• Contents
• Index of Policies
• Introduction
• Core Policies
• Housing
• Employment
• Shopping
• Transport
• Green Belt & the Countryside
• Sport & Leisure, Tourism & Community Services
• Conservation & Protection of the Environment
• Infrastructure & Resources
• Pollution Control
• Brentwood Town Centre Policies
• Implementation & Monitoring
• Appendix 1:
  Extracts from the Essex Design Guide for Residential and Mixed Use Areas
• Appendix 2:
  Vehicle Parking Standards
• Appendix 3:
  Advertisements and Shop Front Guidance: Additional Advice to Applicants
• Appendix 4:
  Access for Disabled Persons
• Appendix 5:
  Miscellaneous Residential Design Guidance
• Appendix 6:
  List of Abbreviations

4.1 PPG4 “Industrial and Commercial Development and Small Firms” advises that local planning authorities, when allocating land for industry and commerce, should aim to ensure that sufficient land is available that is readily capable of development and well served by infrastructure. In addition, a variety of sites should be available to meet the differing needs of business. Business locations should be identified that minimise the length and number of trips, especially by motor vehicle, and encourage the use of more energy efficient modes of transport.

4.2 The guidance note promotes mixed-use development through the location of acceptable industry and commerce, particularly small-scale, within primarily residential areas, but advises on the need to separate potentially polluting industry or other uses which may be detrimental to amenity from sensitive land uses.

4.3 The Replacement Structure Plan seeks to ensure that sufficient employment land is available to meet the needs of business, industry and warehousing enterprises, both to assist local businesses to expand and to attract inward investment. Key objectives of the RSP are to promote urban areas as the main focus for economic development and to redress economic disparities across the Structure plan area.

4.4 With particular respect to Brentwood, the RSP recognises that, despite the considerable pressure for further economic development, the town’s established built-up character and internal movement problems limit opportunities for developing new sites within the built-up area, and that peripheral development of the town is strongly constrained by the MGB and other significant environmental constraints.

4.5 Structure Plan Policy BIW1, therefore, makes provision for a net addition of only 1 hectare of employment land in the town between 1996 and 2011. This in effect is the residual provision figure remaining from the previous Structure Plan period (1986 to 2001) and reflects the general restraint on development due to the Borough's Green Belt location.

4.6 The Community Plan’s strategic objectives that are relevant to the Replacement Local Plan Employment Policies are set out under the heading “Economic Development and the Local Economy” and includes:

“To facilitate the maintenance of a sound economic base for the Brentwood Borough, by:

• Providing where possible for the needs of existing local businesses in order for them to remain viable and competitive
• Facilitating the creation of new businesses
• Facilitating the development of existing and new businesses”

To meet, as far as possible, the assessed employment needs of the Borough

• To maintain, encourage and provide, where possible, for a wide range of local employment opportunities throughout the Borough in order to minimise the need for long distance commuting to work
• To respond to and provide for, where possible, the needs of commercial and industrial enterprises to function efficiently, whilst protecting the character and the amenities of the area
• To seek to meet the service needs of the community
• To ensure that any new industrial or commercial development shall have the minimum possible detrimental impact on the environment and local amenities
• To seek, where possible, to reduce any detrimental environmental impact of existing industrial and commercial development
• To resist employment-generating uses in areas where there is inadequate infrastructure or where there is inadequate accessibility for non-car users

4.7 Brentwood's location in relation to London and the strategic road network has enhanced its attraction as a location for business. The M25, together with the A12 and the A127 provide good accessibility by road to London’s airports, and Stansted in particular, and to the ports of Tilbury and Harwich. In addition, there are good rail links into London, which has given rise to a large commuter population in the Borough. In 1991, the number of residents working outside the Borough was 18,480 (55% of the 33,770 residents in work).

4.8 The reasons for out-commuting, however, are various, and whilst chiefly stemming from the historic development of the town of Brentwood as a commuter satellite to London, also results from the imbalance between local jobs and resident workforce. In 1991, there were 28,040 local jobs and 35,914 residents of economically active age i.e. 78 jobs per 100 workers (although this was the joint sixth highest ratio in Essex and the fourth highest in terms of numerical difference). This imbalance, however, is compounded by the take up of local jobs by workers from outside the Borough. In 1991, 15,290 local jobs were filled by resident workers (55%) with 12,750 workers commuting into the Borough for jobs. There is also some mismatch between local skills and local jobs. Brentwood has a relatively highly skilled workforce with a large proportion, 46% in 1991, of the resident workforce being in the top five socio-economic groups [i.e. employers, managers, professionals and intermediate non-manual workers (compared to the Essex average of 35%)]. Many of these will be employed outside the Borough.

