spg (ldp): baglan bay development framework (may-14) and... · 5 developmentframework 23 5.1...

11 Introduction

32 Background and Context

32.1 Strategic Context

82.2 Background Information

113 The Strategy

113.1 LDP Vision

113.2 LDP Strategy

134 LDP Allocations and Policies

235 Development Framework

235.1 Current Position

255.2 Vision

285.3 Baglan Bay Masterplan

305.4 Zoned Approach

325.5 Phasing

336 Low and Zero Carbon Energy

357 Implementation and Monitoring

Contents

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1 Introduction1.0.1 This Supplementary Planning Guidance (SPG) will guide the location and designof development within the Baglan Bay Strategic Employment Site. The Baglan Bay sitecomprises the former petro-chemical works and is an extensive area of brownfield landcentrally located within Neath Port Talbot. The Development Framework provides a guidethat sets out how the Authority will consider planning applications in Baglan Bay, and aimsto secure integrated development for the area.

1.0.2 The area covered by the Development Framework contains a major regenerationsite that will be critical for the future prosperity of the County Borough and that has thepotential to serve and complement the sub-region. The Neath Port Talbot LocalDevelopment Plan (LDP) identifies the area under Policy EC1 Employment Allocations,and this SPG should be read in the context of the LDP policy and explanatory text.

1.0.3 Because of its unrivalled location with its strategic access to the mainline railway,the A48 and M4 corridor, Baglan Bay is well placed to serve a wider regional role enablinga variety of options for maximising economic benefit to Neath Port Talbot as a whole. TheBaglan Bay Development Framework is a working document, developed in consultationwith the Council’s regeneration partners to ensure that it reflects the regeneration prioritiesof the area and adds value to the plans and projects of other organisations.

1.0.4 This SPG outlines the priorities for regeneration up to 2026, setting out the wayin which development across the regeneration area is expected to come forward. Thisincludes the phasing of development to ensure that it takes place in a logical and coherentmanner taking into account environmental and other constraints. It is accepted that prioritiesand projects may change during delivery of the development, as economic conditionschange and new opportunities arise and the SPG will continue to be reviewed periodicallyto ensure that it remains responsive to changes in circumstances.

1 . Introduction

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1 . Introduction

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2 Background and Context2.1 Strategic Context

People, Places, Futures - Wales Spatial Plan (2008)

2.1.1 The Wales Spatial Plan (WSP): People, Places, Futures sets the strategicframework to guide future development and policy interventions in Wales, beyond thescope of formal land use planning control.

2.1.2 The WSP 'integrates the spatial aspects of national strategies, including socialinclusion and economic development, health, transport and environment policy, thustranslate into practise the National Assembly's sustainable development duty'. It seeks toaddress challenges associated with demographic change, accessibility and the distributionof resources over the next 20 years and is based on the following five guiding themes:

Building sustainable communities;

Promoting a sustainable economy;

Valuing our environment;

Achieving sustainable accessibility; and

Respecting distinctiveness.

2.1.3 The vision for Swansea Bay – Waterfront and Western Valleys Spatial Plan areais: ‘A network of independent settlements with Swansea at it’s heart which pulls togethereffectively as a city-region with amodern, competitive, knowledge based economy designedto deliver a high quality of life, a sustainable environment, a vibrant waterfront and excellentnational and international connections’.

A Vibrant Economy (2005)

2.1.4 This document outlines the Welsh Government's (WG) strategic framework foreconomic development which aims to deliver strong and sustainable economic growth.The approach for realising this vision is built aroundWales’s core strengths, an increasinglyskilled, innovative and entrepreneurial workforce; an advanced technology and knowledgebase; strong communities; a stunning natural environment; and an exceptional quality oflife. At the heart of the document is the objective of creating more employment and alsoraising the quality of employment available to both raise the employment rate and theaverage earnings within Wales. The document states that the Welsh Government will aimto achieve this by:

Supporting job creation;

Investing in community regeneration projects;

2 . Background and Context

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Investing in transport networks and other economic infrastructure;

Attracting higher added value functions to Wales;

Helping businesses becomemore competitive by supporting other drivers to businessgrowth: entrepreneurship, innovation investment and trade;

Creating an environment in which businesses can improve the adverse occupationalmix and increase average added value per job with the consequent benefit for earninglevels;

Helping to create a stable and favourable business environment through the publicsector;

Improving Wales’s skills and qualifications profile;

Encouraging the growth of employment in the following high growth sectors –automotive, aerospace, agri-food, high technology, pharmaceuticals / bio-chemicals,financial services, creative industries, construction, hospitality, leisure and tourismand social care.

Economic Renewal: A New Direction (2010)

2.1.5 The Welsh Government launched an Economic Renewal programme in responseto changes in the global economic climate and stresses the importance of building theWelsh economy on the strengths and skills of its people and natural environment. It outlinesfive priorities with regard to economic renewal following the economic downturn:

Investing in high quality and sustainable infrastructure;

Making Wales a more attractive place to do business;

Broadening and deepening the skills base;

Encouraging innovation;

Target business support where it adds the most value.

Swansea Bay City Region (2013)

2.1.6 In July 2013, Swansea Bay was launched as Wales' first 'City Region', to boostinvestment and job opportunities. The Swansea Bay City Region includes the LocalAuthority areas of Pembrokeshire, Carmarthenshire, the City and County of Swansea andNeath Port Talbot.

2.1.7 The identification of the City Region has emerged as a result of a reportcommissioned by the Welsh Government highlighting economic growth increasinglyhappens in regions centred on a city, attracting higher skilled jobs and pay.


