6.1 Tourism development is an essential element in securing the diversification of the rural economy and is the mainstay of the local economy in the County's leading resort of Bridlington and many of the coastal villages. The Borough Council recognises the importance of tourism to the Borough but acknowledges that the tourist industry is largely dependent on a regional rather than national catchment population. This reliance on a specific market leaves the Borough susceptible to large fluctuations in demand principally as a result of influences outside the Borough Council's control. In order to reduce the effects of these fluctuations the Council is active in promoting initiatives, guided by its annual economic strategy, to create new tourism markets and to extend the tourist season. The effectiveness of such initiatives will be enhanced through a land use framework which provides encouragement for investment in new tourism ventures.
6.2 The Borough's attributes for tourism development have, in the past been little acknowledged. Traditionally attention has been focused on the coast, particularly the resort of Bridlington, as a base for self catering holidays or day visits, the main attractions being the beach and the associated leisure/amusement areas, the harbour, the promenades and Sewerby Hall. But in recent years, there has been some change reflecting increasing awareness and concern for protecting the environment.
6.3 The Flamborough Headland was designated as a Heritage Coast in 1979 and a Heritage Coast Project was set up in 1982 to ensure that public enjoyment is compatible with protecting and conserving the natural beauty and scientific significance of the area. A management plan was prepared in 1988 and is currently being revised. This is of particular importance now that the Flamborough Headland is recognised as being of international significance for its bird life.
6.4 Tourism elsewhere within the Borough has tended to be low key, and reliant upon particular landscape features such as Sledmere House, Burton Agnes Hall and the network of public footpaths crossing the Wolds landscape. Villages such as Stamford Bridge have a particular appeal because of their historical significance and the river valleys and canals attract visitors because of their nature conservation interest and their landscape setting.
6.5 More recently the quality of the Borough's landscape has attracted interest in new forms of tourism development. Planning permission was granted in 1991 for a major new holiday village south of Market Weighton. The extent of the site covered by the current planning permission for the holiday village is shown on the Proposals Map. This follows the theme of "Green Tourism" evolving on the Continent and is indicative of the way in which major new development can offer significant benefits to the local economy and enhance the appreciation of the local environment.
6.6 PPG21 - "Tourism", sets out the Government's view that the benefits of tourism are to be encouraged, particularly where they will add diversity to the local economy and assist in the protection and enhancement of the landscape. The Humberside Structure Plan builds on the strength of the resort as the main attraction and encourages the provision of new facilities in the larger settlements where they can support existing services.
6.7 The Local Plan provides the detailed framework within which specific proposals can be considered and the following objectives have been established to ensure that the opportunities for developing tourism are used to best advantage and will provide a basis for the management of visitor pressure.
OBJECTIVES
1. TO ENCOURAGE TOURISM DEVELOPMENT WHERE IT WILL BENEFIT LOCAL RESIDENTS AND VISITORS ALIKE.
2. TO MAINTAIN, IMPROVE AND BROADEN THE RANGE OF TOURIST FACILITIES.
3. TO MAXIMISE THE BENEFITS OF TOURISM DEVELOPMENT THROUGH AN EXTENDED TOURIST SEASON.
4. TO ENSURE THAT DEVELOPMENT IS COMPATIBLE WITH THE QUALITY AND CHARACTER OF THE ENVIRONMENT AND RECOGNISES ITS SIGNIFICANCE OR POTENTIAL AS A RESOURCE FOR NATURE CONSERVATION..
POLICY T1 -TOURISM DEVELOPMENT
PROPOSALS FOR TOURISM DEVELOPMENT WITHIN DEFINED DEVELOPMENT LIMITS, ON SITES ALLOCATED FOR SUCH USE OR WITHIN EXISTING CARAVAN, CAMPING OR CHALET PARKS WILL BE PERMITTED WHERE, IN TERMS OF THEIR SITING, SIZE, DESIGN, OPERATIONAL CHARACTERISTICS AND VISITOR PRESSURE:
1. THEY WILL NOT CONFLICT WITH ADJOINING USES OR OTHERWISE HARM THE CHARACTER OR APPEARANCE OF THE SURROUNDING AREA; AND
2. THEY WILL NOT PREJUDICE THE IMPLEMENTATION OF ALLOCATIONS MADE ON ADJOINING LAND; AND
3. THEY ARE ACCEPTABLE IN TERMS OF POLICIES FOR NATURE CONSERVATION.
ADDITIONALLY, PROPOSALS IN OTHER LOCATIONS WILL BE PERMITTED WHERE:
4. THEY CANNOT BE IMPLEMENTED WITHIN THE DEFINED AREAS; AND
5. THEY SATISFY ALL RELEVANT ENVIRONMENTAL AND COASTAL ZONE POLICIES IN THE PLAN; AND
6. THEY WILL BE WELL RELATED TO THE PUBLIC TRANSPORT NETWORK.
Justification
6.8 Tourism is a dynamic industry which can respond quickly to changing fashions and trends. Because of this it is difficult to anticipate how changes within the industry will effect the use of land and its effects on the surrounding area. Although the resort of Bridlington is an obvious location for new development, opportunities may arise elsewhere within the Borough. The Borough Council considers that a major asset in terms of visitor appeal is the quality of its landscape. It is important therefore, given the changeable nature of tourism, that the character of the landscape is not threatened and that new development is, wherever possible, directed towards the built up areas where it can benefit from and support existing services.
