Policy DM19 Offices
Inclusion of offices within development proposals
In the priority areas for office development within the city centre, as defined on the Policies map, development on all sites over 0.25 hectare will be expected to include an element of office floorspace. Proposals not including an office element will only be permitted where it can be demonstrated that offices are not feasible or viable on a specific site.
Location for new office development
Development for new B1 offices within the priority areas for office development, the city centre, large district centres and existing and proposed district and local centres as defined on the Policies map and in appendix 4, will be permitted where:
a) their scale is appropriate to the centre’s position in the hierarchy as set out in JCS policy 19 and does not exceed the indicative thresholds set out in Appendix 4; and
b) the proposal would not conflict with the overall sustainable development criteria set out in policy DM1 of this plan, and
c) if involving a change of use in a defined centre, the proposal accords with policies DM20 and DM21 of this plan.
Proposals for new B1 offices which are not within a defined centre (other than those forming part of a specific development allocation within the Site allocations plan) will be permitted where:
a) the proposal would not conflict with the overall sustainable development criteria set out in policy DM1 of this plan, and
b) the proposal is justified by a sequential site assessment (and where applicable, impact assessment) applying to the scale of development proposed.
The sequential and impact assessments must demonstrate clearly that:
- the proposal could not be accommodated on any reasonable alternative and available site or sites within or adjacent to a defined centre at the appropriate level of the hierarchy; and
- the proposal would not result in a significantly harmful impact on the vitality and viability of the city centre or other existing and proposed centres, would not compromise committed proposals for their expansion and would not significantly undermine prospects for their regeneration, improvement or enhancement.
Proposals for B1 office development in defined employment areas will be permitted where:
a) the sequential and impact assessment requirements have been satisfied and it is demonstrated that it is not practical to accommodate the development on a more sequentially preferable or accessible site; and
b) the use is appropriate to the character and function of the employment area; or
c) the office use is ancillary to or associated with an existing use already on the employment area.
Protection of high quality office space
Proposals involving the redevelopment or (where permission is required), the change of use for non residential purposes in whole or in part of larger existing office premises of 1,500 sq. m gross internal area and over will not be permitted unless:
a) In all cases, it can be demonstrated that the premises are no longer fit for purpose and their retention or upgrading and continued occupation for office purposes would not be economically viable, feasible or practicable; and
b) In the city centre, it can be demonstrated that the proposal would support wider strategic objectives for the centre, (as set out in JCS policy 11) which would outweigh the loss of the office space; or
c) The proposal involves the redevelopment of the office space with replacement accommodation of an equal or higher standard; or
d) The proposal would bring a long-term vacant designated or locally identified heritage asset back into beneficial use.
The upgrading of other existing poor quality office space and smaller office premises will be supported. Proposals which improve the efficiency, usability and appearance of office accommodation or provide additional office floorspace through extension or adaptation will be permitted, provided that any disbenefits which arise from the proposal, such as impact on landscape or streetscape, do not outweigh the benefits of the improvements.
Supplementary text
19.1 The promotion of new high quality office development and protection of a supply of suitable business floorspace in sustainable and accessible locations is a crucial element of the city council’s development strategy for Norwich. In particular the retention of a substantial office employment base in the city centre is critical to maintaining the long-term viability and vitality of the city as a retail and visitor destination and a major employment hub. Both these objectives align with the NPPF’s emphasis on sustainable development, supporting the needs of business and protecting town centres. The JCS makes clear that the city centre should be the main focus for retail, leisure and office development, with housing and educational development reinforcing the vibrancy of the centre.
19.2 The long-term future of office employment in the city centre rests on the availability of modern office floorspace of exceptional quality (Grade A) in attractive locations, alongside the retention and upgrading of existing office premises where feasible. In recent years there have been significant job losses in the city, most markedly in office based jobs in the financial and public services sectors both through downsizing of established employers and decentralising office accommodation to less sustainable peripheral sites outside the city. This has resulted in something of an imbalance between city centre and out of centre office employment and an overall increase in the need to travel if office workplaces are over reliant on accessibility by car. For this imbalance to worsen would run counter to the sustainable development objectives of the NPPF and the objectives of the JCS to promote sustainable accessibility and attract a substantial quantum of new office floorspace to the city centre.
19.3 Sustaining a supply of good quality office premises and providing for new office floorspace is therefore necessary both to support the required economic growth in the area and to retain the strength of the city centre, the most sustainable location for office development in the sub-region. The purpose of this policy is to seek to maintain an appropriate supply of existing high quality (Grade A) office space and Grade B space which is capable of being upgraded to an equivalent standard. It also seeks to promote the upgrading of poorer quality office space where it is viable and practicable to do so, and provide new office accommodation in defined areas of the city centre and in other accessible and sustainable locations where this is consistent with business needs, complies with the overall sustainability objectives of national policy and the JCS and does not compromise the objectives of this plan for the economic regeneration of the centre.
19.4 The Greater Norwich employment growth and premises study 2008 (the Arup study) acknowledges that Norwich, like several other cities, needs to address the tension of developing office space within the city and on the city fringes. It estimates that the city centre will need to accommodate at least 100,000 sq. m of new offices up to 2026 to support the level of growth required and identifying potential areas for significant growth which have informed the definition of the office priority areas in this plan.