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2.1.8 The City Region concept will remove existing administrative boundaries betweenLocal Authorities to create a central business area. The approach will create a larger andmore efficient labour market and better prospects for job creation, attracting inwardinvestment and innovation to create additional value added to the local economy. Theapproach also offers better scope for planning housing, transport, support for businessand other services.

The Economic Growth Strategy for South West Wales (2013 - 2030)

2.1.9 This strategic framework looks to support South West Wales and future economicdevelopment. The New South West Wales represents an ambitious new economic growthplan for the region. The strategy found that despite investment into infrastructure withinthe area, the region is under performing and focuses on the most important strategicchallenges the region faces. The long term vision is for economic success, to allow SouthWest Wales to be a confident, ambitious and connected City-Region, recognisedinternationally for its emerging Knowledge and Innovation economy.

2.1.10 The framework comprises of five complementary Strategic aims:

1. Business Growth, Retention and Specialisation. This includes:

Providing tailored business and support for retention and growth;

Supporting large-scale existing major employers across South West Wales, withinboth the public and private sectors;

Developing a coherent and consistently first rate inward investment;

Developing a more entrepreneurial culture across the City-Region;

Encouraging a more dynamic and sustainable start-up market.

2. Skilled and Ambitious for long-term success. This includes:

Improving attainment and ambition in our low performing schools;

Ensuring further and higher education provision in the City-Region offers flexiblesupport and aligned to needs of employers;

Promote awareness of the value of up-skilling.

3. Maximising job creation for all. This includes:

Supporting workforce re-entry amongst those who are economically inactive;

Local enterprise development;


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Increasing job opportunities by supporting employment growth within the indigenousbusiness stock;

Establishing a co-ordinated programme of work experience placements and formalapprenticeships;

4. Knowledge Economy and Innovation. This includes:

Maximising the long-term potential of the new Science and Innovation Campus atSwansea University;

Developing a long-term strategic approach to nurturing new businesses.

5. Distinctive Places and Competitive Infrastructures. This includes:

Developing and implementing a concerted framework for engagement of visitors andinvestor audiences;

Investing in the coordination of spatial planning to establish a road map for targeteddevelopment of land, property and infrastructure;

Engaging local communities, businesses, and associated stakeholders such as housingassociations in local visioning;

Developing a competitive Next Generation Broadband infrastructure across all partsof the City-Region;

Empowering the community and voluntary sector to take a role in development,delivery and testing of new approaches to public service delivery.

Waterfront Regeneration Strategy (2011)

2.1.11 The Waterfront Strategy covers the coastal corridor of Neath Port Talbot fromMargam in the east to the borders of Swansea to the west and includes the town of PortTalbot as well as a number of smaller urban settlements. The Strategy provides theoverarching local framework within which specific regeneration projects will be delivered.Baglan Bay has been identified as a major development site in the strategy area and willplay a central role in shaping the future prosperity of the area.

2.1.12 The following strategic goals are identified:

Strategic Goal 1: To develop the town of Port Talbot as a hub for commercial,residential, social and employment activities through an integrated physicalregeneration of the town centre and the attraction of new investment.


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Strategic Goal 2: To bring forward the development of major strategic regenerationsites in the area of Port Talbot that will attract major new investment, createemployment opportunities and spread prosperity to surrounding communities.

Strategic Goal 3: To develop existing and establish major new employment siteswithin the area of Port Talbot that meet the needs of modern business, strengthenthe local economy and ensure the provision of employment opportunities.

Strategic Goal 4: To develop high quality sites for tourism and leisure that will attractvisitors and new investment and improve the image and environment of Port TalbotWaterfront.

Strategic Goal 5: To improve the physical fabric within the urban areas, improvingquality of life and making the area of Port Talbot an attractive place in which to live,work and invest.

Strategic Goal 6: To improve the transport and communications infrastructure, ensuringthat the area of Port Talbot maximises its locational advantages and brings benefitsto the economy and people of the area.

Shoreline Management Plan (2010)

2.1.13 A Shoreline Management Plan (SMP) has been produced for the coastlinebetween Lavernock Point in the Vale of Glamorgan and St Ann's Head in Pembrokeshireand therefore covers the area of coastline within Neath Port Talbot County Borough. TheSMP is prepared by Natural Resources Wales (NRW) and provides a large-scaleassessment of the risks associated with coastal erosion and flooding at the coast. It alsopresents policies to help manage these risks to people and to the developed, historic andnatural environment in a sustainable manner.

2.1.14 The area of coastline within Neath Port Talbot falls within Policy Scenario 8: SkerPoint to Swansea Docks which is located along the front of the Baglan Bay site. Thefollowing policies are proposed:

For the majority of the shoreline hold the line through the maintenance and upgradingof existing defences.

Managed realignment for the sand dune systems which will allow them to continueto evolve naturally.

A long-term policy of hold the line is also recommended at the former BP tank farmsite to the west of Crymlyn Burrows.


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2.2 Background Information

Location

2.2.1 The Baglan Bay site comprises the former petro-chemical works and is an extensivearea of brownfield land centrally located within Neath Port Talbot.

Baglan Bay Location Plan

Economy and Employment

2.2.2 Port Talbot’s economic history is based on the traditional heavy industries of coal,iron, steel, tinplate and petrochemicals. Currently, Port Talbot remains an industrial townwith the port and steel industry dominating the local economy and remaining the largestindustrial employer. However, with the contraction of the traditional industries the localeconomy has seen a gradual transition towards light manufacturing and service relatedactivities, leading to a diversification of the local economy and a move towards a morebalanced local job market.

