THE ECONOMY

5.1 The strength and robust nature of the Somerset and Exmoor economy has been demonstrated in recent years by its high level of employment growth and relatively low rates of unemployment. Some parts of the economy have been experiencing significant structural change and this has had, and will continue to have, varying degrees of impact on the future performance of the economy. At a local level, in some parts of the area covered by the Joint Structure Plan, there is a high level of dependence on one employer or type of employment for the continuing prosperity of that local area. Government guidance indicates that the planning system should not interfere in the operation of market economies but that it can help to provide a degree of certainty though policies contained within the development plan.

5.2 The Joint Structure Plan provides the strategic policy framework that should help to sustain the economy of Somerset and Exmoor and foster its future development. The plan aims to ensure that future development will be more sustainable by minimising its impact on the existing built and natural environment through the strategy of focused development. To assist the strategy and a diverse economy the Joint Structure Plan will:

• ensure adequate provision of land for employment generating purposes;
• provide guidance on the location of land for business, industrial, retail, tourism and warehousing development, including opportunities for the re-use of previously developed land;
• encourage diversification of economic activities and employment opportunities particularly in rural locations and those areas that are dependant on one employer or type of employment; and
• provide guidance on the development and extraction of the mineral resources of Somerset and Exmoor.

5.3 District-wide local plans will develop these framework policies by taking into account, local economic conditions and requirements, allocating sites and providing greater detail in terms of the physical development of land.

PAST PERFORMANCE

5.4 The local economy of Somerset and Exmoor has performed well since 1971. It has seen steady growth in the number of people employed throughout the period up to 1998. The number of businesses in the plan area has also increased since 1971, although there was a gradual decline in the number of VAT registered businesses during the mid 1990s. The rate of growth in these two areas has been equal to, or greater than that of the South West region over the same timescale. This has been achieved without the benefit of a large urban centre within the plan area to act as a focus for investment and development.

FUTURE PROSPECTS

Context

5.5 The Somerset and Exmoor area is perceived to be predominantly rural in character but this is not wholly reflected in the composition of its industry structure. The area has a significantly greater proportion of its employment provided by the manufacturing sector compared with the South West region and nationally. The economy is dominated by a few very large employers and, numerous, very small businesses. This latter factor is reflected in the fact that a higher proportion of total, employed, workforce within the area is self-employed when compared with its national equivalent. Also, the rate of unemployment that has been experienced in the County of Somerset has been consistently lower than that of the South West region and nationally since 1976.

Forecasts and Projections

5.6 There is little published information on future economic performance below a regional level. Most forecasts and projections are restricted to national and regional level and can vary, depending on the base date from which they operate and the period for which the forecast or projection applies. The usual indicator of overall economic growth used in these forecasts is the annual rate of change in Gross Domestic Product (GDP) or Gross Value Added (GVA), but this is seldom disaggregated down to smaller geographical areas such as county and other types of local government administrative area level. Cambridge Econometrics conduct an annual review of economic forecasting for the regions. They suggest that, for the period 2001 - 2010, the South Wests economy will grow by 2.8% per annum compared with a national rate of 2.6% per annum for the same period.

5.7 Due to the complex network of variables that influence a local economy, it is difficult to make long-term detailed projections as to how it will perform. It also requires historical statistical data covering as long a time-span as possible and consistent in its compilation throughout. In terms of the timescale over which the Joint Structure Plan operates, economic projections have been developed based on a combination of previous trends, current known changes and expectations and, local knowledge.

Employment

5.8 The general expectations of the Somerset and Exmoor economy, throughout the Joint Structure Plan period, are that it will continue to grow but at a lower average rate than that which was experienced between 1971 and 1991. The growth will not be equal and consistent throughout the plan area. Some parts, such as West Somerset and Exmoor, will see smaller rates of business and employment increase. Other parts, such as South Somerset and Taunton Deane are expected to continue to attract development and generate employment opportunities, especially the settlements of Yeovil and Taunton that are expected to develop their respective sub-regional roles. The service sector is likely to be the main source of future business and employment generation throughout the plan area, although the manufacturing sector, particularly defence and agro-food, will continue to provide significant levels of employment within the overall economy.

