15.1 The Prosperity policies aim to protect existing employment uses and encourage and support future employment uses in designated areas, and to avoid the loss of overall job numbers in the district. They support start-up and small business units to promote entrepreneurship and economic regeneration across the district.
15.2 Harlow’s retail centres provide prosperity and employment for residents and visitors and the town and serves as a sub-regional centre for services and facilities across the wider area. The Prosperity policies, therefore, intend to retain and enhance the existing provision in order to maintain Harlow’s sub-regional role.
15.3 There are several Retail Parks in Harlow which contribute to retail provision in the town. A key priority is to maintain and enhance the role of Harlow Town Centre and, as such, the policies seek to restrict the sub-division of units.
15.4 Proposals for retail development and other large attractors of people such as commercial, leisure, entertainment and offices open to the public, will be determined using the sequential approach to their siting. This will ensure that sites in the Town Centre are considered in the first instance, followed by edge-of-centre, then Neighbourhoods, then Hatches, then Retail Parks. Out-of-centre locations will only be considered as a last resort. Development must be appropriate to the function, size and character of the centre in which it would be located.
15.5 This chapter and the policies contained within it will help deliver the following Corporate Priorities:
15.6 This chapter and the policies contained within it will help deliver the following Local Plan Strategic Objectives:
PR1 Development within Employment Areas
Development in existing Employment Areas, as identified on the Policies Map, will be supported where it is for the provision of offices, research and development, light or general industrial, warehouse or distribution within Use Classes B1, B2 and B8.
Development for Use Classes other than B1, B2 and B8 must meet the following criteria:
15.7 Similarly to Ebenezer Howard’s plans for Garden Cities, Sir Frederick Gibberd designed Harlow New Town to separate employment areas from residential areas to ensure the health and wellbeing of residents. Sufficient employment areas were allocated to meet the needs of local residents and reduce out-commuting, offering a wide range of jobs to create a well-balanced community. Therefore, this policy aims to maintain and enhance these principles.
15.8 In recognition of Harlow residents’ employment needs, specific areas have been designated Enterprise Zone status by the Government. Local Development Orders on the Enterprise Zones promote and guide specific employment uses and activities. The Local Development Order for the northern part of the London Road Zone, for example, supports a mix of retail, leisure and employment uses in an appropriate zone with a separate area for research and development and industrial uses. In the future, if it is identified in a regeneration strategy or development brief, other uses will be supported.
15.9 This policy sets out a general presumption against the loss of office, industrial or distribution/warehouse uses from the district’s allocated employment areas.
There may be exceptions to this where proposals support existing employment uses, such as trade counters or training/testing facilities.
15.10 Proposals for non-B uses should be accompanied by a planning statement to address all the following:
15.11 In reference to criteria (d) above, locations which the Council consider to be more suitable will be determined by the type and scale of use being proposed. For example, a retail use would be located in Harlow Town Centre in the first instance and then to Neighbourhood Areas and Hatches. Marketing of an employment site, as set out in criteria (e) above, must be undertaken by a suitably competent person for at least one year.
PR2 Development within Neighbourhood Service Areas
Development in the existing Neighbourhood Service Areas, as identified on the Policies Map, will be supported for the provision of offices, light industrial uses and start-up units falling within Use Class B1.
Proposals for Use Class B1 and other Use Classes must not involve the amalgamation of units in Neighbourhood Service Areas into larger units.
For uses other than Use Class B1, the following criteria must be met:
15.12 The district’s Neighbourhood Service Areas provide important employment provision at the neighbourhood level and are well suited to meet the needs of small start-up businesses, with units of approximately 20 to 40 sqm in size being typically available. Such units provide opportunities to accommodate first time businesses and can help to reduce inappropriate business uses proliferating in residential areas, particularly those which affect the amenity of residents.
15.13 The majority of local businesses in Harlow (84%21) have fewer than 10 employees and therefore there is a pressing need for starter units, in order to accommodate smaller teams of staff, to reduce overheads and to use space efficiently. This policy aims to protect Neighbourhood Service Areas and the provision of office, light industrial and research.
15.14 This policy sets out a general presumption against the loss of B1 uses. It also encourages more flexible employment accommodation in Neighbourhood Service Areas. Their proximity to retail and residential areas mean that there may be exceptions to this.
15.15 Proposals for non-B1 uses should be accompanied by a planning statement setting out information on the following matters:
15.16 In reference to criteria (d) above, locations which the Council consider to be more suitable will be determined on the type and scale of use being proposed.
For example, a retail use will be better located in Harlow Town Centre in the first instance and then to Neighbourhood Areas and Hatches. Marketing of an employment site, as set out in criteria (e) above, must be undertaken by a suitably competent person.
PR3 Employment Development Outside Employment Areas and Neighbourhood Service Areas
15.17 Employment Areas and Neighbourhood Service Areas are the main focus of employment provision in Harlow and contain a mix of accommodation for a range of business types.
15.18 Harlow Town Centre also contains a number of office buildings, which not only provide jobs for the local area and beyond, but also reinforce the vitality of the Town Centre by increasing footfall in addition to that associated with day time shoppers and other visitors. Office uses above ground floor and outside of primary retail frontages will, therefore, be encouraged.