2.2.3 The former BP petro-chemical works at Baglan Bay was for decades both a keysource of employment and a major feature in the landscape before its closure in 2004.Following the decision to progressively close the complex, British Petroleum (BP) carriedout a three year programme of remediation works between 2006-2009 before the landwas purchased by St Modwen Developments Limited (SMDL). SMDL in conjunction withthe Authority, has subsequently embarked on a major regeneration project that willtransform the disused brownfield site, measuring a total of approximately 425 hectares,into a strategic employment site.


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2.2.4 Port Talbot’s employment base continues to undergo major structural change.The Baglan Bay development, which includes the Baglan Energy Park, is creating a growthpoint which is also intended to be a catalyst to transform the type of industry and businessbeing attracted to the town.

2.2.5 Following remediation works and its allocation in the currently adopted UnitaryDevelopment Plan (UDP)(1), a large proportion of the site has already been developed inthe form of Baglan Energy Park. There are a number of companies in operation includinga Power Station, a Technium Centre, Council Offices and a number of smaller workshopsand units.

Baglan Bay Aerial Photograph

Infrastructure

2.2.6 The entire site is already served by necessary infrastructure including water,sewerage, electricity, gas and telecommunications services with Baglan Energy Parkhaving the full range of services needed to undertake its operations.

Transport and Accessibility

2.2.7 Located in an area of high market demand, the site is within easy access of thestrategic road and freight network, including the mainline railway, the A48 and M4 corridorwith further improvements being made following the completion of HarbourWay (PeripheralDistributor Road).

1 Neath Port Talbot County Borough Council Unitary Development Plan (March 2008).


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2.2.8 More local access comes from the B4286 (Seaway Parade) which connects tothe A48 and a local bus route. Access will be further improved following the completionof the Baglan Energy Park Link Road, connecting the two sections of Baglan Energy Parkvia a bridge over the existing railway line.

Environment

2.2.9 Baglan Bay is situated on the coastal plain between the hills that mark the edgeof the South Wales Coalfield and Swansea Bay. The site lies adjacent to the mouth of theRiver Neath and a stretch of largely undeveloped coast, characterised by the coastal dunesystem.

2.2.10 The extent of the allocation and its relationship to the adjacent environment hasbeen taken into account in the preparation of the SPG. The site is bounded to the southand west by an area which has been set aside as a 'Lapwing Mitigation Site' and also theadjacent wider coastal dune system which is considered to be important habitat andecosystem and designated as a protected area of 'undeveloped coast' in the LDP.Allowances have therefore been made for the projected sea level rise and sand duneretreat with the land forming part of an area of managed realignment as stipulated in theShoreline Management Plan.

2.2.11 Whilst the vast majority of the Baglan Bay site is not prone to flooding, smallpockets around the periphery of the site are potentially vulnerable.


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3 The Strategy3.1 LDP Vision

3.1.1 The LDP Vision sets out the Council's aspirations for the the County Borough forthe LDP period (2011 - 2026). This Vision has taken into account the aspirations for theBaglan Bay site, and informs the approach taken to the area.

The LDP Vision

The natural beauty and environmental importance of Neath Port Talbot's waterfrontand coastal corridor area will be protected and conserved while previously developed,underused and unsightly former industrial and commercial areas are redeveloped,transforming the function and appearance of the whole coastal belt.

Key sites at central Port Talbot, Baglan Bay, Coed Darcy and the Swansea UniversityScience and Innovation Campus, coupled with the area's good and improving transportand communication links will help deliver a competitive, knowledge-based economy.New and expanded settlements will provide sustainable housing and employment tomeet the needs of local communities and the wider area.

The County Borough's rural areas and valley communities will be supported andrevitalised through encouragement of new and expanded economic activity throughprovision for sustainable small scale employment, including tourism initiativescapitalising on existing successes such as the Strategic Tourism Destinations atMargam Park and the Afan Valley.

Benefits from natural resources will be maximised and the cultural, historic and naturalheritage will be supported and enhanced. Economic growth and community cohesionwill be promoted by concentrating development in key areas to provide benefits to awider hinterland.

3.1.2 The LDP Vision has been translated into a range of objectives in order to ensurethat the Plan strategy and policies work towards its delivery.

3.2 LDP Strategy

3.2.1 The LDP Development Strategy aims to:

Facilitate growth within Neath Port Talbot, with a focus on the Coastal Corridorwhilst reinvigorating the Valley communities.

3.2.2 The County Borough is therefore divided spatially, with Baglan Bay falling withinthe 'Coastal Corridor' spatial area. In relation to the Coastal Corridor, the strategy means:

3 . The Strategy

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Focusing development along the coastal corridor and in the urban areas ofNeath and Port Talbot, in recognition of the important role these settlementsplay in the wider context;

Maximising the benefit of market interest along the coastal corridor andstimulating growth through the delivery of strategic employment sites andstrategic regeneration areas.

3.2.3 Baglan Bay is identified as a Strategic Employment Site in the LDP as being amajor development that is of paramount importance in delivering the LDP vision. As suchit is seen as having a wider role in enhancing economic prosperity for the region as awhole through acting as a catalyst for future growth.

3 . The Strategy

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4 LDP Allocations and PoliciesLDP Policies relating to Baglan Bay

4.0.1 A number of LDP policies relate to the wider Baglan Bay area. The following mapprovides an extract from the LDP Proposals Map and shows the policies applicable in thearea.

