8.1 Sport and recreation is an important element in the increasing pace of modem life. providing opportunities to relax and recuperate or to channel energies. Its benefits are wide ranging; from an individual's satisfaction on personal achievement, to the binding of local communities through joint participation or interest. Where participation flourishes, sport and recreation can help to underpin the economic structure of the Borough through supporting tourism or creating a desirable living environment which is attractive to inward investment.
8.2 The aim of the Plan is to secure and safeguard the basic infrastructure of recreational provision. This begins with the protection of existing facilities and the allocation of specific sites associated with planned development, to provide a resource upon which other agencies, particularly the Sports Council, can pursue initiatives to promote participation. Government guidance in PPGl7 "Sport and Recreation", supports this enabling role.
8.3 Through its role as a service provider, the Borough Council will continue to direct leisure services towards _the main population centres through partnership with the private sector and local organisations. The availability of opportunities secured through the Local Plan will enable these benefits to be extended further afield and as awareness and participation increase, support for specialist facilities will grow.
8.4 To underpin the Plan, the Borough Council assessed recreation provision through a borough wide survey undertaken in 1993 which identified a generally poor level of provision in the main towns as measured against standards recommended by the National Playing Fields Association. Improvements are expected through the implementation of Local Plan policies. Additional guidance and encouragement is set out in Policies EN1 8 - EN21 of the Humberside Structure Plan which places a high priority on meeting the needs of the built-up areas in locations which are readily accessible and where they will safeguard the environment.
8.5 Within this general framework, consideration of new development proposals will be guided by the following objectives:
1. TO ENCOURAGE THE AVAILABILITY OF A WIDE VARIETY OF RECREATIONAL OPPORTUNITIES FOR BOROUGH RESIDENTS AND VISITORS.
2. TO INCREASE PUBLIC ACCESS TO THE COAST AND PROMOTE NEW OPPORTUNITIES FOR THE ENJOYMENT OF THE COUNTRYSIDE.
3. TO ENSURE THAT PRESSURES FOR RECREATIONAL USE ARE ACCOMMODATED WHERE THEY ARE COMPATIBLE WITH THE CHARACTER OF THE AREA AND OTHER ENVIRONMENTAL OR NATURE CONSERVATION CONSTRAINTS.
4. TO ENSURE THAT RECREATIONAL PROVISION KEEPS PACE WITH NEW HOUSING DEVELOPMENT.
POLICY R1 - SPORT AND RECREATION DEVELOPMENT
PROPOSALS FOR SPORT AND RECREATION DEVELOPMENT WILL BE PERMITTED WHERE, IN TERMS OF THEIR SITING, SCALE, DESIGN, OPERATIONAL CHARACTERISTICS AND VISITOR PRESSURE:
1. THEY WILL NOT CONFLICT WITH ADJOINING USES OR OTHERWISE HARM THE CHARACTER, AMENITY OR APPEARANCE OF THE SURROUNDING AREA; AND
2. THEY WILL NOT BE DETRIMENTAL TO HIGHWAY SAFETY; AND
3. THEY ARE ACCEPTABLE IN TERMS OF POLICIES FOR NATURE CONSERVATION; AND
4. THEY WILL NOT RESULT IN THE PERMANENT LOSS OF THE BEST AND MOST VERSATILE AGRICULTURAL LAND.
Justification
8.6 Accessibility is the key to ensuring that provision for sport and recreation is effective in meeting the needs of the community. It is, therefore, appropriate, and most likely, that future provision will be made within or on the edge of the main urban areas where the catchment population is larger and where sites will be accessible by car, bus, cycle or on foot. These locations have other benefits in reducing the need for travel by car and providing a positive use for the urban fringe which is susceptible to trespass and vandalism and is frequently subject to development pressures. The Proposals Map and Part II of the Plan indicate where specific allocations have been made which will be protected from alternative forms of development.
8.7 Where proposals will adjoin existing development the concern will be to ensure that the type and intensity of use will not give rise to conflict with existing land uses. Indoor sports and all-weather facilities are generally capable of intensive use but can be significant traffic generators. Floodlighting can increase the availability of sports facilities through enabling evening use but outdoor provision can also give rise to problems of light pollution, noise nuisance or trespass onto adjoining land. These problems can be anticipated at the design stage and can be overcome through the careful siting of facilities, landscape screening, and adequate provision for car users.
8.8 Many recreational activities are appropriately sited in the countryside and should be generally encouraged for the benefits they can bring in meeting the needs of small and often isolated communities, and their potential contribution to rural diversification. There may also be opportunities for the re-use of rural buildings for recreation purposes. However, it is essential that such uses are not intrusive in their countryside setting or conflict with other rural activities. The best of the Borough's agricultural land resource is safeguarded from permanent loss through Policy EN2 but many recreational uses will not entail permanent loss. The Council will be keen to ensure that traffic generated by development can be safely accommodated without necessitating highway improvements which would change the character of the area. In the Wolds Area of Landscape Protection (Policy EN3), tourism proposals may provide new recreational opportunities where the visual character and nature conservation interest of the area can be safeguarded. Similarly, proposals for sport and recreation within the Heritage Coast must reflect the character of this nationally important area (Policy CZ1 ).