6.9 Where proposals cannot reasonably be located within the built-up areas they may still be acceptable where they would not lead to harm on the environment and would be accessible to the widest range of visitors. Structure Plan Policy E10 provides support for such proposals as a means of attracting development which could broaden the tourist market, extend the tourist season or lead to better use of existing facilities.
6.10 The charm of the rural areas is a particular attraction, either as a holiday destination or as part of a through journey, and this charm must not be compromised by development which would be likely to dominate a locality. The Borough Council recognises that a wider appreciation of the Borough's natural feature s will assist in attracting support for the protection of the environment. However, "Green Tourism" proposals need to be carefully assessed to ensure that their attraction to visitors is compatible with the protection of the natural resource.
6.11 The designation of the Wolds Area of Landscape Protection recognises the tourism potential of this important landscape and seeks to promote opportunities for enjoyment where the visual characteristics and nature conservation interest of the area can be safeguarded.
6.12 To enable the Borough to gain the greatest benefit, in economic terms, from tourism the need for tourist accommodation must be met. Consistent with the general objective of reducing the need for travel, accommodation would be most effective where it is provided in the locations of highest demand. This will inevitably mean that provision should be made within the rural areas often in open countryside.
6.13 An important form of accommodation in the past in this Borough has been the caravan, predominantly on static caravan sites. Most sites have emerged to meet the needs of visitors to the coast and in some parts this has been at the cost of the coastal landscape. Government Guidance in PPG21 - "Tourism", recognises that providing an adequate choice of sites needs to be reconciled with the need to protect the environment which attracts holidaymakers.
6.14 With the growth in interest in more specialist interest holidays, short breaks and a longer tourist season, other opportunities are now being presented. Changes in agriculture are resulting in farm buildings becoming available for conversion. Often these are attractive and interesting buildings which add much to the character of the rural area. This resource should be exploited for the benefits 'that can bring in terms of diversification of the rural economy and the retention of important buildings. This approach is an exception to usual policies of restraint in the countryside in recognition of the needs of tourists and is supported through Government Guidance in PPG7- "Countryside and the Rural Economy". To ensure that development continues to meet the needs of tourists and to safeguard the countryside and local communities from the pressures which can arise from permanent residential use, holiday occupancy conditions will be applied. Seasonal occupancy conditions may also be applied to accommodation in locations where it is considered necessary to allow a period of respite to small rural communities or for fragile, natural habitats to regenerate, or to reduce disturbance to other nature conservation interests.
POLICY T2 - CONVERSIONS TO FORM TOURIST ACCOMMODATION
PROPOSALS FOR THE CONVERSION OF BUILDINGS TO PROVIDE TOURIST ACCOMMODATION WILL BE PERMITTED WHERE:
1. OCCUPATION OF THE PROPERTY AND ITS CURTILAGE WILL NOT ADVERSELY AFFECT THE VISUAL CHARACTER OF THE SURROUNDING AREA; AND
2. THEY WILL NOT CONFLICT WITH ADJOINING USES; AND
3. A SATISFACTORY STANDARD OF ACCOMMODATION CAN BE PROVIDED WITHOUT UNACCEPTABLY ALTERING THE CHARACTER OR SCALE OF THE ORIGINAL BUILDING; AND
4. THEY MAKE PROVISION FOR PROTECTING WILDLIFE SPECIES WHERE APPROPRIATE IN ACCORDANCE WITH POLICY EN11.
Justification
6.15 Other plan policies make provision for the conversion of farm buildings for employment purposes and, in certain circumstances, for residential accommodation. Holiday accommodation is an important element in the local economy, although it tends to be dominated by caravans and other self catering accommodation, guest houses and small hotels. The conversion of farm buildings to provide accommodation would add to the range o f visitor facilities and could help to extend the tourist season. They can also offer new life to an old building where otherwise it may fall into disrepair or where the standards required to support permanent residential occupancy cannot be met. To protect the character of the rural areas it is important that buildings retain their rural identity and therefore proposals which require alterations or extensions to buildings will require careful consideration.
6.16 Where buildings proposed for conversion are adjacent to operational farm buildings, or within protective distances of intensive livestock units (Policy EN23) the Council will be concerned to avoid conflict between future occupants and farming practices, particularly in terms of noise, smell, visual amenity and operational arrangements.
6.17 Redundant farm buildings can provide nesting and roosting places for protected species such as barn owls and bats and accordingly following Policy ENll, the Council will consult English Nature on all applications for conversion. Where the building is known to contain protected species, planning permission will only be granted where the proposal includes satisfactory safeguards for the protected species.
