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Chapter 7 - EMPLOYMENT

7.1 INTRODUCTION

7.1.1 Policies in this Chapter relate to employment uses which are defined as comprising the following use classes:

• B1 (such as offices, research & development, light industry);
• B2 (such as general industry / manufacturing);
• B8, (warehousing & distribution); and
• Closely related uses not falling within a use class - Sui Generis (such as haulage yards, bus garages and MOT testing stations), but which are commonly found in industrial estates. Car sales are not an employment use, but may be ancillary to car repairs.

7.1.2 Employment in other service industries is subject to policies elsewhere in the Plan. For example, the development of retail employment in the Borough is dealt with in the Town Centres and Shopping Chapter and employment in hotels in the Tourism, Entertainment and the Arts Chapter. For these other activities the service provided and its accessibility to customers are the defining planning issues, and not simply the employment generated.

7.1.3 Developments of waste related industries are covered by policies in the Waste chapter. Development of, or close to, potentially polluting industry is covered by the special policies in the Environmental Protection chapter.

7.2 BACKGROUND

7.2.1 Brent's economy and its associated employment structure has undergone substantial change in recent years. Brent has traditionally played an important role in London's economy and particularly that of North West London providing substantial areas of land to accommodate manufacturing industry. Trends over the last 20 years, spreading far wider than Brent, have led to the loss of much of Brent's previously dominant manufacturing base. By 1994 there were 12,600 jobs in manufacturing, compared with 32,200 in 1981.

7.2.2 The Brent Economic Baseline Study of 1995 found that investment in the area was expected to be higher than the UK average due to investment in the Park Royal intermediate area (as so designated until the end of 1999). Employment in Brent was expected to increase so that by 2004 it would be around 10% higher than its lowest level in 1994. Further steady losses are expected in manufacturing but significant employment growth is expected in distribution, hotels and catering, other services and in construction.

7.2.3 The government has stated that it believes that an active and thriving manufacturing sector is vital to the success of London's economy. To this end it has launched the London Manufacturing Initiative. Increasing London's share of new "high tech" employment is important through targeting potential inward investors and through identifying sites, facilitating access and improving the environmental quality and access of employment areas.

7.2.4 The Council has made particular efforts as a planning authority, especially since the adoption of its Industrial Land Strategy in 1984, to create a degree of certainty for industrial occupiers and investors alike by protecting good quality industrial land in the Borough from the speculative effects of the intrusion into industrial areas of higher value uses such as retailing or housing.

Economic Activity

7.2.5 Employers in Brent, like many others in London, have continued to restructure their industrial activities in favour of non-metropolitan locations sometimes involving the total closure of their London factories. As redevelopment in accordance with modern standards takes place, generally with single storey buildings and higher standards of parking and servicing, lower employment densities result.

7.2.6 New firms, however, have been moving in and occupying sites within industrial and business areas. These include smaller manufacturers, especially in food processing, wholesale and production warehousing and distribution, a cluster of computer related firms in the Staples Corner area, and a wide range of generally small service sector firms, e.g. plumbers merchants.

7.2.7 There is evidence of buoyant demand for the best located industrial land and premises. The apparent strengthening of demand for industrial land that occurred in the late 1980's was undoubtedly influenced by reductions in the amount of land available for industrial development not only in Brent but also elsewhere in North West London. Substantial losses to uses such as housing and retailing have taken place in Brent: over 40 hectares (100 acres) of industrial land were transferred to these uses between 1984 and 1991.