4 . LDP Allocations and Policies

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4.0.2 The main relevant area-specific policies are listed below:

Strategic Policy SP5 Development in the Coastal Corridor Strategy Area

Development in the Coastal Corridor Strategy Area

In the Coastal Corridor Strategy Area, sustainable growth and development will bepromoted to benefit the County Borough as a whole, while protecting and enhancingthe area’s character and environment. This will be achieved through the followingarea-specific measures:

1. Making provision for the majority of new residential development along the CoastalCorridor;

2. Allocating Strategic Regeneration Areas at Coed Darcy (Neath) and Harbourside(Port Talbot);

3. Allocating Strategic Employment Sites at Baglan Bay and Junction 38 (M4)Margam;

4. Safeguarding existing employment uses and sites for employment purposes;

5. Promoting mixed use regeneration schemes at Neath Town Centre, Port TalbotTown Centre and Aberafan seafront;

6. Developing a University Campus at Fabian Way;

7. Managing urban form and setting through the designation of Green Wedges;

8. Improving public and private transport provision including the following schemes:

(a) Highway improvements at Baglan Energy Park, Coed Darcy, Ffordd Amazon,and Harbour Way;

(b) New interchange and railway station improvements at Port Talbot;

(c) Park and Share scheme at Junction 38 (M4) Margam.

LDP Objective: OB 5

Strategic Policy SP11 Employment Growth

Employment Growth

Existing employment uses will be supported and safeguarded and new and expandingemployment developments will be encouraged through the following measures:


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1. 96 ha of land for employment and business purposes will be allocated fordevelopment within the Plan period in the Coastal Corridor Strategy Area to meeteconomic development and employment needs;

2. Additional employment provision will be made within the Strategic RegenerationAreas as part of mixed use, sustainable development in these locations;

3. Existing employment areas will be safeguarded for employment uses;

4. Premises in existing appropriate lawful employment use will be safeguarded foremployment purposes;

5. Employment uses will be encouraged in principle within settlement limits;

6. In the Valleys Strategy Area, a flexible approach will be taken to employmentproposals and 'live-work' units within or immediately adjacent to settlement limits.

LDP Objectives: OB 11 and OB 12

Policy EC1 Employment Allocations

Employment Allocations

The following sites are allocated for employment uses:

Use Class PermittedSizeSiteReference

B1, B2 and B875 ha*, of which 11ha isallocated for B Use Class**

Baglan BayEC1/1+

B1, B2 and B86 ha **Junction 38 (M4), MargamEC1/2+

B14 haLand within Coed DarcySRAEC1/3

B111 haLand within HarboursideSRAEC1/4

Key:

+ Preferred Sites for In-Building Waste Treatment Facilities.

* Employment land to meet the needs of the energy sector and any ancillary facilitiesand services which support and complement the wider role and function of B ClassUses within and beyond the life of the LDP.

** Part of the allocation could meet the requirements for the Regional Waste Plan(RWP).


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4.0.3 Policy EC2 Existing Employment Areas

Existing Employment Areas

In order to protect the employment function of the County Borough's employmentareas, uses on the following sites will be restricted in accordance with Policy EC3:

SiteReference

Fabian WayEC2 /1*

Lonlas Village Workshops, NeathEC 2 /2

Neath Abbey Business Park, NeathEC2 /3

Neath Abbey Wharf, NeathEC2 /4

Melincryddan CMB / Milland Road Industrial Estate, NeathEC2 /5*

Baglan Energy ParkEC2 /6*

Baglan Industrial Estate, Port TalbotEC2 /7*

Endeavour Close, Port TalbotEC2 /8

Kenfig Industrial Estate, Port TalbotEC2 /9+

Llewellyn's Quay, Port TalbotEC2 /10*

Croeserw Industrial Estate, Afan ValleyEC2 /11

Glyncorrwg Workshops, Afan ValleyEC2 /12*

Cwmgors Workshops and Industrial Estate, Amman ValleyEC2 /13*

Crynant Business Park, Dulais ValleyEC2 /14*

Vale of Neath Supplier Park, Neath ValleyEC2 /15*

Glynneath Village Workshops, Neath ValleyEC2 /16*

Alloy Industrial Estate, PontardaweEC2 /17

Former Compair / GMF Factory, Ystalyfera, Swansea ValleyEC2 /18*

Key:

* Sites which lie within areas of flood risk identified in TAN 15.

+ Preferred Sites for In-Building Waste Treatment Facilities.


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Policy EC3 Employment Area Uses

Employment Area Uses

Within allocated and existing employment areas, unless otherwise specified and whereappropriate, uses will be restricted as follows:

Uses within classes B1, B2 and B8;

Ancillary facilities or services which support and complement the wider role andfunction of the primary employment use;

Commercial services unrelated to class B.

Developments will be required to demonstrate that proposals do not cause any adverseimpacts on the overall function of the employment area and neighbouring commercialand residential properties, the proposal can be sustainably justified in this locationand is appropriate in scale and form to the role and function of the employment area.

Policy EC4 Protection of Existing Employment Uses

Protection of Existing Employment Uses

Proposals which would result in the loss of existing land or buildings in employmentuse as defined in Policy EC3 and/or within the existing employment areas identifiedin Policy EC2, will only be permitted where the following criteria are satisfied:

1. It is demonstrated that employment uses are no longer viable or appropriate inthis location; or

2. Continued use for employment purposes would have unacceptable impacts onthe environment, local amenity or adjacent uses; or

3. The existing space can be redeveloped for employment uses that achieve anincreased level of employment combined with other appropriate uses.