Unemployment

5.9 This is expected to continue the general trend that has been experienced in Somerset alone, and remain below the regional and national rates, providing that none of the key industries experience any unexpected structural or other change. It is accepted that there will be fluctuations in the rate of employment for the plan area throughout the period up to 2011. This will reflect the changes that occur both in performance of the national economy and local factors. Due to the lack of precision that can be applied to future economic performance, at all levels, it is difficult to predict what the rate of unemployment will be in 2011. It is expected that the average rate for Somerset and Exmoor during the plan period will be about 5%. It is recognised that there will obviously be variations to this rate, at the more local level, as has occurred in the past. Unemployment in and around Yeovil has consistently been lower than the rest of the plan area throughout the 1990s, whilst the coastal settlements of Burnham-on-Sea & Highbridge and Minehead experience significant fluctuations throughout each year due to the high dependence of their economies on the seasonal tourist industry.

Occupational Change

5.10 The restructuring that has been occurring in many industrial activities over the past two decades is expected to continue although the impact, in terms of employment and occupations will vary. The composition of the Somerset and Exmoor economy, in this context, is similar to that of the South West region. Any changes that do take place in the plan area are expected to be a reflection of what is happening at a regional level. It is anticipated that there will be a continuing decline in the proportion of unskilled jobs particularly amongst manual occupations in all sectors, especially primary and manufacturing and, to a lesser extent, in some service industries. There will continue to be a loss of some types of semi-skilled occupations, particularly those related to the more traditional manufacturing activities, such as machine operators. This will partially be offset by growth in semi-skilled jobs in the service sector such as sales representatives. The biggest growth area in terms of occupations is expected to be amongst skilled specialists and craft jobs, especially those related to professional niche service and/or consultancy work and those who are self-employed.

CONSTRAINTS TO FUTURE ECONOMIC GROWTH

5.11 Although the economy of the plan area has, in general, performed well in recent years and is expected to continue to do so in the immediate future, it is difficult to predict what may happen over a longer timescale. There are a number of areas of particular concern for the future performance of the Somerset and Exmoor economy, which include:

• Whether the increasing proportion of small businesses and the employment they provide can be sustained;
• The relative dependence on manufacturing, which has been in long-term decline;
• The increasing level of part-time employment that is created;
• Whether the levels of gross and net commuting out of the plan area are likely to increase; and,
• The dependence of some towns and areas on, a limited range of industries and/or employers.

5.12 Although, during the period 1991 - 2011, the number of people in employment in Somerset and Exmoor is expected to increase, the composition of the types of industry will be expected to change. The most noticeable of these changes will be a continuation of the long-term trend of declining levels of employment in manufacturing activities. The loss in these types of employment activity is expected to be compensated by growth in service sector opportunities. Detailed forecasting over such a long period is difficult but the general expectations of employment change, at and within sector level, are given below.

Primary

5.13 Agricultural employment within Somerset and Exmoor is expected to continue to decline for the remainder of the plan period up to 2011. Many of the farm holdings in the plan area are small-scale family operations, whose individual employment levels are already at a low point, with a high dependence on casual and/or seasonal labour. The impact of reforms to the agricultural policy of the European Community and the world-wide ban on British beef in the late 1990s has seriously affected the economic viability of these smaller farm units. Some units have been forced out of business and the consequence of this has been to add to the economic and employment difficulties confronting many rural communities.

5.14 The utilities element of the primary sector is likely to see further job losses in the short-term. This will be primarily due to the effect of rationalisation initiatives resulting from privatisation of the various industries in the mid 1990s. Also, the gradual decommissioning process involving the Hinkley A, nuclear power facility will have a significant local impact during the remainder of the plan period.