Unemployment and Employment

7.2.8 The GLA claimant count unemployment rate in Brent in January 2004 was 6.4%, compared with a Greater London average of 4.9%, and an Outer London average of 3.7%. The rate in Brent is actually more similar to the inner London rate; 6.9%. For certain groups in the Borough the rate of unemployment is exceptional: the January 2004 male claimant count unemployment rate for two wards in the Borough (Stonebridge and Harlesden) exceeds 15% and the rate for Carlton exceeds 25%. (Comparable rates for women, because of their differing eligibility for unemployment benefit, are not available). (Source: GLA & ONS claimant count). The 2001 Census illustrates the differences in unemployment rates found between ethnic groups; “Unemployment rates for Black and minority ethnic (BME) workers across Greater London averaged 11.3 per cent - more than twice as high as rates for White groups (5.3 per cent). Within the BME population, there is a huge variation in unemployment rates. Unemployment levels were very high for Bangladeshi and Black workers. One fifth of Bangladeshi people active in the employment market were unemployed. Rates for Black groups ranged from 12.3 for the Black Caribbean group up to 17.6 per cent for the Black Other group. In contrast, Indian workers had unemployment levels (5.9 per cent) which were fairly close to those for White groups.” (Unemployment in London, An analysis of 2001 Census data, GLA, November 2003). Thus, the general unemployment rates may well underestimate the difficulties in gaining access to jobs for groups of people in the community.

7.2.9 In addition, evidence from the Census of Employment shows that the number of employees in the Borough was falling faster at the beginning of the 1990's than had previously been the case. The number of employees in the Borough declined by 18,000 over the decade 1981 to 1991, an average rate of around 1,800 jobs per annum. The results of the 1993 Census of Employment show that the pace of decline had quickened since 1991 with a reduction of 9,300 in the number of employees working in the Borough between 1991 and 1993 - an average annual rate of loss of 4,650. The 1995 Annual Employment Survey (changed from the previously mandatory census into a random survey), indicated a loss of about 2,000 jobs since 1993. However, since 1995 the Annual Employment Survey (replaced by the Annual Business Inquiry in 1999) has shown that there has been a gradual growth in employment with an overall increase of 17,500 in the number of employees working in the Borough between 1995 and 2000. There is thus a continuing need to maintain employment land levels in the Borough to support this growth.

Supply of Industrial Land

7.2.10 Changes in employment land within the Borough, comprising in total approximately 400 hectares (about 1,000 acres) have been assessed. The pattern that emerges mirrors that which is apparent from changes in employment levels. The amount of vacant land and premises in employment use increased by 22.7% between 1991 and 1996. However, a drop of 11.8 % in vacancies - from 69.2 ha in 1996 to 61 ha in 2000, demonstrates an increasing uptake of premises. Whilst Brent's traditional manufacturing industries, such as engineering, continued their decline they were replaced by a wide range of industrial and quasi-industrial uses serving the London economy. But most importantly, from the land use planning viewpoint, this process of change has resulted in fewer jobs being accommodated on redeveloped sites.

7.2.11 The Inspector at the Inquiry into Brent’s first UDP in 1993 concluded that land readily available for industrial development in PEAs (Primary Employment Areas, the previous designation for protected employment land) ‘is in short supply’. In 1997 a similar survey revealed that the land readily available for industrial development stood at around 15 hectares, less than 4% of all land in the PEAs. In respect of the Strategic Employment Areas (SEAs) and Borough Employment Areas (BEAs), (the current designations for protected employment land), Brent’s Employment Land Demand Study (December 2001), estimated that only just over 25 hectares of land was realistically available for industrial development, even though larger amounts of land were unused or underused. There has also been a relatively rapid take-up of newly released land at the rear of Central Middlesex Hospital. This provides evidence that there is strong demand for new industrial development in the Borough and in the Park Royal area in particular.

7.2.12 The restructuring of the economy away from manufacturing generally, and within manufacturing away from relatively large employers in the engineering sector to a range of smaller companies in a variety of economic activities, has brought special problems of adjustment. Undoubtedly skill mismatches have developed and the balance between male and female jobs has changed: between 1991 and 2001, the proportion of jobs held by the female population grew from 44% to 46%. Furthermore, the traditional contribution of large engineering companies in providing access for young people into skilled jobs through apprenticeships has diminished. Thus the provision of childcare and training have a key part to play in facilitating the adjustment process.