19.5 The subsequent economic downturn has reduced the immediate impetus for large-scale new build office development in the centre at least for the short term, although some consented schemes are still likely to proceed and others may be reconfigured to enable existing premises to be retained and upgraded or converted to residential use rather than redeveloped. Although the most recent market indications show a significant upturn in the demand for office space locally, the recent depletion of office based employment in Norwich city and the lack of good quality accommodation could reduce the impetus for new office development to be brought forward in the centre and extend the timescale for such development to become viable. It is also possible that new ways of working and fuller integration of mobile information and communications technologies into working practices may reduce the need for employment to be based full time in large-scale purpose-built office premises, perhaps favouring smaller formats, live work units or home working. This may in turn reduce the overall need for office floorspace assumed in the Arup study for a particular level of job growth.
19.6 The application of the policy, both in relation to new office development and the management of the existing stock, will therefore need to be carefully monitored. Future reviews of business floorspace need, taking account of employment trends and market demand, will be required to ensure that this policy remains up-to-date and relevant over the course of the plan period.
19.7 Objective studies of longer term need prepared by the Greater Anglia LEP and informing the greater Norwich economic strategy show that, with its strong focus on financial services, creative industries and knowledge based economy, the city will have a strong dependency on office employment and a substantial requirement for new office space for the foreseeable future. That floorspace must be located as sustainably and accessibly as possible. Accordingly local policies must ensure that the city centre remains attractive to office employers and new city centre office provision will need to compete effectively with out-of-town campus and business park style development, providing appropriately and flexibly for the needs of businesses, supporting and offering the benefits of a location with sustainable access to all city centre facilities.
19.8 To achieve this, the policy aims to ensure that longer term opportunities for sustainably located office development in the city centre are made use of by establishing an office priority area. Developments on sites over 0.25 hectares in the office priority areas should include an indicative minimum proportion of 25% of total floorspace for business use. Any schemes which do not provide office space will need to provide evidence of a lack of demand, feasibility or viability and proposals clearly intended to subdivide sites into smaller parcels to avoid the 0.25 hectare threshold will not be accepted. This policy also aims to restrict development which results in the loss of high quality office space unless there is a clear justification on the grounds of feasibility and economic viability for reuse or redevelopment for other purposes, or where an alternative use would bring compensatory economic benefits, for example by increasing opportunities for accessible education or training. It is acknowledged that in periods where office development is demonstrably unviable, it will be necessary to take a flexible approach to secure the most beneficial development solution, taking account of the presumption in favour of sustainable development in the NPPF and the policies and objectives of this plan as a whole.
19.9 The Office development Priority Area includes the parts of the city centre specified within the JCS as areas of comprehensive redevelopment and key areas of change with a focus on commercial development. It includes a zone in the south-east of the city centre between the rail station and Queens Road, talking in Rose Lane/Mountergate and King Street/Rouen Road. This area benefits from sustainable transport links and a high level of pedestrian accessibility.
19.10 The undeveloped part of the St James Place development at Barrack Street/Whitefriars is also identified as part of the Office Development Priority Area. This site provides the opportunity for new high quality, centrally located office floorspace to be provided in the early part of the plan period. It is part of an emerging office employment hub with links to Anglia Square. The area has good accessibility between to the remainder of the city centre with Jarrold Bridge providing a direct pedestrian/cycle link across the river Wensum to the Riverside Walk, connecting to Bishopgate and the professional office quarter around the cathedral.
19.11 Area wide regeneration based on office development is supported by site specific allocations in the Site allocations plan and small area plans. An outline masterplan for the St Stephens area has helped to inform the Site allocations plan. It identifies sites with potential for up to 50,000 sq. m of new office floorspace, (albeit that this quantum of floorspace is unlikely to be deliverable in the immediate future). It is expected that more detailed plans and delivery programmes established through partnership working as part of the emerging South city centre plan will also help to deliver office allocations in the Rose Lane/Mountergate area, which has the potential to accommodate a similar amount of office space.
19.12 It should be noted that the policy does not seek to protect all offices. Rather, it seeks to apply proportionate safeguards which would require developers to justify the loss of the best quality space - that is high quality office space with a net floorspace greater than 1,500 square metres. Premises smaller than this will be covered by policy DM17 relating to small and medium-scale businesses. High quality office space can be defined as Grade A and B office space. Grade A offices are defined as new or recently refurbished, high quality facilities in prime, accessible locations. Grade B offices are of a good standard with adequate facilities and accessibility.
19.13 The city also contains a wider variety of existing older office buildings many of which do not to meet modern user requirements, defined as Grade C standard. Where economically viable, feasible and practicable the preference of the council is for these premises to be upgraded, rather than redeveloped or converted for alternative uses; however there will be instances where there is no reasonably practicable or viable means of making them fit for purpose for office occupation, where they are poorly located or where the proximity of potentially conflicting uses and activities makes them commercially unattractive.
19.14 In many cases older office premises will be suitable for beneficial conversion to housing, which will not require planning permission for the early part of the plan period. In instances where proposals involve other uses, the council will apply flexibility on a case-by-case basis, taking account of the presumption in favour of sustainable development in the NPPF and the policies and objectives of this plan as a whole.
References
- NPPF: CLG, 2012: Section 1: Building a strong, prosperous economy: Supporting economic development: identify and plan for new or emerging sectors likely to locate in the area, plan positively for the location, promotion and expansion of clusters or networks of knowledge driven, creative or high technology industries; identify priority areas for economic regeneration, infrastructure provision and environmental enhancement.
- National Planning Practice Guidance, CLG 2014: Ensuring the vitality of town centres; Housing and economic development needs assessments; Housing and economic land availability assessment.
- JCS policy 9: Strategy for growth in the Norwich Policy Area.
- JCS policy 11: Norwich city centre.
- Greater Norwich employment growth and sites and premises study, Arup/Oxford Economics, 2008.
- Employment topic paper, April 2013.
