a-z of services  local plan poole local plan first alteration (adopted march 2004)

11: Leisure and Recreation

Introduction

11.01 The Harbour and heathland, together with the surrounding countryside, which includes the Purbecks, “Hardy” country and the New Forest, combine to create the tourist’s image of Poole. These features are an important recreational resource and are under pressure. However, Poole is a working town and the additional leisure facilities introduced during the last 30 years have not always kept pace with the remarkable growth which has taken place during that period. In addition, the financial restraint of more recent years has meant that some of those facilities which have been provided are out of date and will be ill equipped to meet the demands of the growth which will undoubtedly continue into the future.

11.02 The expansion of the Borough since 1960 has been characterised by major housing development on large green field sites. Such development has supported the provision of adequate open space and, in some areas, other leisure facilities. However, many older parts of the Borough are less green and less well served but it is within the existing built up area that future growth, largely in the form of in-fill development, will take place.

11.03 The Council’s recreational policies are set out in Poole Harbour Management Policies and its Leisure Strategy. The Leisure Strategy incorporates policies for open space, land and water based sport, commercial recreation and the arts. It takes a comprehensive view of need and provision and focuses on the roles of all relevant parties: the Council, through direct provision and the enabling function; the private sector, through the provision of commercial recreation opportunities; the developer, by ensuring that all new housing makes its contribution to the recreational need it generates; and bodies such as the Sports Council, through advice and grant aid.

11.04 This chapter of the Local Plan contains the land use policies designed to support the Strategy and draws on the comprehensive background paper on which the Strategy is also based. These documents reflect much up to date survey work, including market research undertaken by the University of Surrey; a Poole Harbour Aquatic Zoning Plan; a comprehensive survey of existing facilities; and questionnaire surveys of clubs and societies. The basis for the following policies is therefore up to date and follows closely the advice issued in Planning Policy Guidance Note 17.

Strategic Framework

11.05 Government policy is most recently expressed in Planning Policy Guidance Note 17: Planning for Open Space, Sport and Recreation (July 2002). This states that “Open spaces, sport and recreation all underpin people’s quality of life. Well designed and implemented planning policies for open space, sport and recreation are therefore fundamental to delivering broader Government objectives”. These include:

• supporting an urban renaissance through the creation of urban environments that are attractive, clean and safe;
• promotion of social inclusion and community cohesion;
• promoting health and well-being; and
• promoting more sustainable development by ensuring that facilities (particularly in urban areas) are easily accessible by energy-efficient means of travel, such as cycling, walking or public transport.’

11.06 The Government advises local authorities to undertake assessments of the existing and future needs of their communities for open space, sports and recreation facilities, and to carry out audits – both qualitative and quantitative – of existing facilities. These form the starting point for establishing an effective strategy (tied in to the local authority’s Community Strategy) and for the development of appropriate local plan policies. The Government believes open space standards are best set locally, and these should also be included in development plans.

11.07 The Government is committed to the retention of open space, sports and recreational buildings unless it is clear that such facilities are surplus to requirements. Parks, recreation grounds, playing fields and allotments must not be regarded as ‘previously developed land’ as defined in annex C of PPG3. Even where land does fall within this definition, its existing and potential value for recreation and other purposes should be properly assessed before development is considered.

11.08 PPG17 states that ‘Planning obligations should be used as a means to remedy local deficiencies in the quantity or quality of open space, sports and recreation provision. Local authorities will be justified in seeking planning obligations where the quantity or quality of provision is inadequate or under threat, or where new development increases local needs’. Local authorities need to undertake detailed assessments and audits of existing facilities, and set local standards in order to justify planning obligations.

11.09 The Department of Transport, Local Government and the Regions’ Regional Planning Guidance for the South West echoes the South West Regional Planning Conference’s submitted strategy. This establishes the need to balance economic development and recreational provision with the retention of the region’s unique environmental quality. Particular attention is drawn to the importance of the coastline.

11.10 The Structure Plan promotes the appropriate provision of a variety of community facilities, including those related to sport, recreation (including coastal recreation and playing fields) and culture. With regard to such facilities its policies:

• seek their concentration in the Bournemouth-Poole conurbation and in the main towns;
• seek their retention and improvement;
• require provision to be made for playing fields, together with the protection of existing playing fields;
• identify a need for countryside recreational facilities that are compatible with the character of the area and are easily accessible to main centres of residential and holiday population by a choice of means of transport; and
• require the retention of, and new provision for, water-based recreation, subject to consideration of the impact upon the marine environment.