Manufacturing

5.15 In common with the national trend, this sector has been in long-term decline, in terms of the numbers employed in the various types of manufacturing industry, in Somerset and Exmoor. This is expected to continue for the remainder of the plan period although the rate of decline will probably be more gradual and will be determined by the future economic performance of three groups within it.

• The agro-food industry has been experiencing internal restructuring and parts of it have been seriously affected by the problems that have confronted the cattle industry as a consequence of the BSE crisis in the late 1990s. This is expected to stabilise, although there is still the possibility of further job losses. This will ultimately be determined by whether consumer confidence in the products returns and on whether the overall meat industry is able to win back some of the market share it has lost in recent years.
  
  
• Employment in the defence and related engineering industries is expected to remain relatively static for the sort to medium-term. Beyond this timescale, future employment will be dependent on maintenance contracts and the success of the companies in winning new large orders in both the national and international market places.
  
  
• The clothing and related industry is expected to see continued employment decline due to competition from low labour-cost economies in other parts of the world. Employment by companies in Somerset and Exmoor traditionally associated with this activity are expected to continue to transfer their manufacturing operations to other locations. The local operations of these companies is likely to concentrate on administration, storage and, distribution. The decline in employment in the clothing industry through the traditional employers is likely to be partially offset by growth in the small craft related clothing businesses which concentrate on producing high quality goods for specific local and/or specialist niche markets.

Construction

5.16 The future employment levels in this industry will closely reflect local and national economic performance. In the absence of any clearly identified major construction projects within, or immediately adjoining, the plan area, much of the growth will be dependent on the level of confidence in local housing and commercial development markets. There is a high level of self-employment in this industry in the area. The Census of Population 1991, identified over 50% of employment in this industry, in Somerset alone, being self-employed. The industry is particularly sensitive to changes in economic confidence and this is likely to continue in the future.

Service

5.17 The service sector of the economy of Somerset and Exmoor is expected to see continued growth in the short to medium-term, although beyond this point it is difficult to predict due to the diverse nature of this sector. There will be significant differences in the performances of the various types of industry included within it

• Retailing is expected to continue to grow in overall employment terms with significant numbers of part-time jobs being created and much of this will most likely occur in the larger settlements. This will be in contrast to the overall number of retail businesses that will continue its long-term decline.
  
  
• The performance of the hotel and catering industry is closely related to and forms an integral part of the tourism industry. This is expected to continue to grow, but at a slower rate than in the past.
  
  
• The warehousing and distribution industries in Somerset and Exmoor are closely related to the transport industry and there is some interdependence between them. The first two are not expected to experience significant employment growth during the remainder of the plan period.
  
  
• There could be a decline in the overall level of employment in the transport industry if there is increased emphasis, incentives and capacity for the transport of goods, especially high-volume low-value goods over long distances, by rail.
  
  
• The private sector personal business industries are expected to experience slight overall growth in employment although some activities will perform better than others.
  
  
• Employment amongst the financial and banking services is expected to decline slightly over the whole of the plan period. This will primarily be due to mergers, take-overs and rationalisation initiatives by the major operators in the industry. This will affect larger settlements where there are multiple outlets. Increasing use of remote based technology, such as cash dispensers at out-of-town supermarkets and leisure facilities may also contribute to a shrinking workforce.
  
  
• Professional advice and consultancy services are likely to generate employment growth as these are significantly under-represented in most of the larger settlements in the plan area.
  
  
• Leisure orientated businesses are expected to experience significant growth but this is likely to be influenced by the performance of the tourist industry with which it is closely linked.
  
  
• Amongst the social services provided by the public and private sector, it is anticipated that the change in employment up to 2011 will be broadly neutral. Central and local government administration may see a slight decline as services are subject to scrutiny under the 'Best Value' process.
  
  
• Education and health services are likely to see some employment growth at least in the short to medium-term as a consequence of changes in the way some of their activities are organised and funded.