8.9 Some forms of modern recreational pastimes have potential to disturb the environment in ways which threaten its appearance, character and diversity in the long term. There is a need to balance recreation needs against the conservation and enhancement of the environment. Motor sports can seriously disturb the appearance of the landscape as well as giving rise to other planning issues such as noise and traffic generation. Golf courses can lead to the permanent loss of agricultural land and drastically after the landscape but at the same time can provide opportunities for new woodland planting which, with controlled public access and landscape management, can provide new opportunities for habitat creation. War games often require access to areas which are typically of nature conservation interest. The ability of the land to sustain activities in the long term in balance with its natural interest will be an important consideration.
POLICY R2 - AMENITY OPEN SPACE
PROPOSALS FOR RESIDENTIAL DEVELOPMENT SHOULD MAKE PROVISION FOR AMENITY OPEN SPACE, TO BE DETERMINED ACCORDING TO SITE CHARACTERISTICS, EXISTING LANDSCAPE FEATURES AND THE TYPE OF HOUSING PROPOSED. ON ALLOCATED SITES OF 1.6 HECTARES OR MORE, THIS COULD INCLUDE THE CHILDREN'S PLAY SPACE REQUIRED UNDER POLICY R3.
Justification
8.10 Open space provides a necessary break in the built environment and through careful design can significantly enhance the quality of a development. Additionally open areas may enable development to retain existing natural features such as trees. hedges or other landscape features and can contribute to conserving the heritage of the area. Within large scale development they can provide the opportunity for substantial structural landscaping which can integrate footpaths and cycleways producing a safer environment which is more likely to encourage the use of alternative methods of transport to the car.
8.11 Policy R3 sets out the requirements for formal recreational provision such as playing pitches but amenity open space may also be able to meet the recreational needs of the very young by incorporating play areas or play equipment. This will enable facilities to be located closer to their potential user groups encouraging participation and reducing the need for travel. Where such facilities are proposed they will be offset against the requirements of Policy R3 but they must be located so as to minimise the potential for nuisance to residents of adjacent properties.
8.12 Although the responsibility for providing and maintaining open areas will rest with the developer, the Borough Council will be prepared to adopt and maintain areas where they satisfy conditions set out in Supplementary Planning Guidance, approved in 1994.
POLICY R3 - RECREATIONAL OPEN SPACE
PROPOSALS FOR RESIDENTIAL DEVELOPMENT ON ALLOCATED SITES OF 1.6 HECTARES OR MORE SHOULD MAKE PROVISION FOR THE ESTABLISHMENT OF RECREATIONAL OPEN S PACE. PROVISION SHOULD BE MADE AND LOCATED HAVING REGARD TO THE STANDARDS SET OUT IN APPENDIX 6, THE RECREATIONAL POTENTIAL OF OPEN SPACE PROVIDED UNDER POLICY R2, AND TO THE REQUIREMENTS OF THE INTENDED USER GROUP.
ON SMALLER SITES OR WINDFALL PROPOSALS THE REQUIREMENT FOR RECREATIONAL OPEN SPACE WILL BE DETERMINED HAVING REGARD TO THE ABOVE MATTERS AND TO THE AVAILABILITY OF EXISTING RECREATION FACILITIES IN THE LOCALITY.
Justification
8.13 The Borough Council's 1993 survey of recreational open space identified a general level of provision far short of standards recommended by the National Playing Fields Association. The situation is more exaggerated within the larger settlements which, in line with approved strategic policies, should be capable of accommodating further housing growth.
8.14 New housing development and the growth in the tourist economy will place additional demands upon existing open space and recreational facilities increasing levels of deficiency. To ensure that the situation does not deteriorate, the Borough Council has approved the NPFA standards as a guide to requirements of new development. These standards are set out in Appendix 6 to the Plan. National Guidance set out in PPG3 - "Housing", and PPG17 - "Sport and Recreation", supports the inclusion of policies requiring new recreational provision where this is reasonably related to the scale of development proposed. The purpose of Policy R3 is to make these requirements clear and to co-ordinate provision with other land uses and opportunities presented by Policy R2.
8.15 Appendix 6 provides a guide as to the extent and form of recreational provision which will be expected as part of the development of sites allocated for new housing development in this Plan. On most sites, provision should be made as part of the allocated area where it will be readily accessible and will assist the integration of development into the environment. On other specified sites, the Borough Council would prefer to use developers' contributions towards the provision of open space in strategic locations.
8.16 The Local Plan cannot be too specific about the precise area which should be provided on each site or the precise amount of developers' contributions as this will be determined largely by the nature of the proposed development. As a guide, the NPFA Standard equates to a need for 24 square metres per person. Appendix 6 indicates the likely requirements per dwelling. As Policy R2 explains, some of this provision could well form part of amenity open space.
