Theme 2 - Core Policies 25 to 33
Cherwell Local Plan Review 2040
Chapter 3 - Theme 2: Maintaining and Developing a Sustainable Local Economy
Core Policy 25: Meeting Business and Employment Needs
3.117. Cherwell has a diverse economy with strengths in manufacturing, retail, health, and science and technology. The district is at the northern point of the Oxfordshire ‘Knowledge Spine’ linking the Science Vale Enterprise Zone and Oxford to Kidlington and Bicester. Cherwell also sits at the intersection between the Knowledge Spine and the Oxford-Cambridge Arc which is recognised as hosting one of the fastest growing economies in England.
3.118. Our key commercial centres are Banbury, Bicester and Kidlington. The rural commercial market in the district is relatively small with only limited availability of industrial or storage units.
3.119. The Housing and Economic Needs Assessment (2022) identifies a need for between 274 and 283 hectares of employment land in Cherwell over the period 2021 to 2040. Our last local plan identified a significant amount of employment land and whilst much of this has been developed there still remains substantial areas of land available. In addition, we will need to take account of other permissions in place and development that has been completed on unallocated sites. We have completed an Employment Land Review (October 2022) and we have identified a number of additional potential employment sites across the District. We may need to plan for more and would welcome your views on this.
Question 8: Should we identify further land for employment?
Question 9: We would welcome information from local businesses and landowners that would like to expand or potentially relocate. It will help inform an Employment Land Review and the further consideration of employment land needs.
Core Policy 25: Meeting Business and Employment Needs
74.8 hectares of land is identified for future development on the following strategic and retained Local plan 2015 allocations:
| Site name | Use Classes | Available Development Land |
|---|---|---|
| Higham Way – Banbury | Mixed Use B2, B8 and E(g) | 3.0 |
| Canalside – Banbury* | Mixed Use B2, B8 and E(g) | 7.5 |
| Land East of M40 J9 and South of Green Lane – Bicester |
Mixed Use B2, B8 and E(g)) | 40.0 |
| Land adjacent to Symmetry Park, North of A41 – Bicester |
Mixed Use B2, B8 and E(g) | 6.3 |
| Bicester Business Park (Bicester 4)** |
Saved 2015 LP Allocation for B1 (a) and E(g)(i) |
3.3 |
| Begbroke Science Park | Science Park - E(g) (ii) | 14.7 |
*the precise quantum of employment land at Canalside may be updated in the Publication Plan.
**Bicester Business Park is an existing 2015 Local Plan allocation with residual capacity of 3.3ha that is saved through this Local Plan.
Planning Applications for employment and business development will be supported at the allocated sites where they meet the requirements set out within the Site Development Templates shown by Appendix 3, and in accordance with the Area Strategies.
Proposals for employment-related development on unallocated sites will be supported in accordance with Core Policy 27: New Employment Development on Unallocated Sites.
In addition to the strategic allocations identified above, an allowance of 15ha is made for non-strategic employment site allocations. These will be included within the Publication version of the Plan or through Neighbourhood Plans.
Question 10: Do you have any comments on our approach of focusing employment development on strategic sites at Banbury, Bicester and Kidlington?
Core Policy 26: Development at Existing Employment Sites
3.120. We believe it is important that we protect our existing employment sites to help ensure that an appropriate level of employment provision is provided across the district.
3.121. In seeking to protect our existing employment sites, we are proposing that where a site no longer has a reasonable prospect of being used for employment purposes, applicants will be expected to demonstrate that the site is no longer viable for its present, or any other realistic and suitable, employment use. They must demonstrate that the site has remained un-sold or un-let for at least 12 months. In addition, applicants will need to provide evidence relating to the marketing of the site for its present use for a minimum period of 12 months up to the date at which the planning application was lodged. This should demonstrate that despite genuine and sustained attempts to sell or let a site on reasonable terms for employment use, they have failed to do so.
3.122. The site’s potential contribution to the local and wider economy must be considered, both currently and in the long term, taking proper account of the economic cycle and the likely future needs of the economy. The Council will need to be satisfied that the change of use of the employment site would not jeopardise the provision of sufficient employment land across the district to meet the identified need.
Core Policy 26: Development at Existing or Allocated Employment Sites
Proposals for alternative uses to B2, B8 and E(g) uses on existing employment sites must demonstrate that the site has been marketed for the current permitted employment use for a minimum period of 12 months and has remained unsold or unlet.
Where there is no demonstrable prospect of land or premises being used for continued employment use, a mixed-use enabling development which incorporates employment space should first be considered. If a mixed-use scheme is not viable, the extent to which the proposed use generates new employment will be considered.