LOCAL ECONOMIC PROSPECTS

5.18 Amongst the Local Planning Authorities, past trends provide an indication of the rates of employment growth that could be expected in each but these are likely to vary due to the nature and potential of each economy at this level. A general assessment of the prospects of each of these economies, for the remainder of the plan period, is given overleaf.

Mendip

5.19 It has been projected that Mendip will see employment growth, during the plan period, at a rate just below the average for the whole of Somerset and Exmoor. Whilst the area is not ideally located in relation to the strategic communication corridors, it has some well-established indigenous industries including minerals and publishing. With the exception of Frome, the other four main settlements are relatively isolated from other major employment centres, therefore the loss of any major employer in any of these towns is likely to have a significant impact and is unlikely to be quickly replaced. Street and Shepton Mallet are particularly dependent on either one major employer and/or type of industry. Frome's economic prosperity will be closely linked to that of the West Wiltshire towns of Trowbridge, Warminster and Westbury. It is expected to perform an increasingly dormitory role in relation to Bath.

5.20 Amongst the main industrial activities associated with Mendip, the future employment potential of the minerals and related industry remains uncertain. The absence of major construction projects within the South-West, and in adjoining regions, generating a demand for construction aggregates, has meant that production and output has been significantly lower throughout the 1990s than in the late 1980s. There is little indication that this will change in the short to medium-term time frame. Manufacturing is a significant provider of employment in the district and this likely to remain the situation although the overall number of jobs is expected to continue its slow decline. Within the service sector, employment growth will be led by the retail and tourism industries, especially with the expansion of the facilities at Clarks Village in Street. Other service industries are expected to maintain the employment levels or experience more modest rates of growth.

Sedgemoor

5.21 The rate of employment growth in Sedgemoor is anticipated to be significantly lower than the average for Somerset and Exmoor. This can be attributed to two main factors. The decline in labour-intensive manufacturing industries operating in the area, which continued throughout the 1990s. Also, the proximity of the two main settlements, Burnham-on-Sea & Highbridge and Bridgwater, to the M.5/A.38 corridor has led to them acquiring an increasingly dormitory role in relation to their respective larger neighbours, Weston-super-Mare and Taunton. In the absence of any significant constraints on an individual's ability to travel, this trend is expected to continue.

5.22 The decline in employment in manufacturing is expected to continue for the remainder of the period up to 2011. The main employment generating activities in the future are expected to be in the service sector industries, especially tourism and warehousing & distribution. The district has been particularly successful in attracting these latter types of industrial activity in recent years but, although it has substantial requirements in terms of land, it is a low-density employment generator.

South Somerset

5.23 Economic and employment growth in South Somerset is projected to be at a similar, or slightly higher, rate than that for the whole of the plan area. The local economy for the district has performed well throughout the 1990s and this has been reflected in lower rates of unemployment in many of the towns and the area as a whole compared with the rest of Somerset and Exmoor and the South West region. The five main settlements are well located in relation to the strategic transport corridor comprising the Waterloo - Exeter railway and the A.303 Trunk Road. This provides good potential for future employment generating opportunities for businesses with links between London and the South West.

5.24 The district continues to depend on manufacturing, for employment, to a much greater extent than other parts of the plan area and this is likely to remain an important contributor to the health of the local economy. Of the main industrial activities within it, the agro-food industry has been experiencing a restructuring, the effects of which were compounded in the late 1990s by the BSE problems affecting the various elements of the beef industry. The future employment opportunities in this and related industries will be dependent on the ability of the meat industry as a whole winning back the markets that were lost during the world-wide ban on British beef. The district is also dependent on defence related manufacturing industries whose employment potential for the remainder of the plan period is at best expected to remain static or, experience a slight decline. The developing role of Yeovil as a sub-regional centre is expected to generate employment growth in much of the service sector activities. Business, financial and, professional services are considered to be under-represented in the town that acts as an important focus for an extensive rural hinterland. The retail and tourism industries are expected to see some employment growth up to 2011 but not at the same rate that was experienced in the 1980s and 1990s.