7.2.13 A feature of planning for employment since 1987 has been the introduction of the Business Use Class (B1) bringing together light industry, offices and research and development activities into one class for planning purposes (see Glossary). Subsequent changes to the General Development Order resulted in transfers of buildings and land from General Industry (B2) to the new Business Use being allowed without the need for planning permission. The direct effect of these changes, therefore, is that general industrial premises in the Borough effectively have permission for any use within the Business Use Class, including offices, although most buildings built for industrial purposes are unsuitable for conversion for office purposes. However, demand for such conversions is low and national and regional policy now allows for locational policies for purpose-built offices.
Brent's Economic Development Strategy - Partners for Prosperity;

7.2.14 This strategy, agreed in 1995, is based upon a partnership approach to regeneration (with TECs, adjoining boroughs and regeneration partnerships) - and was one of the first in the country developed jointly with the local training and enterprise Council. It proposes projects across sectoral and geographic boundaries to maximise opportunities. It proposes a limited number of 'anchor' projects such as those relating to Wembley / the National Stadium, the North Circular Road and the creation of a high technology business park. It aims to maximise the benefits arising from international connections via Heathrow Airport and the Channel Tunnel.

7.3 STRATEGIC CONTEXT

7.3.1 National guidance on planning policy, PPG1 (February 1997), suggests that a sustainable planning framework 'should include provision for the nation's needs for industrial and commercial development'. PPG12 (December 1999) on development plans stresses the legal requirement for plans to have regard to economic considerations. A range of sites is necessary to encourage industrial and commercial development. Plans may include priorities for economic development. PPG13 (March 1994) on transport stresses the importance of opportunities for people to work near their homes in order to reduce the need to travel. Travel intensive uses (such as offices) should be located in areas with good public transport accessibility. Distribution and warehousing uses should have good access to the trunk road network and, where possible, railheads or wharves.

7.3.2 PPG4 Industrial and Commercial Development and Small Firms, (November 1992), states that development plans should contain clear land use policies for different types of industrial and commercial development and have positive policies for small businesses. In particular, it stresses that there should be sufficient land available which is readily capable of development and well served by infrastructure, with a variety of sites to meet needs (para 6). Some uses, such as residential, may be incompatible with some industrial activities, such as those which are potentially polluting - whilst in other cases commercial development of an appropriate scale might be acceptable within residential areas.

7.3.3 PPG12 (December 1999) Development Plans stresses the importance the Government gives towards promoting economic competitiveness; “The aim is to create conditions in which business can compete freely, develop and exploit new technologies and generate sustainable jobs.” (para 4.7). The guidance states that Local Authorities should; “...look to provide a range of suitable sites in their plans for industrial and commercial development which take account of the needs of existing and future businesses.” (para 4.9).

7.3.4 RPG9 (Regional Planning Guidance for the South East), March 2001, stresses the importance of allocating employment land within an overall strategy for urban renaissance. RPG3 - Strategic Planning Guidance for London Planning Authorities (May 1996), offers considerable support for the objectives that underlie Brent's UDP policies - the promotion of development suitable for B1, B2 and B8 uses. RPG3 strongly reflects the Government's concern to promote the revival of manufacturing in London. Unlike earlier guidance, RPG3 offers a geographical dimension to the planning of employment land in London. It endorses the identification by LPAC of Preferred Industrial Locations (Park Royal, Wembley Stadium, Staples Corner in Brent) and Industrial Business Parks (Park Royal and East Lane). Guidance sees the areas identified as strategic by LPAC as being those which should be promoted as destinations for major regenerating investment with preference being given to retaining them for employment uses. The Draft London Plan, June 2002, carries these designations forward. According to RPG3, other sites may be safeguarded provided this can be justified on the basis of the contribution that the employment on or associated with these sites makes to the economy of the Borough and of London as a whole and there continues to be a prospect of productive use.

7.3.5 The Economic Development Strategy for London Success Through Diversity (July 2001) will guide the future strategy of the Mayor and the London Development Agency. It contains a charter for London which sets out four priority areas: economic growth; knowledge and learning; diversity, inclusion and renewal; and sustainable development.

7.3.6 To aid economic growth the strategy has set the following role and goals:

• Supporting London's economic growth, both as a world busi-ness centre and as a balanced regional economy;
• Developing London's role as a world business centre and European business capital with multicultural diversity as one of its major strengths;
• Ensuring London continues to support a broad range of eco-nomic activity;
• Encouraging competitiveness, creativity and enterprise, particularly amongst small and medium sized enterprises;
• Modernising London's infrastructure;
• Creating new investment and land use opportunities for eco-nomic growth;
• Building on London's position as a world leader in the applica-tion of information and communications technologies; and
• Promoting and supporting the development of the social economy.