POLICY T3 - CARAVAN AND CAMPING PARKS
PROPOSALS FOR NEW OR EXTENDED HOLIDAY PARKS INCLUDING CARAVANS, CAMPING, CABINS OR CHALET ACCOMMODATION WILL BE PERMITTED WHERE, IN TERMS OF THEIR SITING, SIZE, APPEARANCE, OPERATIONAL CHARACTERISTICS, VISITOR PRESSURE AND CUMULATIVE EFFECTS WITH OTHER EXISTING OR COMMITTED SITES;
1. THEIR USE WILL NOT ADVERSELY AFFECT THE CHARACTER OR VISUAL APPEARANCE OF THE SURROUNDING AREA; AND
2. THEY WILL NOT CONFLICT WITH ADJOINING LAND USES; AND
3. THEY WOULD NOT GIVE RISE TO UNACCEPTABLE EFFECTS ON THE AMENITIES OF NEARBY RESIDENCIES; AND
4. THEY ARE ACCEPTABLE IN TERMS OF POLICIES FOR NATURE CONSERVATION; AND
5. THEY ARE READILY ACCESSIBLE FROM THE MAIN ROAD NETWORK AND WOULD NOT BE DETRIMENTAL TO HIGHWAY SAFETY.
ALL PROPOSALS WITHIN THE COASTAL ZONE WILL BE SUBJECT TO POLICIES CZ4 - CZ7.
Justification
6.18 A large part of the tourist industry within the Borough depends upon the existence of caravan accommodation. This is likely to continue but provision of an extended choice of holiday accommodation needs to balance the benefits of new proposals against the potential harm to the quality and character of the countryside which is regarded as one of the Borough's main attractions to holiday visitors.
6.19 Many of the existing caravan sites in the Borough, particularly in the Coastal Zone, would be unlikely to be approved in today's circumstances primarily due to their prominence in the landscape. This must be avoided in future proposals if the quality and character of the landscape is to be safeguarded. An additional important aspect is that the design of caravans is not subject to planning control. It is therefore important that, where sites are likely to remain, these harmful effects are mitigated as far as possible. In certain circumstances it may be reasonable to allow small scale extensions to existing sites in order to enable more spacious layout of units, perhaps incorporating a mixture of cabins and chalets which, by virtue of their permanence, would be subject to planning control over their design. Where this would be a possibility the Borough Council will be looking for substantial new areas of landscaping to improve the site's setting and to reduce its impact on the landscape.
6.20 Touring caravan and camping sites provide for a different holiday market than static sites. They are usually smaller and not so dependant upon particular locational characteristics such as the coast. Many small sites are licensed by the Caravan and Camping Club and are outside the scope of planning control. Where proposals do include provision for touring vans an important consideration will be the likely effect on the surrounding road network.
6.21 Of particular relevance to areas of nature conservation significance is the degree to which the area can be safeguarded from the disturbance attributable to increased visitor pressure. Policies ENB, 9 and 10 will guide consideration of this matter.
POLICY T4 - OCCUPANCY CONDITIONS ON TOURIST ACCOMMODATION
PROPOSALS ACCEPTABLE WITHIN THE TERMS OF POLICIES T2 AND T3 WILL BE SUBJECT TO 1 HOLIDAY OCCUPANCY CONDITIONS.
WHERE THE IMPACT ON LOCAL COMMUNITIES OR LOCAL ENVIRONMENTAL CONDITIONS REQUIRES ADDITIONAL CONTROL, SEASONAL OCCUPANCY CONDITIONS WILL BE APPLIED.
OCCUPANCY CONDITIONS WILL ONLY BE REMOVED WHERE PERMANENT RESIDENTIAL DEVELOPMENT WOULD SATISFY POLICIES H3 OR H6.
Justification
6.22 Tourist accommodation is often appropriate where permanent residential occupation would not be permitted because of its effects on the character of the surrounding area or because the standards of layout, parking and amenity space which would be required to support residential use could not be met. Policies T2 and T3 will allow new proposals to come forward to meet changes in the holiday market but it will be necessary to ensure that these are provided solely for the tourist industry.
6.23 Although modern caravans are now constructed to high standards, in general, caravan sites are not suitable for year round use. Particularly where sites do not have a permanent foliage screen, caravans can be intrusive and without hardstandings, which themselves create a more formal appearance out of character with many rural areas, ground disturbance can affect vehicle manoeuvrability. Additionally, sites may be located close to settlements whose residents value a period of respite from the pressures of tourism development, or near to fragile habitats which need time to recover or to allow wildlife breeding to take place.
6.24 In these circumstances PPG21 - "Tourism" advises that occupancy conditions should be imposed on planning permissions. Where justified on environmental grounds, seasonal occupancy conditions will be imposed. Elsewhere, where it is more a matter of limiting pressure on local services or of allowing development in very specific circumstances i.e. a barn conversion, holiday occupancy conditions will be used.
6.25 Where caravans, by the nature of their construction, are unsuitable for continuous use throughout the winter period, occupancy will normally be restricted between 30 November in any one year and 1 March in the succeeding year but exceptions may be made for weekends or public holiday periods. Where caravans are of an adequate construction standard to meet site licence requirements for year round occupation, then up to 10'/z months occupation will normally be permitted. This latter condition being necessary to ensure holiday occupancy.