Taunton Deane

5.25 This district has experienced the greatest rate of economic and employment growth since 1971 and this is expected to continue for the remainder of the plan period. The primary reason for this growth is the location of the two main settlements, Taunton and Wellington within the transport corridor that includes the M.5 motorway, A.38 and London/Midlands to South West main railway line. Taunton is the largest settlement within the plan area and functions as an important administrative centre. The location of Wellington close to Taunton has resulted in the town increasingly performing a dormitory role in relation to its larger neighbour. The local economy has become increasingly dominated by service sector activities in recent years and this is not expected to change.

5.26 The two main urban areas in the district are expected to become the main sources of continued employment growth, particularly Taunton as it develops its sub-regional role and functions. A combination of the size of the settlement, its function as the administrative centre of Somerset and, the comprehensive range of facilities that already exist in the town, make it an attractive location for other service sector industries, especially those that are office based, such as, financial, business and professional activities. Other service sector activities that are expected to generate additional employment include retail and tourism.

West Somerset and Exmoor

5.27 Due to their relative isolation from the strategic transport corridors, the economy of these two inter-linked areas has developed much more slowly than other parts of the Joint Structure Plan area. This low rate of growth is not expected to change for the remainder of the timescale covered by the plan, up to 2011. Much of the employment growth that has been achieved in the past has been in the tourism and related industries. In the absence of any large settlements, other than Minehead, or large and accessible catchment populations for other industrial activities, the local economy will remain dependent on a limited number of industries for its future prosperity.

5.28 Agriculture makes an important contribution to the local economy and will continue to do so despite the problems that have beset the industry in the late 1990s. Employment in this industry is expected to decline over the course of the plan period and some of this may be replaced by employment initiatives in leisure and tourism activities, although the scope for such employment generators in the more remote parts of the area may be limited. The decommissioning of the Hinkley A power station will take a number of years to implement but this may have a significant impact on the economy in the eastern part of West Somerset in particular.

EMPLOYMENT LAND

5.29 The composition of the local economies within Somerset and Exmoor and their expected future performance, in terms of business and employment creation, will be influenced by the amount of suitable land for development that is made available and its distribution. The Joint Structure Plan seeks to quantify the overall amount of additional land that will be required during the plan period in three groupings of industrial activity as defined in, Town and Country Planning (Use Classes) Order 1987. These comprise; B.1 - Light Industrial and General Office; B.2 - General Industrial, and; B.8 - Storage and Distribution. It also identifies the contribution that each Local Planning Authority will be expected to make towards this total through allocations in their respective district-wide local plans. The calculation of the land required for the types of industrial activity covered by the Order has been determined in the context of three objectives.

Objectives

• To allocate sufficient employment land to encourage the development of a diverse and prosperous economy
• To distribute employment development in a way which reflects the anticipated growth in the labour force
• To ensure that employment land is allocated which meets the requirements of businesses in terms of location, accessibility and environment

POLICY 16
PROVISION OF LAND FOR INDUSTRIAL, WAREHOUSE AND BUSINESS DEVELOPMENT

Provision will be made for about 405 Hectares of land for industrial, warehouse and business development purposes over the period 1991 - 2011. This will include activities within classes B1, B2 and B8 of the Town and Country Planning (Use Classes) Order 1987. The distribution of the overall allocation will be as follows:

District	Hectares
Mendip	about 60
Sedgemoor	about 95
South Somerset	about 125
Taunton Deane	about 115
West Somerset	about 10

Provision should be made for the inclusion of such uses in mixed-use development sites where appropriate. Where such uses are included, only those allocation elements that are within Use Classes; B1, B2 and/or B8 can be counted against the relevant allocation total for that District.

In the Exmoor National Park provision should only be for an appropriate scale of development to meet local social and economic needs.