Question 11: What are your views on our proposed approach towards development at existing and allocated employment sites?
Core Policy 27: New Employment Development on Unallocated Sites
3.123. This Plan proposes a number of employment allocations with a strong focus on Banbury and Bicester. In addition, we want to support appropriate employment development on unallocated sites across the district, where there is a demonstrable need.
3.124. More widely, we are proposing that new employment activities can be accommodated with least impact on the landscape through the re-use, conversion or adaptation of suitable existing buildings. However, there is some flexibility for new employment buildings to come forward in the rural areas if there are no suitable existing buildings available for re-use subject to certain criteria being met.
Core Policy 27: New Employment Development on Unallocated Sites
Proposals for new employment development (Use Classes E(g), B2 or B8) will be supported on unallocated sites in or on the edge of, the built-up area of Main Towns, Local Service Centres and Larger Villages, where there are exceptional circumstances, provided that the benefits are not outweighed by any harmful impacts, taking into account the following:
i. A demonstrable need for the employment that cannot be accommodated on existing allocated sites;
ii. The effect on the amenity of nearby residents and businesses;
iii. The provision of safe site access for pedestrians and cyclists and for all types of vehicles likely to visit the sites, and measures to promote the use of sustainable modes of transport where possible, and
iv. The scale, nature and appearance of the employment development on, and its relationship with, the settlement, its character and its landscape setting.
Other proposals in Small Villages and the open countryside will be considered, provided that the following criteria are met in addition to criteria (i)-(iv) above:
v. The proposal cannot reasonably be accommodated on existing employment land identified as vacant or developable, and
vi. It can be demonstrated that the proposal will benefit the local economy and will not undermine the delivery of the strategic employment allocations.
Question 12: What are your views on our proposed approach towards new employment development on unallocated sites?
Core Policy 28: Ancillary Uses on allocated Employment Sites
3.125. Providing facilities ancillary to the main business uses on large employment sites can help to make them more attractive to incoming firms and improves the quality of the working environment for employees. Ancillary facilities also help employment sites to develop sustainably by reducing the need for traffic movements.
3.126. It is important that any ancillary uses are necessary to support the main employment uses. The provision of larger scale retailing, such as food superstores and non-food retail warehouses, will not be supported.
Core Policy 28: Ancillary Uses on existing or allocated Employment Sites
Proposals for uses other than E(g) B2 and B8 business uses on allocated employment sites will only be permitted if the following criteria are satisfied:
i. The development serves the occupiers of the employment site;
ii. The use is ancillary to the main business or employment function of the wider site, and
iii. The use, either alone or combined with other existing or proposed uses, would not adversely affect the vitality and viability of any town centre or shopping centre (including local centres) or the social and community vitality of a nearby village.
Conditions may be imposed to limit the scale of the operation and to restrict the range of activities proposed or goods sold, where necessary, to ensure that the criteria set out above are met.
Question 13: What are your views on allowing ancillary uses on employment sites?
Core Policy 29: Community Employment Plans
3.127. We believe that development should deliver the greatest benefit for local communities by maximising opportunities for local employment and education. Providing jobs and training for the local community offers the opportunity to generate and share increased economic prosperity.
3.128. Community Employment Plans (CEPs) prepared in partnership with developers, the Council, and training providers can play an important role in achieving this. A CEP is an employer-led initiative which can form part of planning obligations for significant developments. The measures contained within a CEP seek to mitigate the impacts of development through ensuring local people can better access employment, skills, and training opportunities arising from development. CEPs can also help to create the proper alignment between the jobs created and a local labour force with the appropriate skills.
3.129. CEPs can also reduce the need to source employees from outside of the area, reducing the need for longer distance commuting and thus helping our commitments towards addressing climate change. CEPs can support green skills training within construction and development by identifying opportunities on site for greener apprenticeships and work placements.
3.130. We are proposing to seek the preparation of CEPs for major development. Where a CEP is required, developers will be provided with a template as a basis. Through discussion with the Council, working in partnership with the LEP, appropriate targets and outcomes for the site-specific CEP will be agreed. The CEP will then be subject to regular review and monitoring meetings with the Council. We will provide assistance to identify appropriate local partner agencies and organisations to work with and support the developer to facilitate the timely delivery of the CEP.
Core Policy 29: Community Employment Plans
Proposals for major development should demonstrate how opportunities for local employment, apprenticeships, and training would be created, and seek to maximise the opportunities for sourcing local produce, suppliers and services, during both construction and operation.