Objectives

11.11 The Council’s Leisure Strategy aims to:

• provide a comprehensive range of recreational and leisure facilities appropriate to the needs of the local population;
• promote leisure and recreation, with a particular emphasis on groups where participation is traditionally low;
• develop the Council’s enabling and coordinating role;
• take advantage of the recreational potential of the natural assets of the Borough while recognising the equal importance of nature conservation and economic development; and
• promote the conservation and sustainable use of the Borough’s natural resources.

11.12 These are not all land use objectives but the Local Plan must have regard to them in establishing its own recreational objectives. Chapter 3 sets out the Local Plan strategy, including seven key aims and a geographic strategy. Leisure features among them but in setting out how the leisure aims might be achieved it has been necessary to have regard to other components of the strategy, including, in particular, sustainability.

11.13 The Leisure and Local Plan strategies have been worked up into a series of ten recreation objectives for the purpose of establishing land use policies. They are:

• to maximise use of development opportunities in the central area of Poole for leisure purposes;
• to promote wildlife conservation for recreation;
• to improve the cycleway/footpath network as a recreational resource;
• to enhance local centres as sites of accessible recreational opportunity;
• to improve access to the Harbour;
• to link the Borough’s major green spaces, urban and rural, and particularly Canford Heath and the Stour Valley;
• to establish standards of provision for open space, sports facilities and children’s play, having regard to advice issued by the Sports Council and the National Playing Fields Association, adjusted where necessary, to suit local conditions;
• to enhance the provision of sports facilities through dual use in the interest of making better use of existing resources;
• to ensure that new housing development makes adequate provision for the recreational demand that it generates; and
• to ensure that the Local Plan embraces land use policies which support the Council’s Leisure Strategy.

Urban Open Space

11.14 The amenity value of open space is largely visual and much of the use of green space is passive. Relaxing and walking the dog do not have to take place in formal parks or other publicly owned areas. This is now widely recognised and Government advice draws attention to the contribution made by open space of all kinds, particularly where it is accessible to the public, to the quality of urban life. This section is, therefore, concerned with both public open space and urban greenspace to which the public may not have unlimited access. Market Research recently commissioned from the University of Surrey confirms that the parks and beaches are the Borough’s prime recreational resource.

11.15 The Borough has 1,080.7 hectares of public open space, giving an overall rate of provision of 7.7 hectares per 1,000 population. This compares with a figure of 3.6 hectares per 1,000 in 1976, the base date for survey work undertaken for the Council’s former policy document, “Recreation in Poole”. However, if this provision is looked at in greater detail, it is apparent that nearly 70% of the open space is in the form of Local Nature Reserves, woodland, or ponds and lakes. The amount of land dedicated to public playing fields, parks, casual play, amenity and landscape areas, and equipped children’s play makes up about 28% of the total, and equates to just under 2.2 hectares per 1,000. This falls short of the overall standard of 3.2 hectares per 1,000 which the Council has included as an aim in its recreation and planning policy documents for many years.

11.16 The distribution of open space is uneven with relatively low levels of provision in some of the older areas of the Borough, such as Oakdale, Parkstone, Penn Hill, Newtown and Bourne Valley. An analysis of access to open space has also been conducted, and indicates that accessibility to the Green Belt, major open spaces and district parks is broadly adequate. However, local parks (2 hectares+) and small local parks and open spaces (up to 2 hectares), which should be within 0.4 kilometres of residential properties, are deficient in the same older areas of the Borough. The distribution of urban greenspace, which includes school playing fields, allotments, cemeteries, highway landscaping and private open space, similarly reinforces patterns of open space provision with the greenest environments concentrated in the newer residential areas or areas of low density housing.

11.17 The quality, type and distribution of open space in the Borough forces the conclusion that, although Poole is rightly regarded as a green town, its reputation owes little to the prominence of its open spaces but rather more to the well treed gardens of its low density residential areas, the natural heathland urban fringe and the attractive wooded corridors which lead into the Town. Neither do many of its open spaces offer sufficient variety to be regarded as true local parks. Whilst most have intrinsic amenity value, many of these areas have little in the way of facilities and are characterised by single feature, woodland or level playing fields. Many are tired and in need of management.

11.18 As a result, action is required to:

• protect public and private open space, including school playing fields;
• protect urban greenspace;
• secure environmental improvements;
• acquire additional open space, particularly in areas of lowest open space provision;
• prepare management plans for and improve the maintenance of the Borough’s open spaces;
• enhance accessibility and access for the disabled; and
• introduce a wider range of facilities into parks and open spaces.

Many of these objectives require policies to ensure that development retains and respects open space. Where development results in the significant loss of open space, such as that in excess of 100 square metres or which will sterilise a larger area of land, it will be expected to replace the land lost to development. In determining planning applications, the cumulative effects of loss of open space by developments will also be taken into account. Occasionally, such considerations may be outweighed by the need for other community facilities such as schools in situations where no alternative locations are available. This would not apply in the case of commercial developments.