5.30 The amount of land required for employment purposes during the plan period, and its distribution, has been calculated on the combination of past trends of land take-up and development, the composition and performance of the respective local economies and their expected future performance. The employment land allocations do not cater for all of the anticipated employment growth that is expected to be generated during the Joint Structure Plan period, 1991 - 2011. However, it is estimated that about 66% of all existing jobs, within the plan area, are provided by industrial activities that would be covered by the three main categories covered by the Town and Country Planning (Use Classes) Order 1987 included within Policy 16. Those that have been selected are expected to provide the majority of future new jobs generated in the county up to 2011.

5.31 The Joint Structure Plan provides an overall allocation of employment land for Somerset and Exmoor, including its distribution amongst the Local Planning Authorities. It is the latter, through their respective district-wide local plans, that are expected to determine the exact location of where future employment generating development will take place within the context of the focused development strategy. Allocations that are made in district-wide local plans would have to take into account the strategic policies of the Joint Structure Plan (Policies STR 4: Development in Towns, and STR 5: Development in Rural Centres and Villages) in terms of the distribution and location in settlements. Also the requirements of Policy 17: Mixed-Use Developments, Policy 18: Location of Land for Industrial, Warehousing and Business Development, Policy 19: Employment and Community Provision in Rural Areas, and Policy 49: Transport Requirements of New Developments, may need to be considered.

5.32 It is expected that the Local Planning Authorities will include some allocations on under-used and redundant land, within existing settlement boundaries, for employment and/or mixed-use developments, where appropriate. It is also expected that a range of sites in different locations will be identified, to serve the needs of different employers and industries. This will be consistent with advice from Central Government set out in PPG 4: Industrial and Commercial Development and Small Firms (1992).

5.33 The conditions within which exceptional releases of land for employment generating purposes need to be made cannot be easily predicted and provided for within the development plan. Although the Joint Structure Plan covers a timescale of twenty years, Government advice contained in PPG 12: Development Plans (1999), makes it clear that all parts of the development plan process should be continually monitored for their effectiveness. It also states that it expects plans to be reviewed at least once every five years. The continuous process of monitoring and review should permit Strategic and Local Planning Authorities to respond to issues caused by changes in the demand for, and provision of, land for employment generating purposes at the local level within this five-year cycle.

5.34 It is recognised that within the National Park, whilst there is a requirement in Policy 2: Exmoor National Park, to foster the economic and social well being of the communities, the allocation of sites for development by general employment generating activities may not be desirable. This would apply where development proposals of this nature would conflict with the purpose of the national park as set out in the Environment Act 1995. In this context, the use of the term appropriate would be for the allocation of land for existing businesses that require it in order to expand or, for local businesses to relocate because their existing facilities and site have become constrained. The identification and allocation of such sites is a matter for the Exmoor National Park Authority to determine through its own local plan for the area.

5.35 Central Government has stressed the need to monitor development plan policies within its new regime of Plan, Monitor and Manage especially those policies that provide clearly identified allocations and/or targets that apply for the whole of the plan period. The take-up and development of land for business, industrial and warehouse purposes is such a policy which can be readily monitored on a regular basis and this will be included as part of an annual monitoring report of the Joint Structure Plan. In calculating the amount of employment land that needs to be included in district-wide local plans, sites that have been developed since mid 1991 and those that are allocated in existing, adopted, local plans or have a current planning permission, can be counted against the allocation figure (see Table 5.1).

POLICY 17
MIXED-USE DEVELOPMENTS

Industrial, commercial and business activities which are major generators of travel demand and are part of a mixed-use development should be provided for in town centre locations and sites which are highly accessible by means of transport other than the private car.

5.36 Increasing references on the need for mixed-use developments have been provided in policy guidance from the Government. Policy 17 seeks to provide guidance, at a strategic level, on the type of sites that may be considered suitable. A key consideration would be the accessibility of such developments to potential employees, with the emphasis on high-density employment generators being located close to high volume transport routes to improve accessibility by modes of transport other than private car. Also it provides the potential for mixed-use developments to include both residential and employment provision within the same site, where such activities are compatible. Such developments could, thereby, provide the potential opportunities for people to minimise the distance they may need to travel to work. The policy also provides a framework whereby a mix of activities could be considered on a site where previous use of the site had been restricted to a much narrower range of activities, and these, in turn, had inhibited its potential development, and/or re-development, because it was not deemed to be economically viable.