4.9 There will also be the draw of higher wages that some employers outside the Borough will be able to offer, particularly in the City of London. Many therefore choose to travel outside the Borough, although increasing disenchantment with commuting, both by road and car, may well encourage more people to seek employment nearer to home.

4.10 Commuting will continue to be a significant factor in Brentwood's employment structure, but, in order to achieve a more sustainable pattern of development, further efforts should continue to be made to reduce the need to commute over longer distances.

4.11 Whilst the Borough has a relatively limited industrial base, it has become an increasingly attractive centre for service-based business, such that over the last fifteen years the reduction in local jobs in the industrial/warehousing sector has been more than offset by an increase in local jobs within the service sector. Table 4.1 sets out the changes in the structure of employment in the Borough since 1991. These figures reflect the national trend over this period, with reductions in manufacturing, particularly male full-time jobs, but with an increase in female and part-time jobs in the Service sector.

Table 4.1: Employment Structure in Brentwood 1991-2001

4.12 Overlaying this general trend in the distribution of jobs between the main sectors, the total number of jobs has continued to increase during the 1990's, despite the increasing use of new technology, and Brentwood has consistently maintained a level of unemployment well below the national and county averages (Table 4.2). As set out above, such a situation does not, however, preclude the need to enhance local employment opportunities and reduce, where possible, the level of out commuting.

Table 4.2: Unemployment Rates

4.13 The pressure for further employment development will undoubtedly continue as Brentwood’s attraction as a business location grows, particularly with the completion of The Channel Tunnel High Speed Rail Link, the growth of Stansted airport, and the expansion of business with the rest of Europe.

4.14 There will also continue to be a demand for further employment provision within the Borough to respond to:

• Expansion of Existing Firms. As existing firms expand and adapt to the changing nature and space requirements of industry and commerce, they may move out of the Borough, unless such demands for additional space can be met within the Borough.
• Non-Conforming Uses. There are a number of local businesses that are located in unsuitable locations within residential areas or the Green Belt. Additional employment provision would be invaluable in opening up opportunities for the permanent relocation of such non-conforming uses.
• Demand for Small-Unit Accommodation. There is a continuing need within the Borough to provide for small starter units. At present many of these small businesses are either forced out of the Borough or locate on unauthorised sites in the Green Belt or, for example, in lock-up garages in residential areas. The Council's policy for allowing, in the right circumstances, commercial use of rural buildings (see Policy GB15) may well provide for some of this need. However, many of these small businesses would benefit from moving into purpose built units.
• Increased Local Job Opportunities. Reference has been made to the disparity between the number of local jobs and numbers of resident workers. Providing more employment locally would have social as well as economic benefits. It would be more efficient for industry and commerce, less time-consuming, stressful and costly for employees and would relieve some pressure on the transport network. Improving the relationship between place of residence and place of work is a fundamental objective of sustainable development.
• Future of the City of London. Relatively high levels of rental in the City, congestion, problems of commuting into London and advances in communications technology are all likely to encourage further businesses to look outside the City for floor space.

4.15 However, the potential for further employment development is constrained by the Borough's Green Belt location and the lack of available employment land. Whilst there is limited provision for additional employment land in the Replacement Structure Plan, additional employment opportunities have and can potentially continue to be provided through better use of existing employment land and the change of use/redevelopment of previously developed land. Significant numbers of new jobs have been provided as a result of, for example, the new British Telecom office development on the former St. Faith’s Hospital site in London Road, and will be provided on the Kings Road office site.

4.16 Many applications for development on industrial estates are for mixed uses such as manufacturing, storage and offices. Increased use of micro-technology is blurring the definition of uses and furthermore, the Town and Country Planning (Use Classes) Order 1987, includes light industrial uses, research and development and offices within the same Business Use Class (B1), allowing changes of use between each without requiring permission and indeed the change of use from B2 (General Industry) to B1 and from B8 (Storage and Distribution) to B1 (subject to certain limitations). For this reason, the Plan allocates areas for “general employment” purposes, where mixed uses may be acceptable subject to certain important provisos. Major office uses will be directed to areas allocated specifically for offices uses, particularly in town centre locations with good accessibility to public transport. Within the general employment areas, the suitability of a site for either manufacturing or warehousing/distribution uses will be determined, inter alia, by their particular location/transport requirements, and B1(a) use will generally be acceptable where ancillary to other employment uses.

4.17 The Council will be seeking to retain the Borough's existing employment base and where possible widen the range of local job opportunities to give resident workers a greater choice locally. In addition, the Council will seek to provide for the expansion of local firms and small "starter" units. New small businesses spring up regularly. For the small firm, particularly those concerned with service activities such as car repair, suitable premises are rarely, if ever, available in the Borough. At present, many small enterprises wanting space less than 100 sq. m are either forced out of the Borough or use redundant non-conforming sites or domestic properties as the only alternative.