15.19 Use Classes B2 and B8 will not be considered appropriate outside of these areas due to their impact on the amenity of an area in terms of general disturbance, noise and vehicle movements.
15.20 There will be instances where the loss of an employment use or the provision of a new employment use outside of strategic employment sites and Neighbourhood Service Areas may be considered appropriate. This policy sets out the criteria for how such proposals will be determined.
PR4 Improving Job Access and Training
For major development, provision through planning obligations will be sought for:
15.21 This policy actively looks to generate new job opportunities for local residents as a direct result of the growth in the district and to secure regeneration in Harlow.
This policy focuses on new job opportunities that the development will create, either as long-term posts or temporary labour, and improving work related training and education. The aim is to get local residents back into work and to improve their skills level.
15.22 Job opportunities may include long-term job creation, temporary job creation through the construction of a development, work experience and placements, apprenticeships and pre-employment training scheme placements. This policy also actively seeks the provision of childcare schemes in employment generating proposals.
15.23 Planning obligations will only be sought where they meet all of the following criteria, namely they are necessary to make development acceptable in planning terms, are directly related to development and are fairly and reasonably related in scale and kind to the development.
15.24 This policy will be applied to major developments and secured through planning obligations, tailored to individual schemes. Applicants should prepare an action plan setting out a schedule of new job opportunities to be created through the proposed development, the process by which jobs will be advertised to local people and the method in which the provision of jobs for local residents will be monitored. For employment generating developments, the action plan should also outline training provision, education opportunities and childcare support. Where possible, the action plan should extend to all sub-contractors.
PR5 The Sequential Test and Principles for Main Town Centre Uses
15.25 The vitality and viability of the Town Centre is important to the local economy and to ensure it is an attractive place for residents, employees and visitors. This is particularly pertinent as the services and facilities available also serve a catchment area that extends beyond the district boundary. The Town Centre is a sustainable transport hub, well-served by public transport, which has good connectivity with key locations along the London Stansted Cambridge Corridor. This policy directs Main Town Centre Uses towards the Town Centre in order to preserve and/or enhance its position.
15.26 In the retail hierarchy of Harlow, subservient to the Town Centre are the Neighbourhood Centres, followed by Hatches, which reflect the principles and hierarchy of the original New Town which ensure different types of retail provision are provided to meet local needs.
15.27 Policy RS1 sets out the hierarchy of retail centres in Harlow and this is the hierarchy in which Main Town Centre Uses should be directed to first before any out of Town Centre sites are considered.
15.28 Proposals for retail and leisure uses outside of the Town Centre which exceed 500sqm in size will be required to be supported by an impact assessment demonstrating that the proposal will not have a negative impact on the vitality and viability of the Town Centre and that the development increases overall sustainability and accessibility. This is to support the Town Centre’s market share and to prevent the decline of the retail offer. This ensures that any potential impacts of retail and leisure uses outside of the Town Centre are fully assessed.
15.29 This policy seeks to maintain active frontages in all retail centres to provide an attractive environment for pedestrians. Active frontages could include display windows, entrance points, façade design or clear glazing. Blank and inaccessible frontages should be avoided.
15.30 In considering proposals in Neighbourhood Centres and Hatches, reference should be made to the adopted Harlow Design Guide SPD and any associated regeneration strategy or development brief.
PR6 Primary and Secondary Frontages in the Town Centre
Development in the Town Centre primary frontages will be supported where
15.31 Primary and secondary retail frontages protect and enhance the existing retail offer by preventing a proliferation of uses which are not conducive to maintaining the vitality and viability of the Town Centre. Defining frontage lengths and classifying appropriate uses in frontages provide opportunities to regenerate and improve certain parts of the Town Centre and protect retail provision in others.
15.32 This policy supports Main Town Centre Uses, including commercial, leisure, evening and night-time uses in secondary frontages.
15.33 Where marketing of the unit is required to justify a non-A1 use in the primary frontage, it should be undertaken by a suitably competent person for at least twelve months. A planning statement must be submitted setting out how this marketing exercise has been undertaken.
15.34 Within secondary frontages, Main Town Centre Uses will be considered acceptable except for office development which is considered appropriate only on first floor levels and above. This is to prevent blank ground floor frontages in the Town Centre that could harm the vitality of the area. For proposals relating to evening and night time uses, Policy PR11 should also be taken into consideration.
PR7 Sub-division and Internal Alteration of Town Centre Units
The sub-division of retail units in the Town Centre and the internal alteration of existing retail units must meet the following criteria:
15.35 In order to retain Harlow Town Centre’s status as a sub-regional centre, it is important that it is able to provide a mix of retail unit sizes in order to ensure choice and attract a mix of occupiers. This policy aims to retain the Town Centre’s larger retail units and to manage the sub-division of these units where it is considered appropriate.
15.36 The 2017 Retail and Leisure Needs Study identified the former department store as providing an opportunity to introduce a new anchor operator in the Town Centre and that the lack of a department store represents a significant gap in the retail offer available in the town. This policy therefore seeks to retain these larger units in order to provide opportunities to attract an anchor store or department store.