5.37 The inclusion of other types of uses within a mixed-use development does not imply that these are exempted from the requirements of other related policies within the Joint Structure Plan (e.g. the sequential testing process in Policy 21: Town Centre Uses, and site selection for retail development). Only those elements of a mixed-use development that are within the activities covered by Classes, B.1, B.2 and B.8 of the Town and Country Planning (Use Classes) Order 1987 can be counted against the respective Local Planning Authority's allocation figure provided for in Policy 16: Provision of Land for Industrial, Warehouse and Business Development.

POLICY 18
LOCATION OF LAND FOR INDUSTRIAL, WAREHOUSING & BUSINESS DEVELOPMENT

When determining the location of land for employment generating activities, in the context of other policies in the plan, consideration should be given to the following:

• where significant levels of freight traffic are likely to be generated, sites should be located close to the existing County or National road network or rail facilities;
  
  
• activities which are environmentally compatible with other land uses may be located within or adjoining such existing or proposed uses;
  
  
• activities which are not compatible with other land uses should be located where their impact on the local environment can be mitigated;
  
  
• large developments with high employment density activities should be located close to established public transport nodes.
  

5.38 It is essential that opportunities for business to develop within, or locate to, the area covered by the Joint Structure Plan is supported by the provision of suitable employment land in appropriate locations. The identification of sites for employment generating purposes should be those locations where potential operators can benefit from economies of scale, access to markets and, close proximity to a pool of labour but without compromising the objective of achieving a more sustainable pattern of development. Consideration has to be given to the impact on the local environment through, the processes involved on the site, traffic generation as a result of delivery of goods and commuter traffic taking people to and from their workplaces. The type and functional nature of employment generating activities can vary considerably and this influences the size and location of the accommodation they require. This varies across the area covered by the Joint Structure Plan, with some settlements becoming associated with certain types of activity. Examples include the publishing industry in Frome, aerospace and electrical engineering in Yeovil, large office operators in Taunton and, more recently, the warehouse and distribution activities in Bridgwater.

5.39 Any land for employment generating purposes that is allocated and developed will generate additional movements of people and goods on the transport network close to the site. The purpose of this policy is to emphasise that, where possible, such developments should be located where they can maximise the efficient use of the existing infrastructure whilst minimising the impact it is likely to have on the environment. The location of developments that generate a significant number of movements whose origins and/or destination are not local to the area, should be sited where they can easily access the strategic route network with the minimum of environmental impact on the surrounding area especially where this is residential. The policy should be read in conjunction with other relevant policies within the Joint Structure Plan, including Policy 49: Transport Requirements of New Development. This provides the framework of transport requirements that should be met through new development. This is consistent with and develops upon the advice from Central Government contained in PPG 13: Transport (1994).

5.40 Central Government advice, contained in, PPG 4: Industrial and Commercial Development and Small Firms (1992), states that development plans should take account of the locational requirements of businesses by providing a wide range of sites to meet the different needs of existing and potential operators. The guidance also stresses the need for such sites to be located so that their direct or indirect impact on the local environment is minimised.

5.41 Policy 18 seeks to reconcile these requirements in Somerset and Exmoor within the context of the focused development strategy and in accordance with, sustainable development. Emphasis is made on reducing the need for people to travel to and from their workplace. This can be achieved by the encouragement of compatible land-use activities such as, commercial offices and light industrial which come within use class B1 of the Town and Country Planning (Use Classes) Order 1987, within, or adjoining, existing/proposed, residential areas. It is accepted that not all types of industrial activity can be accommodated in this way and that sites would also have to be provided in locations where their impact on the local environment could be minimised. Where appropriate, the redevelopment of existing redundant sites within settlements for employment purposes would be encouraged providing that the potential uses would not adversely affect the local environment or conflict with the requirements of other relevant development plan policies.