4.18 Due to the limited provision for additional employment land it is important to retain existing local employment opportunities and, therefore, existing employment areas and sites will be retained for B1, B2 and B8 uses. However, there are other uses that can be appropriately located within such areas, e.g. vehicle showrooms and vehicle repairs. Such uses will be considered within such areas where it can be shown that they would have no significantly detrimental impact on the existing provision of or the capacity for additional B Class uses. In order to retain the viability and vitality of existing shopping areas, A1 uses will continue to be resisted.

4.19 In addition, government policy guidance encourages the development of mixed-use residential/commercial developments in order to promote more sustainable land use patterns. It is considered that the introduction of residential uses within the Borough’s main employment areas would not be appropriate, both in terms of retaining the level of employment opportunities within such locations and in terms of residential amenity issues. However, there may be scope on more “free-standing” employment sites for the development of mixed residential/employment uses, if it can be shown that there is no reasonable expectation of development solely for B Class uses going ahead and that the existing level of employment opportunities is retained.

A Target and Indicator for monitoring this policy is set out in Chapter 13

4.20 Brentwood is a highly sought after office location and has been successful in attracting major companies such as Ford, British Telecom, Amstrad, Standard Life and International Financial Data Services. Brentwood is, however, not a major office location within Essex. The Replacement Structure Plan identifies the sub-regional centres of Basildon, Southend, Chelmsford, Colchester and Harlow as the appropriate location for large-scale office development (more than 4,000 sq. m.). Further office development, therefore, will continue to be restricted to those areas currently used or allocated for offices.

4.21 In the town’s central areas (Brentwood Town Centre, Shenfield Shopping Area, Brentwood Station Area) and Ingatestone High Street, offices are commonly found occupying an area or buildings with other uses, such as shops, community uses and residential. These other uses provide for essential local services in areas accessible by a choice of means of transport and add to the attraction and activity in these central areas. It is important that a mix of such uses continue to be provided in these central locations and, in view of this, permission for further offices will be not be granted, within those areas allocated for community/offices, shopping/offices, or residential/office/shopping where the proposal would result in the loss of these other uses.

4.22 The new BT office building has been built on the former St. Faith’s hospital site, which was within the Metropolitan Green Belt. In considering development of the site, therefore, regard was had, amongst other things, to the footprint of the original building and the impact of development on the green belt. It is also a very prominent site on a major road into the town centre and the open, maturing, landscaped character of the London Road frontage to the site is an important element of both the layout of the development itself and the character of this part of the town. The site is now proposed to be included within the urban area, but in order to retain this attractive open feature, any further development will only be permitted on the site if it retains the existing open and landscaped frontage to London Road.

4.23 The RSP provides for 1 hectare of additional employment land over the period 1996 to 2011. The available supply of land for additional employment purposes over this period is as follows:

1) Land Adjacent the Council's Depot, Warley

Some 1 hectares of existing employment land remains undeveloped to the east of the Council’s Highways Depot, The Drive, and north of the Marillac Hospital. This land remains available to meet the RSP provision figure, possibly in conjunction with the redevelopment of adjacent employment allocated land (see Policy E5). The site’s location within the urban area of Brentwood means that it is currently accessible by a variety of transport modes, and with potential for improvements.

2) Hallsford Bridge Industrial Estate, Stondon Massey

The Council owns some 0.6 hectares of land to the southeast of the existing industrial estate, which is currently being disposed of to an adjacent occupier. Due to its remote location, the site has accessibility issues, but only has a small capacity for additional buildings and is likely to facilitate expansion of existing occupiers.

3) Childerditch Industrial Park

Scope still exists for some limited new buildings within the area of this estate allocated for general employment purposes (see Policy E6). However, due to its remote location, the site has accessibility issues.

4) West Horndon Industrial Estate

Planning permission was granted in outline in 1989 for the refurbishment of some 10 hectares of land within the area allocated for employment purposes of which 1.4 hectares had previously been undeveloped, used for open storage purposes, and remains available. Accessibility by different transport modes is good. West Horndon has a rail station on the Southend to London (Fenchurch Street) line and bus services into Brentwood.

A Target and Indicator for monitoring this policy is set out in Chapter 13

4.24 This site of approximately 1 hectare is owned by the Council and is located immediately to the east of the Council's Highways Depot and consists largely of an area of scrubland used for the deposit of road sweeping spoil. Access to the land is constrained and development may be achieved in conjunction with the adjacent Council owned land, also allocated for employment purposes. The land is located within the main urban area and is easily accessible by a choice of transport modes.

