2.4.1 Tourism is an important economic activity within Holderness worth approximately £20 million to the local economy, and generating employment for over 1,000 persons. With its extensive coastline and foreshore, tourism in Holderness has been traditionally linked with the coast, in particular, with the two resorts of Hornsea and Withernsea.
2.4.2 The two main tourism market sectors in Holderness are the day visitor and the long stay, low spend holiday maker, useing unserviced accommodation based mainly on static caravans and chalets. There are over 5,000 caravans in Holderness generally located on the coast. Serviced accommodation accounts for less than 1% of the total accommodation stock of the district.
2.4.3 Inland, Holderness has a number of tourist attractions including attractive villages and medieval churches. A number of waterfilled disused gravel pits have tourism potential catering for specialised markets such as bird watching and watersports. Hornsea Mere and the Spurn Heritage Coast are now major attractions in the area. Changes to agricultural policy at national level has resulted in a growth of interest in tourism in more rural locations. This trend is expected to continue in the foreseeable future together with the increased interest in activitybased holidays. It is anticipated that 'Environmental' tourism will claim an increasing stake in the tourism market of the area.
2.4.4 The Council considers the following matters need addressing in the Local Plan;
1. The need to encourage new businesses into the main resorts in order to diversify the economy. Hornsea and Withernsea display many of the fundamental problems of coastal areas. These include a short season, peripherality, general decline, high unemployment with part time working and low wages which in turn leads to the physical decline of the local environment.
2. The need to balance and control conflict between visitors and residents, between one activity and another, between proposed activities and preservation and conservation.
3. Inland tourism has traditionally had a low profile apart from a few attractions such as Burton Constable Hall. In recent years, however, the development of environmental tourism and rural diversification has taken place in the area. This has put additional pressures on the landscape quality of the area and therefore measures are now required in the Local Plan to prevent irreversible damage. There is an overall need to ensure that the growth of interest in tourism development in rural locations is sustainable and is used to the best advantage in terms of the economic benefits it can bring to the area.
4. Static caravan sites must be permitted and allowed to adapt to changing fashions but at the same time there is a need to limit visual intrusion within the area. Touring sites tend to be informal and do not intrude to the same degree as static sites. Nevertheless, there is a need to ensure that such sites are assimilated into the landscape.
5. The areas resorts need to be made more accessible. It is important that significant improvements to the road network are undertaken in order to improve access to these resorts and provision of alternative transport means. The vast majority of the coast and the foreshore is underused principally due to poor physical access. There is a need to ensure that public enjoyment of the area is encouraged while preserving and protecting the natural environment.
National
2.4.5 National guidance for tourism states that the tourism industry should be allowed to grow in response to market demands and this should be tempered with respect for the environment. It states the need to identify and protect important natural, historical or architectural features and to consider ways in which new development can help the industry grow.
2.4.6 The central objective of Government advice is to achieve "sustainable development" that serves the interests of both economic growth and conservation of the environment.
2.4.7 Local planning policies can play a role in encouraging appropriate tourism developments in the right place, but scope must be allowed within the broad framework of environmental objectives for policies and plans to be adapted to changing conditions, market demands and local needs.
Strategic
2.4.8 The Humberside Structure Plan Policy E10 (see Appendix 1) provides guidance for tourism in the County. It seeks to encourage tourism development within the major towns and villages which already have many of the services that tourists require. The Structure Plan recognises that smaller settlements may not be able to absorb tourism so readily, especially in the case of large developments which attract traffic.
2.4.9 It also aims to maximise the economic benefits of tourism for Humberside but it recognises that the countryside and coast are natural resources which should be conserved. Often sensitive to visitor pressure they can easily be spoilt by poorly located or badly designed developments. The benefits of tourism proposals must therefore be balanced against possible environmental costs.
Regional Framework
2.4.10 The Regional Tourist Board has prepared a Strategy for the development of tourism within the region. The Strategy sets out the Board's current intentions and proposals for the future and provides an additional policy framework for this Council's policies. The Strategy stresses that in an increasingly competitive and quality driven industry there is a need to provide the highest standard of facilities. It is equally important to ensure that as tourism grows, it does not do so at the expense of the region's natural and built heritage. Maintaining the balance between the needs and demands of visitors, the protection of the environment and the interests of local communities is an important priority.