Strategic Policy SP14 The Countryside and the Undeveloped Coast

The Countryside and the Undeveloped Coast

The countryside and undeveloped coast, including landscapes, seascapes andagricultural land, will be protected and where feasible enhanced through the followingmeasures:


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1. The protection of the open countryside through the control of inappropriatedevelopment outside settlement limits;

2. The protection of the undeveloped coast through the control of inappropriatedevelopment;

3. The designation and protection of Special Landscape Areas;

4. The designation and protection of Green Wedges.

LDP Objective: OB 15

Policy EN1 The Undeveloped Coast

The Undeveloped Coast

Development proposals within the undeveloped coast will only be permitted where itis demonstrated that a coastal location is necessary and the proposal relates to:

1. The management and/or maintenance of coastal or flood defences or coastalprocesses; or

2. The management and/or maintenance of shipping channels/ port access andother associated infrastructure; or

3. The provision of appropriate recreational, leisure, access or other necessaryinfrastructure.

Strategic Policy SP19 Waste Management

Waste Management

Provision will be made for the delivery of an integrated network of waste managementfacilities through the following measures:

1. Continuation of the treatment of waste arisings at the Materials Recovery andEnergy Centre;

2. Identification of preferred sites to meet the regionally and locally identified needfor in-building waste treatment capacity;


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3. Continuation of the disposal of residual non-hazardous waste and inert waste atPwllfawatkin Landfill Site;

4. Ensuring that provision is made for the sustainable management of waste in allnew developments.

LDP Objective: OB 20

Policy W1 In-Building Waste Treatment Facilities

In-Building Waste Treatment Facilities

1. Provision for new in-building waste treatment facilities to meet the regionally andlocally identified need for waste treatment capacity will be preferred at the followingsites:

SiteReference

Baglan BayW1/1(a)

Junction 38 (M4) MargamW1/1(b)

Kenfig Industrial Estate, Port TalbotW1/1(c)

2. Proposals for the treatment, processing, storage and distribution of waste will onlybe permitted where all of the following criteria, where relevant, are satisfied:

(a) The proposed facility is the Best Practicable Environmental Option (BPEO);

(b)The proposal is carried out within a purpose built or appropriately modified existingbuilding, unless it can be demonstrated that part or all of the proposed operation canonly be carried out in the open;

(c) It can be demonstrated that the development would not compromise highwaysafety;

(d) It is demonstrated that measures can be taken to reduce, and where possibleavoid, damage or disturbance to the environment and the amenity of neighbouringland uses or individual properties to acceptable levels;

(e) Appropriate, acceptable site management proposals are submitted for the durationof the development.


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Policy TR1 Transport Proposals

Transport Proposals

The following key transport schemes are identified:

Highway Network Enhancements

SiteReference

Baglan Energy Park Link RoadTR1/1

Coed Darcy Southern Access RoadTR1/2

Ffordd Amazon (Stage 2)TR1/3

Junction 43, M4 ImprovementsTR1/4

Harbour Way (PDR)TR1/5

Public Transport Station Improvements

SiteReference

Integrated Transport Hub (Port Talbot)TR1/6

Walking and Cycling Routes

SiteReference

Amman Valley Cycle WayTR1/7

Afan Valley Trail (Port Talbot - Afan Valley)TR1/8

Park and Share Site

SiteReference

Junction 38 (M4) MargamTR1/9

Any proposals that would prevent, or have an adverse impact on the implementationof the schemes, will be resisted.

Policy TR4 Safeguarding Freight Facilities

Safeguarding Freight Facilities

The following will be safeguarded for the transportation of freight:


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SiteReference

Port Talbot Tidal HarbourTR4/1

Port Talbot DocksTR4/2

Existing & Potential WharvesTR4/3

Existing Rail Connections & SidingsTR4/4

Proposals that would inhibit the use of the above for transport purposes will be resisted,unless it can be demonstrated that the use of the route for movement of freight is notrealistic or necessary.


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5 Development Framework5.1 Current Position

Existing Uses and Premises

5.1.1 Following its allocation within the Unitary Development Plan the first phase in theregeneration of Baglan Bay is already underway through the development of Baglan EnergyPark. The site is 188.44 hectares gross in size and is identified as an important existingemployment area in the LDP (Policy EC2/6).

Picture 5.1 LDP Baglan Energy Park Existing Employment Area (EC2/6)

5.1.2 The site is now a well established modern industrial / business estate with a widerange of companies in operation on the site including a Technium Centre, Power Station,Council offices and a number of smaller workshops and units. Companies based at theBaglan Bay Innovation Centre include Npower Renewables, Netalouge Ltd and VishayElectronics. Other companies based at the Park include Hi-Lex Cable Systems, a companywhich makes components for the automotive industry and Montagne Jeunesse a companymarketing cosmetic products.

5.1.3 These recent developments have shown that the legacy of previous uses can bedealt with and the land can be successfully redeveloped to attract investment from a rangeof established companies.

5.1.4 Furthermore, the proposed Baglan Energy Park Link Road forms part of the PortTalbot to Swansea Bus Corridor. This project will create a through road to connect thetwo phases of Baglan Energy Park while retaining the rail freight connection, improvingpublic transport infrastructure, allowing services to flow through both parts of the site. The

5 . Development Framework

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project will also allow the Park to reach its full employment potential and become moreattractive to potential businesses, providing the infrastructure which could aid futureeconomic and employment growth in the area.

LDP Allocation

5.1.5 The Economic Assessment and Employment Land Provision Study by Peter BrettAssociates (PBA), commissioned on behalf of Neath Port Talbot County Borough Counciland the City & County of Swansea, identified an anticipated increase of 3,850 jobs overthe LDP period with a resultant requirement of 20 hectares of land for class B uses,including an anticipated net need of 34,000sqm of B use class floorspace.