The Council will require the submission of a site-specific Community Employment Plan (CEP) for the construction and operation of significant* development sites, using a planning condition or legal agreement. The CEP should be prepared in partnership with the District Council and any other partners to deliver the agreed CEP.
The CEP should cover, but not be limited to:
i. Local procurement agreements;
ii. Apprenticeships, employment and training initiatives for all ages and abilities, and
iii. training and work experience for younger people including those not in education, employment, or training.
*Significant’ is defined in the context of this policy as sites over 1,000 dwellings or 4,000m2 of employment floorspace (Classes E(g), B2 and B8).
Core Policy 30: Rural Diversification
3.131. Diversification provides opportunities to generate additional income for rural businesses, reduces reliance on a single income stream, as well as reduce risk. It can contribute to a prosperous and viable rural economy in the rural areas. Our aim is to ensure that farm holdings can remain viable, and agricultural buildings can remain in use, without causing harm to the environment by new construction, and without increasing traffic hazards on rural roads.
Core Policy 30: Rural Diversification
In rural areas, proposals for economic activities that bring about rural diversification shall normally be permitted, providing that:
i. The development is operated as part of a viable rural business (including farm holding) and contributes to the viability of the holding;
ii. It is not detrimental to the character and appearance of existing buildings and their setting within the landscape;
iii. Existing buildings are used in preference to new buildings or extensions;
iv. Utilities and other infrastructure are available or can be provided, and
v. There is access by means of an existing road; no highway hazards are created or increased; and road improvements incompatible with the character of the surrounding area are not required.
Question 14: What are your views on our proposed approach to rural diversification?
Core Policy 31: Tourism
Tourism
3.132. Tourism is a major contributor to Cherwell’s economy with nearly 9,000 local jobs provided in the sector. In 2019, there were approximately 8.2 million visitors to the district contributing £495 million to the local economy.
3.133. The district’s attractive countryside, historic villages and market towns, and the Oxford Canal contribute to its distinctive tourism offer. It also benefits from its location between London and Birmingham and its proximity to national attractions such as Blenheim Palace, Stratford upon Avon and Warwick Castle. However, Bicester Village is the largest visitor attraction in the district with more than 6 million visitors annually.
3.134. We recognise the significant contribution that tourism makes to the wider Cherwell economy, and we want to support further sustainable tourism developments, particularly those that can demonstrate direct benefits for the local ‘visitor’ economy, and which will sustain the rural economy.
3.135. Since our last Local Plan, a number of new hotels have been built in the district and new major visitor attractions currently being developed include Bicester Motion, a major attraction based on motorsport and aviation on the site of the former RAF Bicester. A Great Wolf Resort comprising a waterpark and 498 room hotel is currently under construction at Chesterton.
3.136. Tourism also benefits local programmes of events, including the arts, sports and festivals, where local traditions can be shared with visitors, including Banbury Canal Festival and Bicester Food Festival. These activities help to build local pride and provide opportunities for new businesses, business growth and development.
3.137. As a catalyst for economic growth and employment, tourism provides opportunities for an increase in demand for businesses as well as tourist attractions for both visitors and residents. It is important to ensure tourism works to the advantage of the district by attracting and dispersing visitors to discover and experience the wide range of attractions the district has to offer and to maximise opportunities to increase the number of overnight stays, length of visitor stay, and visitor spending.
3.138. Whilst supporting proposals for new or improved tourist facilities in sustainable locations, larger new attractions, which generate significant visitor numbers, we think are most appropriately located in or adjacent to our main towns. These locations have good public transport links and support active travel opportunities. We will also apply a town centre first approach for other visitor facilities, including for hotels and restaurants although other locations maybe acceptable taking into account specific locational and functional requirements.
3.139. In our rural areas visitor-related facilities may offer benefits to existing local communities, such as supporting local food producers, shops and pubs, or new recreational opportunities. Locating new visitor related development within or close to existing settlements will enable the potential wider community benefits to be realised whilst minimising the spread of development into the open countryside. In some cases, tourism development in the open countryside may be justified if associated with a particular countryside attraction or a farm diversification scheme. Existing buildings should be utilised wherever possible although replacement buildings should be considered where this would result in a more sustainable development.
3.140. There are a number of camping and touring caravan sites throughout the district. New or extensions to existing sites will need careful consideration to minimise visual or environmental impacts. Wherever possible, existing buildings should be used for associated facilities, such as club houses and shower blocks.