7.3.7 The Strategy also identifies the challenge for London; “Jobs and population in London have shown an overall pattern of growth since the 1980s and are forecast to continue to do so. However, this growth has not been matched by adequate investment in infrastructure or public services. London is now experiencing critical inadequacies and shortages - in transport, skills, housing and business premises.” The strategy further states that “Alongside the global city lies another city: a city of suburbs and factories. Supporting the breadth of the London economy is not an alternative policy choice to building upon London's established strengths but a complementary one.” In relation to Brent the strategy specifically states that; “The continued renewal of Park Royal as a major business area, and the realisation of the opportunity that Wembley offers as a new regeneration focus in inner west London, are also priorities.”

7.4 POLICY OBJECTIVES

7.4.1 In the light of the substantial changes affecting the local economy, and persistent high levels of unemployment among sections of the Borough's population, the objectives underlying the Council's planning policies towards economic activities and employment in the Borough are as follows:

1. To maintain existing employment-generating activities in the Borough and allow for their expansion by promoting the modernisation and regeneration of the industrial infrastructure and upgrading the environment throughout the Borough's employment areas;
2. To sustain a wide range of employment opportunities in the Borough by attracting new employment uses, particularly in the growing innovative / creative industries, and encourage the establishment of small businesses through maintaining a stock of sites at a variety of sizes and enabling the provision of a wide range of suitable premises;
3. To ensure that employment premises are accessible to the whole community by a choice of travel modes, and reduce the traffic impact of new employment development, particularly by car;
4. To ensure that where alternative uses are proposed for those employment sites that are not suited to retention in employment use, or where it is considered that the site is no longer required for employment use such as redundant or obsolete purpose-built offices, new uses are in accordance with the priorities of the plan;
5. To tackle persistent unemployment in the Borough by increasing skills training for local people through opportunities provided by development, and facilitate local opportunities for self-employment.

7.4.2 In striving to secure these objectives, the Council recognises the importance of an attractive environment and of the provision of training and childcare in generating new employment and maintaining existing jobs in the Borough.

7.4.3 These aims will be furthered not only by the policies in this Plan but through the promotion, training and premises management and development activities set out in the Council's Economic Development Plan.

7.5 BOROUGH STRATEGY

7.5.1 The Council's strategy is one of achieving sustainable economic development - as part of the overall sustainable development strategy of the plan. Above all this means making best use of the existing resources of the Borough, its locational links which can reduce the need to travel and attract investment, and the skills and abilities of its workforce. It also means creating sustainable employment that is genuinely available to local people including those suffering from social exclusion.

7.5.2 In order to achieve an effective use of land in the Borough and to minimise the conflict between employment uses and other land uses, especially residential use, the Council has developed a strategy for the development and accommodation of industrial, business and warehousing uses. Although concern to maximise employment opportunities is a major consideration, there is also a need to ensure a balanced land-use mix for the Borough, so as to minimise the need to travel, to widen the range of employment opportunities in the Borough, to ensure that jobs are not lost elsewhere and to make the Borough's economy robust to changes in the economic cycle. Therefore, comparing employment levels of an existing and a proposed development is not always looking at the full picture.

7.5.3 The Council has designated Strategic Employment Areas (SEAs), corresponding to the areas identified within RPG3 (Strategic Planning Guidance for London Planning Authorities, May 1996) which are best suited to long-term retention in industrial and related uses and appropriate for major development and redevelopment to suit the requirements of modern industry, in terms of accessibility to the Strategic Road Network, size, etc. By directing industrial activities to these areas, the Council is able to ensure that industrial and related uses are accommodated satisfactorily whilst protecting residential areas from the environmental and traffic impact of their activities.