5.1.6 The PBA Report recognised the importance of Baglan Bay, recommending thatthe site be allocated in its entirety acknowledging its marketing and future developmentpotential. Furthermore, the report also states '...it is not considered suitable for alternativeuse because this will undermine its market attractiveness for employment. The large scaleof the site is not considered a weakness since infrastructure and marketing will be requiredfor this site irrespective of whether they are small or large. The focus on this site and otherregeneration areas will still avoid dispersing public sector resources and market focus andalso safeguard well located future employment space that is less suited to alternativeuses'. (PBA: 105).

5.1.7 The allocated strategic employment site at Baglan Bay is made up of some 75hectares of land - the size, condition, location and capacity of Baglan Bay are all keyadvantages. It is anticipated however that only part of the site will be developed within thePlan period and the area will continue to meet the needs for employment uses and needsof the energy sector beyond the life of the LDP. Furthermore, the site cannot be readilysubdivided and allocation for other uses will undermine its market attractiveness foremployment.

5.1.8 Taking account of this, the PBA report states that the division of sites in deliverablephases may help to better focus delivery interventions that might need to be secured overthe long term and also recognises that non B-space sectors will grow more substantiallythan B-space jobs.

5.1.9 Consequently, and in accordance with the recommendations of the PBA Report,the entire site is allocated in recognition of the longer term aspiration of the Council andin order to aid flexibility. The area is made up of 11 hectares of conventional B Class(2)

employment uses and it is anticipated that a proportion of the site will be developed forancillary uses to support the wider function of the employment area and to satisfy theneeds of the energy sector.

5.1.10 The extent of the allocation and its relationship to the adjacent environment hasalso been taken into account. The site is bounded to the south and west by an area whichhas been set aside as a 'Lapwing Mitigation Site' and also the adjacent wider coastal dunesystem which is considered to be important habitat and ecosystem and designated as aprotected area of 'undeveloped coast' in the LDP.

2 Uses which fall within B1, B2 and B8 use class.


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5.1.11 The land allocated within the LDP has therefore been set back in order to accountfor allowances that need to be made for the projected sea level rise and sand dune retreatwith the excluded land forming part of an area of managed realignment as stipulated inthe Shoreline Management Plan.

5.1.12 The following map shows the extent of the LDP allocation:

Picture 5.2 LDP Baglan Bay Employment Allocation (EC1/1)

5.2 Vision

5.2.1 The overall Vision for the area is to provide a sustainable, well-integrated strategicemployment site which includes high quality business accommodation and employmentopportunities to enhance the economic growth of the wider City Region. This vision isbased on a number of fundamental principles, informed by location, accessibility, size,capacity and flexibility. The guiding principles of the Development Framework are thereforeto:

Regenerate a brownfield site;

Create an attractive, regionally important, employment led site aimed at supportinga knowledge base economy;

Create an accessible, sustainable development integrated with the existing accessand infrastructure network;

Provide sufficient and suitable B space and non B space land to cater for a wide rangeof employment uses;

Create a development designed to accommodate a range of types and sizes ofemployment units to meet a regional need;


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Broadly segregate land uses on the site however keep sufficient flexibility to developwith changing circumstances and market forces; and

Ensure sufficient space to accommodate identified need for in-building waste treatmentfacilities.

5.2.2 These guiding principles complement the Swansea Bay City Region EconomicRegeneration Strategy (2013-2030) which aims to grow the innovation and theknowledge-based sector of the economy within the region with Baglan Bay a key site toits delivery. Its Vision looks to encourage growth specifically in the advanced manufacturingand engineering, renewable energy and high-value service delivery sectors both in theprivate and public sectors. This is also linked to the Welsh Government vision for a 'Welsheconomy built upon the strength and skills of its people' (Economic Renewal: A NewDirection) that focuses on the knowledge base economy with close links with universitiesand research infrastructure. It is considered that Research and Development will play animportant role in stimulating innovation which is a key driver in economic growth.

Swansea University Campus

5.2.3 Work is already underway to build a Science and Innovation Campus for SwanseaUniversity at Fabian Way. The development is seen as significant in terms of attaining theaspirations and key principles of socio-economic growth in the region, acting as a majorcontributor to the knowledge economy in providing an innovation campus where highereducation and research can be fully integrated.

5.2.4 The new campus, anticipated to open in 2015, contains a number of facilities butthe bulk of the academic floorspace comprises a Manufacturing Facility and InnovationHub. The concept behind this is for existing businesses such as Tata Steel and RollsRoyce to have presence on the site. In addition to this there is a Business and Economicsbuilding and a number of ‘supporting’ academic facilities such as the Great Hall (lectureand conference venue) and a Learning and Resource Centre. The University also hasfunding for a dedicated Energy Safety Research Institute (ESRI), which will alsoaccommodate its SPECIFIC Project – a joint venture (on photovoltaic cells) that theUniversity has with Tata Steel.

5.2.5 It is predicted that the University Campus will trigger spin off demand for B usespace, and this has already started with the new Baglan Bay Innovation Centre and R&Ddevelopment at Harbourside. Allocating adequate land for B and non B Uses within BaglanBay will allow the site and the area as a whole to capitalise from the benefits the Universitydevelopment can bring. The site can also build on a number of other current and proposedinitiatives including Glamorgan University’s existing research facility and Neath Port Talbot’sCollege School of Construction and Built Environment. Links to other significant localemployers and to the neighbouring Coed Darcy project will also be encouraged.