3.141. The location, scale and design of any new visitor related development must be appropriate to the area and its environmental impact will be carefully assessed and weighed against any economic and community health and wellbeing benefits. Where tourist accommodation is proposed in locations where new dwellings would not normally be permitted, we will impose planning conditions or require legal agreements restricting buildings to holiday accommodation use.
Core Policy 31: Tourism
New tourist and visitor facilities, including hotels, will be supported in accordance with the ‘town centre first’ principles and should be located within or adjacent to town or service centres and reuse appropriate existing buildings wherever possible.
New tourism and visitor facilities will also generally be supported in villages and the open countryside where they:
• Have a functional linkage with a specific countryside attraction;
• Secure the diversification of an agricultural enterprise;
• Complement the rural character of the area and deliver comprehensive long term recreational access, community or nature conservation benefits;
• Are unable to be reasonably located within or close to a town or service centre by the nature of the facility.
Question 15: What are your views on our proposed approach to tourism development?
Core Policy 32: Town Centre Hierarchy and Retail Uses
Town Centres and Retail
3.142. Retail is very important to the local economy, being one of the top employers in Cherwell. Retail premises make up nearly a fifth of Cherwell’s business floorspace and from 2000 to 2019 Cherwell experienced a 36% growth in retail floorspace (89,000m2), performing strongly when compared to retail growth in Oxfordshire, and England.
3.143. In particular, Banbury and Bicester Town Centres, and to a lesser extent Kidlington village centre, are the main focus for shopping, commerce, leisure and other facilities serving Cherwell’s communities, businesses and visitors. They also play an increasingly important role as places to live.
3.144. However, notwithstanding recent growth, in common with many town centres across the country our urban centres have come under pressure in recent years, particularly with competition from other centres, and the shift to online retailing, which has been accelerated by the pandemic.
3.145. We are committed to supporting our town centres and to enhancing and strengthening their vitality and viability. In doing so we also recognise the important role that further residential development, in appropriate town centre locations, can play in strengthening vitality and viability in the longer term.
3.146. In addition to our traditional high streets, there are also significant retail provision at out of centre locations, particularly at Banbury and Bicester. Many residential areas across the district are also served by small parades of local shops, restaurants and other community-based facilities.
3.147. Cherwell is home to Bicester Village Outlet Centre. Bicester Village is the district’s most visited tourist destination. The Council recognises the role Bicester Village performs in the local economy and will continue to support its role as a major national and international destination, whilst at the same time ensuring that the vitality and viability of Bicester Town Centre is enhanced and protected.
3.148. In our villages and rural areas local shops provide a vital service for local communities and contribute significantly to their sustainability. The Council will seek to resist the loss of these vital local facilities.
3.149. In order to fully understand the retail and leisure development needs of the district, we commissioned a Town Centre and Retail Study in 2021. This study concluded that there was an over provision of comparison retail floorspace, in both Banbury and Bicester, and that overall, there was no additional need for comparison or convenience floorspace across the district up to 2040. The study also concluded that any further out of centre expansion to Banbury or Bicester’s comparison fashion offer would be seriously detrimental to the vitality and viability of each of the town centres.
3.150. We are proposing that new retail development will continue to be focused on our town centres and all new development will be required to be built to high design standards. Town centre uses are those defined by the NPPF and include retail, leisure, cultural and community uses. We will also support the role that new restaurants and cafes can have in attracting people into our town centres and we will support uses that contribute to the evening economy in appropriate locations.
3.151. Based on the conclusions of the 2021 Town Centre and Retail Study we will resist further major out of centre retail development, due to the impact on the vitality and viability of our urban centres, particularly Banbury and Bicester.
3.152. We will continue to work with our local communities and other stakeholders to promote and enhance the attractiveness of our urban centres. Particular priorities highlighted by the Town Centre and Retail Study include the need for improvements to the public realm, accessibility, signage, publicity and design.
3.153. Outside the main shopping centres of Banbury, Bicester, Kidlington and Heyford Park, local shopping requirements are met by a number of local shopping centres. These provide for the day to day convenience shopping needs of the population and complement the range of shopping facilities offered by the main centres.
Core Policy 32: Town Centre Hierarchy and Retail Uses
The Council will promote the continued role and functions of its town/urban centres to positively contribute towards their viability, vitality, character and public realm. The hierarchy of centres in the district is:
- Main Towns (Town Centres): Banbury, Bicester
- Local Service Centres (Local/Village Centre): Kidlington, Heyford Park
The boundaries of the Town Centres’ and their respective Primary Shopping Areas are defined on the Policies Map and by Appendix 10.
