and 76/167
6 In response to objection 123/439
7 In response to updated information
8 In response to updated information
9 In response to objection 123/439
10 In response to updated information
11 In response to updated information
12 In response to objection 123/438
13 In response to updated information
14 In response to updated information
15 In response to objections 178/787, 178/790, 178/795, 181/854, 185/896, 188/930
16 In response to objection 84/225
17 In response to objection 94/286
18 In response to objection 177/785
19 In response to objection 181/841
20 For clarification
21 In response to objection 181/841
22 In response to objection 181/841
23 In response to objection 181/840
24 In response to objection 181/838
25 In response to objection 84/226
26 In response to objection 181/838
27 In response to objection 181/840
28 In response to objection 136/524
29 In response to objection 181/849
30 For clarification
31 In response to objections 141/580, 142/590, 181/854, 188/929
32 In response to objections 178/787, 178/790, 178/795, 181/854, 185/896, 188/930
33 For clarification
34 For clarification
35 In response to objections 74/163, 74/165, 118/402
36 For clarification
37 For clarification
38 In response to objections 74/163, 74/165, 118/402
39 For clarification
40 In response to objection 181/855
41 In response to objection 24/62
42 In response to objections 181/856, 195/938
43 In response to objections 181/856, 195/938
44 For clarification
 
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