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Target Sectors

5.2.6 Evidence highlights that there has been low levels of economic activity and highunemployment among the working age population within Neath Port Talbot in recent years,indicating a relatively untapped labour force. The LDP strategy therefore looks to reversethis trend and increase economic activity rates and reduce unemployment levels in linewith the Council's wider planned interventions. This, combined with younger generationsobtaining higher education standards than previous generations, provides potential forgrowth in higher knowledge based sectors.

5.2.7 Neath Port Talbot also has a skilled, largely blue collar workforce with a significantamount of jobs in the declining manufacturing sector. Linking with the research anddevelopment element of the Swansea and Glamorgan University campuses to encouragea diversification in skills and growth in the advanced manufacturing and materials sectoris therefore advised. It is considered that this can stem and even reverse the loss of jobswithin the manufacturing sector and create highly skilled manufacturing jobs particularlywithin the advanced engineering sector.

5.2.8 The energy sector's importance will also increase during the Plan period as theeconomy strives to meet the challenge of the low carbon agenda and achieve greaterenergy security. The SouthWestWales region has a significant amount of natural resourceswhich has and will continue to be exploited. The focus on a low-carbon economy alongwith significant renewable energy projects within the region such as the Swansea BayTidal Lagoon can help secure investment and growth in this sector.

5.2.9 It is important therefore that both sufficient and suitable B space and non-B spaceland is provided for within the Baglan Bay allocation to enable such sectors to thrive.

Waste Treatment

5.2.10 Advances in technology and the introduction of new legislation, policies andpractices mean that many modern waste management / resource recovery facilities onthe outside look no different to any other industrial building, and on the inside containindustrial processes or energy generation activities that are no different to many othermodern industrial processes in terms of their operation or impact. For this reason, manyexisting land use class B2 'general industrial' employment sites are considered suitablelocations for the new generation of in-building waste treatment facilities.

5.2.11 Whilst there is potential for waste related development to occur on any B2employment sites listed under Policies EC1 and EC2 of the LDP, Baglan Bay has beenidentified as one of three preferred locations where proposals for new in-building wastetreatment facilities to meet regional and local need will be directed.

5.2.12 In-building facilities may include in-vessel composting, thermal treatment includingincineration with energy recovery, pyrolysis, gasification, anaerobic digestion, mechanicaland biological treatment and materials recycling facilities.


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5.2.13 Baglan Bay offers available land, good site infrastructure, proximity to the M4 /strategic road network and the potential for co-locating energy from waste facilities withother energy consuming land uses. The available land provides a potential range of differentsized plots which together will be sufficient to cater for both the estimated future in-buildingwaste treatment needs and the needs of all other forms of anticipated employment growthover the Plan period.

5.3 Baglan Bay Masterplan

5.3.1 A Masterplan has been created for the site which shows the basic organisation ofuses and its subdivision into a number of zones or phases (that are informed byinfrastructure and the sequence of remediation and availability).

5.3.2 One of the key objectives of the design is to guide an array of uses to the mostsuitable location whilst ensuring sufficient flexibility to enable the site to develop as a resultof potentially changing circumstances and market forces. The Masterplan builds on thesite's assets and is designed as a major strategic employment-led mixed use developmentincluding a full range of business uses and activities, sustainable industries, leisure,recreation and community uses together with associated facilities services andinfrastructure. The site is sufficiently flexible to accommodate specific established sectors,industries or services, or broad spectrum economic activity or sectors and activities thathave yet to be identified.

5.3.3 The Masterplan is designed to provide for a broad range of sizes and specialities,from very small sized starter or incubator units for small, new businesses to establishedusers with the largest land and property requirements. This Masterplan will form the contextfor the planning applications that will come forward on the site.


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5.4 Zoned Approach

5.4.1 Guided by the Masterplan, the 75 hectare site has been broken down into threeareas or zones with each having a principal target use or sector. These are based on areview of intelligence, interest in the site and the findings and recommendations of thePBA Report.

5.4.2 It is considered that this sectoral approach gives sufficient scope and opportunityto ensure an adequate supply of B-space employment land to achieve the overall strategyand objectives of the LDP. There is also sufficient land and flexibility incorporated into theallocation to meet the needs of the energy sector and any ancillary facilities and serviceswhich support and complement the wider role and function of B-Class Uses within andbeyond the life of the LDP.

5.4.3 As the site cannot be readily subdivided, the identified boundaries are notconsidered definitive and will potentially move as progress is made. At this stage however,they illustrate how uses on the site could be organised. The Authority will adopt a flexibleapproach with each application considered on its merits as and when brought forward bythe market.

Area 1 - Business and Innovation

5.4.4 Area 1 of the site is the land to the east of the site, closest to the M4. This area ispart of Baglan Energy Park which is already an established business and industrial siteand is considered suitable to attract further high value, business and knowledge basedindustries. The allocation includes Plot 2C and 1B of Baglan Energy Park which arecurrently vacant and Zone 3 which can accommodate B1 uses and small / mediumenterprises. It is considered that this area can deliver growth in the life sciences sector,including pharmaceuticals, biotechnology and medical technology businesses.

Area 2 - Advanced Manufacturing and Logistics

5.4.5 To the south of Baglan Energy Park, Area 2 is considered suitable for mediumsized B2/B8 uses with a focus on advanced engineering, manufacturing and material,construction and logistics businesses. This section of the allocation can provide space foractivity and investment triggered by the University Campus. There is also scope for amixed use development and a local centre to the east of Area 2 on Zone 6.