To ensure the long-term vitality and viability of the Town Centres, the Council will apply a ‘town centre first’ approach to retail, services and other main town centre uses in accordance with the established hierarchy of centres.
Retail and other ‘Main Town Centre Uses’ will be directed towards these centres. Where such uses are proposed outside these centres the Council will apply the sequential approach as set out in the NPPF.
Where planning permission is required for any retail or leisure proposal outside these centres, they will be subject to an impact assessment, appropriate to the use. In Banbury, the threshold for such an impact assessment is over 2000m2 (gross), 1500m2 (gross) in Bicester and 350m2 (gross) elsewhere.
The Council will support the provision of new local centres containing a small number of shops of limited size within the allocated strategic housing sites set out in this Local Plan and as specified within the Indicative Site Development Templates (Appendix 2).
The Council will support proposals for new small shops or extensions to existing shops within or adjacent to existing settlements that are required to serve local needs.
Question 16: What are your views on our proposed approach to retail development and town centres?
Core Policy 33: Primary Shopping Areas
3.154. Several changes to the Permitted Development Rights affecting change of use to and from retail have been introduced. Where prior approval is needed, the Council will interpret ‘key shopping areas’ referred to in the General Permitted Development Order as being designated Primary Shopping Frontages.
Core Policy 33: Primary Shopping Areas
Where planning permission is required, proposals resulting in the loss of an E Class Use at ground floor level within a primary shopping area must demonstrate that:
i. The unit has been proactively and appropriately marketed for at least 12 months and it has been demonstrated that there is no longer a realistic prospect of the unit being used for E Class uses in the foreseeable future;
ii. The proposal meets the needs of residents within the local neighbourhood, and
iii. The proposal will not have an adverse impact on the vitality and viability of the centre as a whole.
Question 17: Do you agree with the town centre and primary shopping frontage boundaries shown on the plans?
Question 18: Do you agree that only within the primary shopping frontage area E use classes should be protected?
Development Policy 2: Outdoor Markets
3.155. Outdoor markets add to the vibrancy, social value and character of our towns and villages. Cherwell’s markets are well established and popular with local communities and visitors and help support local businesses. However, if poorly designed and managed they can cause harm to surrounding areas in terms of congestion of local roads and pavements, generate rubbish storage and noise issues, and impact on access and accessibility.
3.156. We wish to see all of the outdoor markets in the district continue to thrive and will encourage a coordinated approach to their development and management.
Development Policy 2: Outdoor Markets
Proposals for new off-street permanent street markets, car boot sales, and temporary markets will be supported provided that:
i. The scale, nature, and location would not harm existing shopping facilities or markets located within town centres;
ii. There would not be an unacceptable impact on local amenity or the general environment;
iii. Adequate provision is made for traders’ parking, deliveries and servicing, set-up and storage of stalls, power supply and storage and disposal of refuse, and
iv. There would not be an unacceptable impact on traffic flow or increase in traffic congestion in the area.
We will seek to maintain, and support the enhancement of, existing outdoor markets within the district. Developments that would adversely affect existing outdoor markets will not be permitted.
Where construction of a development could adversely affect an outdoor market, applicants should assess this impact and propose mitigation measures to ensure the outdoor market can continue to operate.
Development Policy 3: Shopfronts and signage
3.157. Outdoor advertisements and signs can impact on amenity and public safety, and therefore sometimes require advertisement consent. Well-designed signs and advertisements will integrate well with buildings and the character of an area as well as meeting the commercial need for the advertisement. However, obtrusive designs and inappropriately sited signs and advertisements can cause clutter and have a detrimental effect on visual amenity or on the character of an area, particularly in Conservation Areas.
3.158. The Council will ensure that new or changed shopfronts that require planning permission (or listed buildings consent) and adverts and signs that require advertisements consent are of a design, size and materials that complement the character of the host building and the surrounding public realm. Compromises may need to be made to ‘corporate’ designs in particularly sensitive areas to meet the requirements of the policy. For example, internally illuminated box fascias and projecting signs will not generally be appropriate in Conservation Areas.
Development Policy 3: Shopfronts and Signage
Proposals for new or altered shopfronts and advertisements, where consent is required, will only be permitted where the design, positioning, materials, colour, proportion and illumination are not detrimental to heritage significance, or visual or residential amenity. In particular:
i. The design should respond to, and positively contribute to, the character and design of existing buildings and surroundings;
ii. Public accessibility and safety should not be prejudiced;
iii. Visual pollution and clutter should be avoided, and
iv. Historic shop fronts should be retained.