15.37 In circumstances where sub-division is sought for units above 2,500sqm in size, a marketing exercise must be undertaken by a suitably competent person for a period of at least two years. A planning statement must be submitted setting out how this has been undertaken. This will demonstrate to the Council that the unit has not been able to attract retail operators who are more likely to act as anchors or which provide department store size facilities.
15.38 The threshold of 2,500sqm has been calculated based on an assessment of existing Town Centre units which are considered large enough to accommodate such services or which are located at anchor points in the town i.e. close to high footfall levels and/or interchange facilities.
PR8 Frontages in Neighbourhood Centres
Development in Neighbourhood Centre frontages, which falls in Use Classes A1, A2, A3, A4, A5, D1, D2, Sui Generis and C3, will be supported subject to the following criteria:
15.39 This policy seeks to support a wider range of services and facilities within Neighbourhood Centres for local residents. These Centres provide services, such as healthcare, places to eat and drink and financial services. It is important that Neighbourhood Centres continue to have a variety of uses to avoid underused frontages and spaces.
15.40 The frontages are mapped in the Appendices. The definition of frontage length and the method by which frontage length will be calculated will be set out in the Council’s Authority Monitoring Report (AMR).
PR9 Development in Hatches
Development in Hatches must meet the following criteria:
15.41 Hatches are a key feature of Harlow’s residential areas. They are allocated on the Policies Map and cater for the daily needs of communities within approximately a 400 metre walk of homes. Hatches are usually based around a primary school or local open space and contain around four to five individual retail units, community facilities and public houses which often provide a focus for community activities.
15.42 This policy aims to retain key local facilities which support the vitality and viability of the Hatches. Development proposals that would undermine and erode the function of Hatches would not be supported.
15.43 A number of Hatches now require investment or renewal and for those that have already been regenerated, a mix of uses has been provided as a result, including residential and office space. The Strategic policies provide for comprehensive redevelopment of Hatches.
15.44 This policy supports a diverse mix of uses in the Hatches in order to assist in their regeneration and renewal. However in order to maintain their local service functions and community focus, this policy protects community type facilities. These facilities include public houses, convenience stores such as grocers and butchers, community halls and healthcare facilities.
PR10 Development in Retail Parks
Development in Retail Parks must meet the following criteria:
For sub-division, evidence must be provided to demonstrate that the existing unit has been actively marketed for Use Class A1, to the satisfaction of the Council, for at least 12 months.
15.45 National planning policies and guidance set out the need for a sequential test in order to maintain Town Centre vitality and viability. This ensures that where possible, retail and leisure outlets will locate in the Town Centre before being granted permission in an out of town location. The results of the most recent analysis of retail provision in Harlow show that new requirements for retail floorspace should be focused on the Town Centre.
15.46 To promote this principle, this policy ensures that retail units for the sale of non-bulky goods are directed to smaller units in the Town Centre, Neighbourhood Centres and Hatches. This policy, therefore, restricts the sub-division of Retail Park units.
15.47 The term ‘bulky goods’ can include DIY goods, furniture, hard and soft furnishings, homewares, fabrics, durable household goods, floor coverings, leisure and garden products, motor accessories and electrical goods. Leisure activities include cinemas, dance halls, gyms and indoor sports centres, but do not include eating and drinking establishments. These definitions are not exhaustive.
15.48 This policy supports the sub-division of existing units in the Retail Park subject to the sub-division not resulting in a separate unit being less than 1,000sqm. It is considered that this figure would allow larger units to be divided whilst still having the flexibility to offer space for bulky goods and mitigating the impact on the Town Centre’s viability and vitality from the sale of non-bulky goods.
PR11 Evening and Night Time Economy
15.49 The evening and night time economy is important to wider regeneration objectives, employment creation and maintaining and improving the quality of life for residents and visitors.
15.50 There are many benefits to promoting such activities. The leisure and entertainment industry provides employment, in particular for young people.
A busy, vibrant Town Centre, in both the daytime and evening, can improve the quality and ambience of the Town Centre, and improve wider public perception to secure investment.
15.51 Where there may be potential negative impacts associated with evening and night time uses, the Council will seek to mitigate this through legal agreements or conditions to ensure the development does not lead to significant problems such as crime, anti-social behaviour, litter and noise nuisance.
15.52 Evening uses include drinking establishments, restaurants and pubs that are open in the evening. Late night uses include night clubs and drinking establishments which are often open beyond midnight. This list is not exhaustive and the Council has the discretion to determine what constitutes evening and late night activities.
15.53 The location of evening and night time establishments will be considered carefully and would only be permitted where they would not give rise to unacceptable amenity and environmental impacts which could not be overcome by the imposition of conditions. Where necessary, planning permission will be granted subject to conditions restricting opening and/or removing permitted development rights to change to alternative uses, in order to protect the amenity of surrounding occupants and the viability and vitality of the area generally. The location of the proposal must also comply with Policy PR6.
15.54 In terms of noise, an impact assessment may be required, taking into account the context of the site, in particular its proximity to existing residential developments.
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