Tourism Strategy
2.4.11 The Council produces and regularly updates a Tourism Strategy which sets out the Authority's current intentions and developing initiatives. Tourism is considered to be an extremely important contributor to the local economy in terms of job creation, increasing the volume of money spent in Holderness and as a means of safeguarding the existence of many local services. The Council seeks to support the tourism industry through the provision of facilities such as Tourist Information Centres and computerised information displays and through promotional and marketing campaigns. The Council is committed to maximising the economic development benefits that tourism brings through planned development in appropriate locations which will serve to improve and diversify the attractiveness of the area as a tourist attraction.
2.4.12 The Council has followed a policy of sustaining and encouraging increased visitor numbers, extending the main holiday season and encouraging the spread of facilities provided that any future growth respects the environment which attracts the visitors.
The Council's Aims and Objectives
AIM 1 THE COUNCIL WILL SEEK TO MAXIMISE THE TOURISM POTENTIAL OF THE AREA WHILST BALANCING THE ECONOMIC BENEFITS WITH ENVIRONMENTAL AND SOCIAL CONSIDERATIONS.
AIM 2 THE COUNCIL WILL SEEK TO PROVIDE EMPLOYMENT WITHIN HOLDERNESS BY PROMOTING THE AREA AS A VISITOR DESTINATION
2.4.13 The Council will :
1. establish and consolidate the coastal resorts of Hornsea and Withernsea as the main centres of tourism within Holderness.
2. promote new tourism development that is compatible with the surrounding area and respects the interest of residents.
3. promote tourism that encourages increased visitor numbers, improves the range of attractions and facilities and promotes the character of Holderness.
4. ensure good access to the areas main attractions and resorts.
5. encourage the broadening of the tourism accommodation base so far as is consistant with the sustainability principles of the document.
6. ensure that the environmental resource of Holderness is safeguarded which is in itself a tourism asset.
2.4.14 The Council will encourage development that provides new attractions and facilities. Such proposals will need to be judged against the qualities of the area that the visitor finds most attractive to ensure that they are not eroded or compromised and that they do not give rise to traffic problems or have unacceptable adverse effects on the quality of life of local residents. Concentrating new facilities in the established resorts will help utilise existing facilities and protect the character of the undeveloped coast. The Council will bear in mind the effects new development may have on the character of the resorts with particular emphasis on the need for development to enhance the seafront.
Tm1 The Council will support development proposals for new or improved tourist facilities that fall within the established centres of population where they, meet the needs of residents and visitors, do not adversely effect the character and amenity of the area or place unnecessary burden on the established services and infrastructure.
Outside the established centres of population, the Council will have regard to the following matters:
1. The location of the development, its accessibility to a wide range of transport means, the suitability of vehicular access and parking provision, traffic generation and the relationship of the proposal to the main road network.
2. The impact of the proposals in relation to residential amenities, the character of nearby settlements and areas of sensitive landscape and nature conservation and wildlife importance, including SSSI's, Ramsar Sites, SPA's, RIGS, and Sites of local nature conservation importance.
3. The impact of the proposal in relation to agricultural holdings and the loss of agricultural land.
4. The effect proposals have on existing means of access to the coast and countryside.
2.4.15 Holderness has experienced the recent development of Environmental or "Green" tourism reflecting national trends and societies increasing concern for the protection of landscape and nature conservation interests. Particular attractions in Holderness include the Spurn Heritage Coast, Hornsea Mere and recently established Brandesburton Pits Countryside Project. The Council will encourage the development of tourism in association with the areas environmental resources however, at the same time will ensure that new development does not harm the environmental resources themselves through the removal of their nature consevation or scenic value.
2.4.16 Visitor accommodation is overwhelmingly provided by static caravans although there are a small number of hotels, guest houses and bed/breakfast establishments. There is a need to improve the standard of facilities in all types of accommodation in order to meet the increased expectations of the tourist industry. There is a lack of any overnight hostel accomodation and the Council would welcome proposals which would provide this.
2.4.17 The small stock of serviced accommodation has suffered a steady decline over the last 20 years. Hotels and guest houses have been converted into a number of other uses mainly nursing homes and residential homes for the elderly. There is a need to retain and upgrade the existing stock to ensure a choice of serviced accommodation for tourists.
Tm2 The Council will look favourably upon proposals for new/or extended hotel and guest house facilities provided,
1. The type and location of the proposed accommodation does not adversely affect the character and amenities of the surrounding area.