7.5.4 The remaining main estates / areas with good access to the London Distributor Road Network are classified as Borough Employment Areas (BEAs). The different classification of sites does not primarily represent a hierarchy of importance. Rather this planning framework represents the different catchment area functions. Whilst strategic areas are important for the whole of London, Borough areas are those important to Brent. They are smaller estates which, although less well connected to the Strategic Road Network, mostly have good roads links and are often better connected to the residential areas which may provide their workforce.

7.5.5 Whilst the Strategic Employment Areas and Borough Employment Areas will continue to be the focus for major industrial activities, a number of other locations (Local Employment Sites - LESs) throughout the Borough are in industrial and other forms of employment use providing valuable local employment opportunities. These are all smaller sites in B1/B2, B8 or other employment use, and are not specifically identified on the proposals map as this classification depends on the lawful use of the site. The total area of land covered by such designations, other than very small sites of less than 0.15 Ha [1/2 an acre] is estimated at approximately 418Ha. Additionally, the Council has identified a number of other locations as being suitable for purpose-built office accommodation.


POLICIES AND PROPOSALS

7.6 GENERAL

7.6.1 The Council's policies towards industry, business and warehousing developments in the Borough are designed to achieve its objectives of making the Borough an attractive place for workers and employers alike and of widening access among Borough residents to job opportunities in the Borough. The policies aim to encourage regeneration of the borough's main employment areas for existing industrial and quasi-industrial activities and to attract new employment in the industrial, business and office sectors by ensuring that a wide range of different types of premises are available.

7.6.2 Generally a high standard of design, layout and appearance will be required. Sustaining a pleasant environment will also be promoted by the provision of adequate facilities for the disposal and recycling of waste and through landscaping schemes that provide for a continuing programme of maintenance. To ensure the availability of premises to meet the needs of a wide range of occupiers, including small businesses, developments should include varying sizes of units. The Building Regulations ensure disabled access to new buildings. Policy W8 (Criterion A) seeks to ensure the provision of adequate space for waste and recycling in development. Further, in order to help make jobs created in the Borough available to local residents, the Council will seek to negotiate agreements with developers / employers to provide floorspace for training and childcare. Such facilities can help to minimise the extent to which new development adds to existing commuting levels. All proposals for employment developments will also be considered in the light of other policies in the Plan, especially those relating to environmental quality, to the protection of green spaces and waterways, and to nature conservation. In considering applications for employment development, the Council will have regard to its guidelines on the design of employment developments, for the provision of childcare floorspace within them and on access for disabled people (SPG12, 14 and 18).

Inward Investment and Existing Occupiers

7.6.3 Where proposals relate to accommodation for named industrial occupiers, including the expansion plans of local firms, in order to support their employment activities, the Council will make every effort to accommodate their needs, including ancillary office floorspace, provided that they are compatible with the remainder of the employment area.

Small and Medium Sized Enterprises

7.6.4 Small and medium sized enterprises (SMEs) have been the major source of employment growth in most western economies in recent years. It is important that these have access to smaller properties (including small office suites) and are able to expand.

Childcare Facilities in Employment Developments

7.6.5 Rising female participation in the workforce, as well as rising numbers of male lone parents, has created an increased need for the provision of childcare facilities at places of work. This can help 'welfare to work' and a number of other national objectives. SPG14 gives special design guidance on this topic.

Access to Employment Opportunities

7.6.6 Many local firms and large retailing developments in the Borough, have not been taking advantage of under-utilised sectors of the labour market whilst at the same time there are significant numbers of young people who are unemployed and / or have low levels of achievement. Also there are high levels of unemployment amongst ethic minorities and other disadvantaged groups (including from discrimination) and concentrations in low-skilled manual and part-time work. Brent is working in partnership with the North West London TEC and training providers to improve local skills and employment opportunities and to develop a Boroughwide local employment action project (LEAP). These projects can also reduce the need to travel and therefore the environmental problems of car-based commuting.

continue to next part of Chapter 7

Foreword

Introduction

Strategy

Built Environment

Environmental Protection

Housing

Transport

Employment

Town Centres & Shopping

Tourism, Entertainment & the Arts

Open Space & Recreation

Community Facilities

Waste

INSET PLANS

Park Royal

Wembley Regeneration Area

Site Specific Proposals

Glossary

Borough-wide maps