THE RURAL ECONOMY

5.42 Government guidance in PPG 7: The Countryside - Environmental Quality and Economic and Social Development (1997), recognises the changing nature of economic activity in the countryside. This was confirmed by publication of the document, Rural Economies, by the Cabinet Office, in 1999, which highlighted the economic problems and opportunities that currently exist in the rural areas of Britain. The need to assist, through the planning process, the diversification of the rural economy to provide a wide range of employment opportunities for local people is a government priority. However the means through which new economic activities are encouraged must be consistent with the need to protect the built and natural environment of rural Somerset and Exmoor particularly within the national park.

5.43 The Joint Structure Plan strategy seeks to focus a higher proportion of development towards the fifteen main settlements. This strategy needs to be implemented sensitively to ensure that investment is not unduly drawn away from rural areas. The maintenance of rural employment opportunities will also minimise the need for commuting to work in larger, more distant centres.

5.44 The objectives and policy set out below provide balance to the overall strategy by ensuring that the future development needs of the rural economy are addressed. In doing so, it is recognised that the rural economy is undergoing considerable change and needs support to diversify. The fact that the local economies of parts of rural Somerset and Exmoor are relatively disadvantaged is a further influence upon policy. In addition the vitality of rural communities often reflects the range of social facilities on offer locally. There is a need to ensure that proposals to enhance provision are assisted by the development plan.

Objectives

• To support rural areas
  
  
• To enable the rural economy to respond to changes in the economic base of the rural areas.

POLICY 19
EMPLOYMENT AND COMMUNITY PROVISION IN RURAL AREAS

In rural areas provision should be made for development which creates or enhances local employment, shopping or community facilities, including development necessary for the purposes of agriculture and development associated with the diversification of agricultural units.

5.45 It is essential that employment opportunities are maintained and created in rural areas to help sustain rural communities and reduce the need to travel. Furthermore, throughout the plan area there are pockets of economically and socially vulnerable rural areas. These include locations both within and outside formally designated areas covered by the Joint Structure Plan, known as Rural Priority Areas. Also parts of West Somerset and Exmoor receive priority for European Union structural funds under their Objective 2 status.

5.46 The land based industries, particularly agriculture, are experiencing continued employment change. A number of settlements are excessively dependent upon a single industry or key employer. By ensuring the allocation of sufficient land and sympathetic consideration of appropriate development proposals in economically vulnerable areas, this policy provides for further diversification of the rural economy and hence continued employment opportunities both in farm-based and other sectors of the rural economy. Within the National Park the provision of facilities for community and employment purposes will also be subject to the requirements of Policy 2: Exmoor National Park, and any relevant local plan policies. This seeks to ensure that any development is essential to the economic and social well being of the affected community. Within the National Park, Local Plan policies will seek to retain existing employment land and buildings for such purposes to foster living and working communities in the longer term.

5.47 Provision should be made for employment development and facilities within existing settlements. Local plans should set down strict policy criteria for the release and development of land for these purposes outside of settlements, as well as detailed development control policies. Development proposals for the conversion of rural buildings for employment or community use, particularly local shopping provision where these currently do not exist or are at risk within a settlement, should be favoured in preference to those for residential purposes. As with urban areas every attempt should be made to maximise the re-use of previously developed land in the interests of reducing the need for greenfield development. However, this should not be interpreted as permitting any form of development on previously developed land in the open countryside. Where such sites become available any development proposal will have to clearly demonstrate that the activity is both appropriate and needed in that location and cannot be accommodated within existing settlement boundaries. Provision for development in rural areas should be made in accordance with the requirements of the relevant strategy policies (STR 5: Development in Rural Centres and Villages, and STR 6: Development Outside Towns, Rural Centres and Villages) and the natural environment policies (Policy 1 - Policy 7).