8.17 The value of any provision is determined by its accessibility. It is therefore desirable that provision is made as close to its potential user group as possible but it is recognised that particular facilities, e.g. formal playing pitches, have a wide catchment population. Where it is not possible to provide a useable area of open space within a development site, because the size of development would not support extensive provision or the site itself would physically constrain accessibility or usage of the facility, the Council will require the provision of off site facilities as an alternative.
8.18 Although the responsibility for providing and maintaining recreational open space will rest with developers, the Borough Council will be prepared to adopt and maintain these areas subject to meeting the conditions set out in Supplementary Planning Guidance approved in 1994.
8.19 Within Bridlington and Market Weighton, Part II of the Plan identifies strategically located recreational open space sites which will be provided, in part, through financial contributions sought from developers of particular housing sites in lieu of on site provision. The calculation of contributions will be based upon the same standard of provision that would otherwise be required, assuming the land to have an open space value, and will include the same requirements for future maintenance as set out in Supplementary Planning Guidance. The requirements of developers will therefore be the same as for other allocated sites but they will benefit from having a greater area of developable land for housing and will not have the responsibility of future maintenance. The nature and timing of provision will be determined through agreement between landowners and the Borough Council but, in all cases, it will require financial commitment from the Borough Council.
8.20 The basis for calculating developers' contributions towards each of the strategic sites is set out in Appendix 6. For these sites, the Borough Council will not normally be prepared to adopt and maintain developers' own on or off site provision other than as outlined above.
8.21 The requirements of Policy R2 remain unaffected by this alternative approach and developers of sites in Bridlington and Market Weighton will still need to incorporate amenity open space within development.
POLICY R4 - THE LOSS OF RECREATIONAL OPEN SPACE
PROPOSALS AFFECTING THE DEFINED AREAS OF RECREATIONAL OPEN SPACE' SHOWN ON THE PROPOSALS MAP WILL ONLY BE PERMITTED WHERE:
1. THEY SATISFY ALL RELEVANT ENVIRONMENT POLICIES IN THE PLAN; AND
2. THE RECREATIONAL USE HAS BEEN ABANDONED AND THE SITE IS UNSUITABLE FOR REUSE; OR
3. REPLACEMENT PROVISION IS MADE, CAPABLE OF SERVING THE SAME LOCALITY OR USER GROUP.
IN THE CASE OF PRIVATE RECREATIONAL OPEN SPACE, PROPOSALS FOR THE PARTIAL DEVELOPMENT OF A SITE MAY SATISFY CRITERION 3 WHERE INCREASED PUBLIC USE OF THE REMAINDER WOULD RESULT.
Justification
8.22 The Borough Council attaches great importance to the retention of open space and recreation facilities close to where people live. The distribution of different forms of open space and recreational facilities and their importance to local communities is not uniform across the Borough. Therefore in assessing proposals which would result in their loss, the Borough Council will need to be satisfied that communities will continue to have access to a reasonable level of provision, although the type of provision may differ from area to area. The 1993 Survey of Recreation Provision will be used as a guide in making this assessment. Where continued reasonable access is in doubt, alternative replacement provision will be required which should be of equal community benefit.
8.23 PPG17 - "Sport and Recreation", recognises the special significance of playing fields for their recreational and amenity value, regardless of ownership. It advises that, when not required for their original purposes, playing fields may be able to meet the growing need for recreational land in the wider community and their protection is supported.
8.24 All known recreational sites are identified on the Proposals Map and proposals which will result in their loss will be considered against Policy R4. Sites identified on the Proposals Map include private as well as public sites and their identification on the Plan does not imply that public access is available.
8.25 In considering proposals which will result in the loss of specific forms of recreational provision the Borough Council will base its assessment of need for retaining the facility on the advice of the Sports Council for the Yorkshire and Humberside Region.
8.26 Whilst private recreation facilities make an important contribution to the overall level of provision, their recreational value would be greatly enhanced through wider public use. Partial redevelopment may therefore be considered acceptable where availability and use of the remainder will be enhanced and secured through planning condition or legal agreement.
POLICY R5 - ALL WEATHER SPORTS PROVISION
AS AN ALTERNATIVE TO PROVISION SOUGHT THROUGH POLICY R3, PROPOSALS WHICH INCLUDE THE PROVISION OF INDOOR/ALL-WEATHER SPORTS FACILITIES WILL BE PERMITTED WHERE:
1. THEY ARE CAPABLE OF SERVING THE NEEDS OF THE PROPOSED DEVELOPMENT; AND
2. THEY SATISFY POLICY R1.
Justification
8.27 In areas where new open space is difficult to provide or will be limited in its accessibility or usage, all-weather facilities, either indoor or outdoor may be more appropriate. These facilities can accommodate a wide range of activities, performing a valuable role in the local community and are capable of attracting users from a wide area. Particularly in the towns they have potential to draw visitors from outside of the Borough which help to support the local economy and raise interest in the Borough which can attract investment.
8.28 Developers of sites in the smaller settlements may have the opportunity to bring forward innovative schemes of wide community benefit, perhaps through the adaptation of farm buildings or improvementsto existing facilities, as an alternative to the laying out of formal playing pitches. Additional funding for such initiatives may also be available through the Borough Council.