L1 PUBLIC OPEN SPACE

PLANNING PERMISSION WILL NOT BE GRANTED FOR DEVELOPMENT RESULTING IN THE LOSS OF SIGNIFICANT AREAS OF PUBLIC OPEN SPACE. IN EXCEPTIONAL CIRCUMSTANCES PLANNING PERMISSION MAY BE GRANTED FOR SUCH DEVELOPMENT WHERE:

i) REPLACEMENT OPEN SPACE OF AN EQUIVALENT OR GREATER AREA AND RECREATIONAL VALUE IS PROVIDED IN THE SAME LOCALITY; OR

ii) DEVELOPMENT FOR ESSENTIAL COMMUNITY PURPOSES IS AN OVERRIDING REQUIREMENT.

11.19 Two of the Borough’s golf courses, together with most of the non-educational private playing fields, are in or adjacent to the Green Belt. In addition, the landscaping which has accompanied recent roadbuilding has taken place in or close to the newer residential areas, which enjoy a relatively high level of public open space provision. This means that urban greenspace, those green areas not normally available for public access, have a particular importance through the contribution they make to amenity. These spaces include school playing fields, cemeteries, allotments, church grounds and are especially valuable in the older parts of the Borough. Wherever they occur, however, they should be protected if they make a positive contribution to the local environment. These sites are existing uses where the associated landscaping is the positive amenity feature. It is not appropriate to allocate new greenspace sites, which will come forward through the development of prominent sites where landscaping will form an essential feature of the scheme. The principal existing areas of urban greenspace tend to be publicly owned facilities to which the public do not have unrestricted access. Occasionally exceptions may be made, for example, school playing fields, where there is an identified need for the extension to school facilities in order to meet the growing number of school age children.

L2 URBAN GREENSPACE

PLANNING PERMISSION WILL NOT BE GRANTED FOR DEVELOPMENT RESULTING IN THE LOSS OF URBAN GREENSPACE SHOWN ON THE PROPOSALS MAP UNLESS:

i) GREENSPACE OF EQUIVALENT OR GREATER AREA IS PROVIDED IN THE SAME LOCALITY; OR

ii) ITS USE IS COMPLEMENTARY TO THE FUNCTION OF THE GREENSPACE.

11.20 Where the urban environment would benefit from improved landscaping on greenspace or the planting of street trees, the Borough Council will continue to implement a rolling programme of environmental improvements, working with the private sector to secure the maximum benefit from such schemes.

11.21 The selection of new areas of public open space is limited by the scarcity of available sites, particularly within those parts of the built up area which are currently poorly served. Nevertheless, the former Oakdale Middle School, more centrally located than the open space on which the replacement school has been built, would make a significant impact in a shortage area.

L3 PUBLIC OPEN SPACE - FORMER OAKDALE MIDDLE SCHOOL

PUBLIC OPEN SPACE WILL BE PROVIDED AT THE FORMER OAKDALE MIDDLE SCHOOL, AS SHOWN ON THE PROPOSALS MAP.

11.22 It has been indicated that many of the Borough’s parks and open spaces are tired and lacking in those facilities which would enable the needs of the local community to be fully met. Management plans would assist in identifying local needs and allow restoration and development work to be programmed. They would also assist in extending the accessibility of local parks by making it easier for pedestrians and cyclists to gain access. In addition, they will provide the opportunity to introduce better facilities for people with disabilities (See Chapters 7 and 8).

11.23 It is therefore proposed that, within the urban area, the Council will prepare management plans for the following parks and open spaces:

• Alderney Recreation Ground
• Alexandra Park
• Baiter/Whitecliff
• Branksome Chine
• Branksome Recreation Ground
• Broadstone Recreation Ground
• Canford Cliffs Chine
• East Canford Heath
• Hamworthy Park
• Longfleet Drive
• Parkstone Park
• Poole Park
• Sandbanks Recreation Ground
• Surrey Road Gardens/Coy Pond
• Turlin Moor
• Upton Pines
• Warburton Road

L4 LEISURE DEVELOPMENT

PLANNING PERMISSION WILL BE GRANTED FOR LIMITED LEISURE BASED DEVELOPMENT WITHIN PARKS AND OPEN SPACES PROVIDED THAT:

i) ITS USE IS COMPLEMENTARY TO THE FUNCTION OF THE OPEN SPACE; AND

ii) THE DESIGN IS APPROPRIATE IN SCALE AND CHARACTER TO THAT OF THE OPEN SPACE.