2. The proposed development is not obtrusive in the open countryside.
3. The proposed development is well related to the existing transport network, infrastructure and services.
2.4.18 Static caravan sites are one of the principal elements of the local tourist economy and are concentrated along the coastline. Many of these sites have been established for a considerable period of time and are a dominant and visibly prominent feature, particularly on the cliff tops.
2.4.19 The Council generally support the retention of the caravan sites, however, programmes for upgrading are welcomed which will modernise and increase the attractiveness of sites for the tourist and improve the visual impact of sites on the landscape. Works may include provision of landscaping, introduction of new layouts and provision of improved on site facilities.
Tm3 The Council will seek to safeguard existing caravan and chalets parks from redevelopment for alternative uses. Where existing sites are considered no longer viable in their present form recreational or leisure uses will be given favourable consideration unless this is in conflict with landscape or nature conservation interests within or adjacent to the site.
2.4.20 In considering new caravan and camping developments, balance is needed between the provision of choice of such holiday accommodation, important to the tourist industry, against the potential harm to the quality and character of the countryside.
Tm4 The development of new caravan/chalet sites or the extension of existing sites will need to ensure:
1. They are unobtrusively located so as not to significantly adversely affect the character or visual appearance of the surrounding area.
2. In terms of scale, siting, appearance, operation, traffic and visitor pressure they do not dominate local communities or conflict with adjacent land uses.
3. The local highway network is adequate in accommodating the type of vehicle occupying the site.
4. No harm will arise to sites of nature conservaion importance. In coastal areas sites must comply with policy Env5, Env7, Env8, Env9, Env10, Env11 and will not be permitted to locate in the vicinity of the MOD site at Cowden.
2.4.21 Extensions, replacements to pitches lost to the sea and other relocations or changes will generally be treated as new sites. In particular, lateral extension along a cliff top will be resisted as this can serve to reduce public access to the coast and presents an unsightly ribbon of continuous development. Large extensions to sites will be resisted as these can increase environmental pressure. Extensions where improvement to existing conditions will result, especially if no new pitches are involved, will generally be welcomed.
Tm5 Proposals for extensions to holiday parks will be permitted subject to Policy Tm4 on new sites and provided:
1. They are below one hectare in size or less than 25% increase in the size of the original site area up to a maximum of 150 pitches, whichever is the greater, within any period of 3 years unless exceptional circumstances justify a larger extension.
2. Significant improvements to the site are proposed to the overall appearance and amenity of the site to include a landscape scheme designed to minimise the impact of the site on the surrounding landscape.
2.4.22 The Council is concerned that holiday park accommodation is not used for full time residential occupation. Such occupation is likely to conflict with Structure and Local Plan Policies on residential development, place additional pressures on services and facilities such as schools and medical provision, alter the character of settlements and be environmentally unacceptable.
Tm6 Proposals within the terms of Policies Tm4 and Tm5 will be subject to holiday occupancy conditions. Where the impact on local communities or local environmental conditions require additional control, seasonal occupancy conditions will be applied, with a presumption to limit occupation to 10 months in any one year. In this case the Council will normally permit 12 month accommodation for security staff at a level not exceeding one unit plus one additional unit for every 200 caravan pitches actually in use, up to a maximum of 5 units.
2.4.23 The Hornsea area has a generally lower level of demand for touring caravans than Bridlington and the surrounding area, and South Holderness tends to have the lowest demand of any part of the Humberside coast. Existing touring sites are rarely at full capacity even in July and August and there may be little demand for further sites on the coast.
Tm7 Touring caravan and camping sites will be allowed in appropriate locations provided a significant need has been demonstrated and that it conforms to Policies Tm 4 and Tm 5 in this Plan. Touring sites will generally be encouraged within existing static caravan and chalet parks.
2.4.24 The growth of tourism and tourism related industries has meant that these uses can often be accommodated in rural buildings or used as a basis for the conversion of farm buildings. Such proposals would however need to be considered in accordance with Policies H4, Ec7, Ec8 and Env36 of this Local Plan for the conversion of rural buildings.
2.4.25 To meet the Council's aim of promoting Holderness as a tourist destination, interpretation facilities are required and these will need to conform to the following policy :
Tm8 Small scale tourist facilities such as information points will be encouraged in accessible areas and in places which do not conflict with countryside conservation policies.