4.25 Any development would clearly need to take into account both Barrack Wood, a County Wildlife Site, along the eastern boundary, and the Marillac Hospital, immediately to the south of the site, and in particular there would need to be a substantial planting screen along this boundary. In this regard, development for Class B2 and B8 uses is considered inappropriate.

4.26 The Childerditch Industrial Park was formerly occupied by a concrete manufacturing company, which commenced operation prior to the introduction of effective planning control. The eastern part of the site has a number of industrial buildings, many of which emanate from the origins of activity on the site, but have since been refurbished. The western part of the site was an area used over many years for the disposal of concrete waste and the storage and curing of concrete products. Planning permissions have been granted over the years for either open storage uses or buildings, dependent generally upon their location within the eastern or western parts of the site.

4.27 In the light of this planning history, the Plan allocates the eastern built-up part of the site for employment purposes and the open western part of the site for open storage purposes. There is pressure to extend the current built up part of the site onto the open part, but this is to be resisted. This is the only area within the Borough allocated to specifically meet the demand for open storage uses, and is a preferable alternative location for such uses to other more sensitive Green Belt areas. Additional buildings outside the areas allocated for industrial uses will, therefore, only be permitted if ancillary to the open storage area.

4.28 The site is situated on a plateau in an elevated position on the rising ground forming part of the Thames Valley. Although it is screened on the southern and western boundary by existing agricultural buildings and landscaping, it can be seen from the surrounding Green Belt area. It is also located within a Special Landscape Area and the Thames Chase Community Forest. In order to lessen the visual impact of the open storage area, a height restriction will be imposed on any new permission. In addition, new permissions will require substantial re-enforcement to the landscaping bounding the site. Although improvements have previously been undertaken to the A127 access, further improvement may be required subject to the conclusions of a transport assessment that may be required as part of any proposals.

4.29 Apart from Ingatestone and West Horndon, the smaller village settlements in the Borough have no specific employment allocation, being generally covered by an all-embracing residential allocation. The provision of local employment opportunities and services are essential to the ongoing sustainability of these village communities, which are away from the more comprehensive range of facilities in the urban area. Some local jobs and services may be achieved through the conversion of rural buildings (Policy GB15).

4.30 In addition, within the built up areas of those villages listed in Policy E7, the Council will, in exceptional circumstances and subject to strict application of the criteria set out in Policy E8, allow within the residentially allocated area, commercial activity which specifically provides for local employment needs or for a local service.

4.31 All employment development needs to be controlled in a manner that will protect the amenities of surrounding residents. The transport impacts of all proposals will need to be assessed to ensure that the transport network can cope with the level of demand and that traffic does not have a detrimental impact on surrounding residents. Parking and servicing needs to be provided within the site in a manner that does not result in problems on adjacent roads. Proposals that are likely to increase congestion or result in unacceptable levels of traffic on to roads that were not designed for such purposes will be refused. Employment development should be located in areas accessible by public transport, walking and cycling.

4.32 Industrial and commercial buildings can be of significant size and bulk and can therefore detract from the visual amenities of adjacent residents by being overbearing and unsightly. Landscaping and screening will be required in appropriate circumstances.

4.33 Industrial or similar commercial uses may give rise to significant levels of pollutants in the form of noise, fumes, vibration, smells, and other air-borne organic matter, which not only affect immediate neighbours but can carry large distances. Proposals within or near to residential areas for uses which may give rise to unacceptable levels of pollutants will need to be accompanied by an environmental impact study so that their likely effects on residents can be assessed. If such effects are judged to be unacceptable and cannot be reduced by the introduction of pollution abatement technology then permission will not normally be granted.

4.34 These and other relevant factors (for example, hours of operation) will be taken into account in determining applications for employment development both within and outside allocated employment areas. Whilst the majority of these considerations are covered in the core policies, a number of additional, more specific criteria are set out in the following Policy E8.

4.35 In addition to the identified main employment areas, there are other commercial/business uses located either within the built-up area or within the Green Belt. Most of the uses are fairly innocuous and do not give rise to any particular problems and, indeed, add to the supply of local employment opportunities. Where problems do arise, in the majority of cases the use will have established itself over a period of time and be immune from planning enforcement. Whilst the Council will continue to seek ways of dealing with problem sites, it is not suggested that action would normally be taken to force relocation. However, the Local Authority does have control over the intensification and expansion of such sites. Pressure for further development has been and will continue to be resisted and permission will not be granted for proposals that fail to meet the criteria in the core policies or Policy E8. In addition, sites in the Green Belt will be considered against Policy GB18.