Area 3 - Energy

5.4.6 Area 3 has potential to capture very large and mobile investment projects includingenergy generation schemes. The GE power plant is already located within Baglan EnergyPark whilst a further power station and solar PV farm has been permitted within Area 3.It is considered that the site can support the energy sector including energy generationand use and renewable energy, as well as businesses promoting emerging low carbonenergy and technologies and environmental goods and services. Many energy generatingproposals will not fall within any use class, for example, photovoltaic schemes. Proposalsfor such uses do not therefore contribute to the projected need of B Class uses. Area 3also includes a small section to the very south of the site suitable for B1 uses.


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5.5 Phasing

5.5.1 The scale of the site together with its accessibility and proposed, existing orsurrounding uses means that the site lends itself to a whole range of occupiers andactivities. The presence of existing and future improvements to substantial infrastructurewill also be a key benefit in attracting market interest in growing economic sectors.

5.5.2 The successful development of Baglan Energy Park demonstrates the viable andcommercial attractiveness of the site. It is expected that development at Baglan Bay willextend beyond the Plan period with an anticipated 11 hectares of B space land developedby 2026. This equates to 27,500sqm of floorspace when calculated using a 0.25 plot ratio.

5.5.3 The anticipated phasing of the site is set out in the following table:

Years 13 to 16Years 10 to 12Years 7 to 9Years 4 to 6Years 1 to 3

2023/20262020/20232017/20202014/20172011/2014

6,875sqm6,875sqm6,875sqm6,875sqm0


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6 Low and Zero Carbon Energy6.0.1 In accordance with national policy guidance, in 2012 the Authority completed a‘Renewable Energy Assessment’ (REA) which examined the potential within Neath PortTalbot to generate renewable energy.

6.0.2 The conclusion of the REA outlined that the percentage of renewable electricitygeneration in Neath Port Talbot greatly exceeds the UK-wide target. Heat demandpotentially met by renewable energy sources however, is substantially below the 12%target. In response to this Policy RE2 (Renewable and Low Carbon Energy in NewDevelopment) of the LDP seeks to encourages new schemes to connect to existing sourcesof renewable energy, district heating networks and to incorporate on site zero / low carbontechnology (including microgeneration technologies).

6.0.3 The policy stipulates that residential development of 100 or more dwellings anddevelopment with a total floorspace of 1000sqm or more, will need to be accompanied byan Energy Assessment which sets out how the proposal can make a contribution towardsincreased levels of energy generation from renewable and low carbon sources.

6.0.4 In March 2010, Ove Arup & Partners produced a 'Heat Mapping & District HeatingFeasibility Study' for the Authority which provided a high level feasibility study to establishan estimation of waste heat availability in and around Port Talbot and the potential for adistrict heating network to be established. The Study identified that GE Gas fired PowerPlant located in Baglan Energy Park has a surplus of heat energy that has the potentialto be connected to a district heating network to serve nearby developments. It also identifiedthat further development on Baglan Energy Park has the potential to feed into any districtheating networks that are established. Some of the companies within the Energy Parkcurrently benefits from the power plant offering a more sustainable energy supply.

6.0.5 Accordingly and where relevant, development proposals put forward on BaglanBay will need to be accompanied by an Energy Assessment. The Assessment will needto investigate the potential to incorporate on-site zero and low carbon equipment andestablish connections to existing sources of renewable energy. Opportunities for linkingwith district heating networks and where appropriate sharing renewable energy with thewider public should also be explored. Further information on what is expected from theseEnergy Assessments will be outlined in relevant Supplementary Planning Guidance.

6 . Low and Zero Carbon Energy

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6 . Low and Zero Carbon Energy

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7 Implementation and Monitoring7.0.1 Implementation of the provisions of this SPG will depend upon the collaborationof the landowner, developers and partners to deliver appropriate development. The SPGis intended for residents, the community, developers, businesses and the Local PlanningAuthority and will be a material consideration when planning proposals within the area areconsidered. Proposals for development which do not contribute towards achieving theobjectives of comprehensive development of the area will therefore not be acceptable.

7.0.2 All new buildings and developments are expected to be of a high standard ofdesign. Technical Advice Note 12 'Design' provides guidance and LDP Policy BE1 setsout the approach that will be taken by the Council. Further advice will also be availablefrom the Council's Design SPG.

7.0.3 The employment floorspace allocated within the LDP will be subject to rigorousmonitoring to ensure that the underlying LDP objectives are being met. To this end, it isconsidered that interim targets at points throughout the Plan period are an effective meansof tracking progress. The LDP monitoring framework has established interim targets at 3year intervals up to 2026 which will allow the impact of potentially fast-moving economiccircumstances to be assessed against the LDP requirements, with any economic upturn,or indeed downturn, accounted for accordingly.

7.0.4 The Annual Monitoring Report will provide the means by which employment landand floorspace data will be placed into context with a comprehensive analysis of economicand labour market indicators to establish the successful implementation of the LDP. Wherethe targets for delivering employment development have not been achieved, a furtherassessment of the constraints and market conditions will be undertaken to determine thelikely causes. The progress of the employment floorspace at Baglan Bay will be consideredduring this monitoring process ensuring that if the anticipated demand for the site were tochange, this could be addressed through a review of the Plan.

7.0.5 Furthermore, priorities and projects may change during delivery of the development,as economic conditions change and new opportunities arise and accordingly the SPG willcontinue to be reviewed periodically to ensure that it remains responsive to changes incircumstances.

7 . Implementation and Monitoring

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