Active Recreation

11.24 Although the overall provision of playing fields has increased from about 65 hectares to 83.7 hectares since the adoption of “Recreation in Poole” in 1980, it has not kept pace relative to population growth over the same period. The most widely quoted national open space standard is the National Playing Fields Association standard of 2.4 hectares (6 acres) of outdoor play space per 1,000 population. This is broken down into youth and adult outdoor play, defined as pitches, greens, miscellaneous facilities such as athletics tracks and training areas, and including private facilities for members and adult school facilities if available for joint use; equipped children’s play areas; and casual play in residential areas. These standards, when compared to the relevant levels of provision in the Borough, are shown in the following table:

Table 11.1 - Active Recreation

11.25 The Poole figure of 0.59 ha per 1,000 for youth and adult outdoor play exaggerates the level of local provision because it includes school adult pitches whether or not they are available for dual use. Similarly, the figure of 1.35 ha per 1,000 for casual play includes parks and associated public open space as well as dedicated casual play areas. Much of this open space is not located in residential areas. Indeed, in recent years the acquisition of amenity open space in new residential areas has been more concerned with the retention of important natural features, such as woodland, than with the provision of land 11 suitable for casual play. Those wards short of open space generally also have limited provision of casual play space. In addition, Creekmoor, Broadstone and Canford Cliffs, which have good overall levels of provision are much less well off for outdoor play space usable on a casual basis.

11.26 For most playing field sports, the Borough is heavily reliant on school provision, very little of which is available for public use. Market research supports the view that football pitches in the Borough are particularly intensively used and much of the local stock is in poor condition. This is particularly worrying at a time when the perceived decline in school-based sport has encouraged local clubs in most sports to take on the role of encouraging young people in sport. This puts further pressure on a playing field stock ill prepared for youth play.

11.27 National population projections (1996-based) indicate that there will be a decline in the population of 0-14 year-olds between 1996 and 2011, but that the number of 15-24 year-olds will increase. The number of people of working age is also projected to rise. At the same time expectation of life continues to increase, which is likely to be associated with greater levels of fitness and, in turn, recreational participation. These changes will also apply in Poole, although to some extent they will be less pronounced because growth has been characterised by in-migration rather than natural change. In addition, the Borough’s continued population growth will mean that, although the proportional balance of the population may change, no group, including the young adults who participate to a greater extent than other groups, will decline in absolute numbers.

11.28 The pressure of numbers will be further increased by greater mobility and, for those in work, affluence. As a result, leisure and recreation will be characterised by increasing variety and the greater interest of the commercial sector in meeting needs. This is recognised by the South West Council for Sport and Recreation which, in its strategy for specialist sports provision, recognises that limited public resources, together with the trends outlined, will require a policy response characterised by:

i) the need to safeguard existing facilities;

ii) making better use of existing facilities;

iii) working with all groups, including the voluntary and private sectors, to extend provision; and

iv) the direct provision of new facilities where appropriate.

11.29 Nationally, it is accepted that participation rates in active recreation are very low and that rarely is this because of a lack of money. This is confirmed by the Council’s own market research, conducted by the University of Surrey. The principal reasons are lack of interest and lack of time, which suggests considerable potential for increasing participation rates. Such an increase is the policy of the Sports Council, which is keen to target young people and women, as well as promote excellence.

11.30 Action is therefore required to:

• protect existing facilities, both public and private;
• protect school playing fields;
• make better and more flexible use of existing facilities;
• locate new and enhance existing facilities so that participation is encouraged and priority groups are targeted;
• establish the Council’s role and the contribution expected of the private and voluntary sectors;
• promote participation and excellence; and
• promote the provision of new facilities, where required.

11.31 Whilst the casual walker is relatively well provided for, particularly on the periphery of the town and in the newer residential areas, provision for formal play falls well short of the National Playing Fields Association standard. Poole has 20% of the County’s population but provides for only 12% of local league football teams, and is particularly deficient in youth facilities where demand is growing. The poor quality of many Council facilities, the importance of school provision and the projected growth in the school age population all require that playing fields should be protected.

L5 PLAYING FIELDS

PLANNING PERMISSION WILL NOT BE GRANTED FOR DEVELOPMENT RESULTING IN THE LOSS OF PUBLIC, SCHOOL OR PRIVATE PLAYING FIELDS UNLESS REPLACEMENT PLAYING FIELDS OF EQUIVALENT AREA AND RECREATIONAL VALUE ARE PROVIDED. WHERE EXISTING PLAYING FIELDS HAVE AMENITY VALUE AS URBAN OPEN SPACE, POLICY L1 WILL APPLY, IN WHICH CASE REPLACEMENT PLAYING FIELDS MUST BE OF EQUIVALENT AMENITY VALUE AND IN THE SAME LOCALITY AS THE EXISTING.

11.32 Improved provision can be secured by enabling existing facilities to be used more intensively, principally through the introduction of synthetic surfaces and floodlighting. This has already been achieved successfully at the Ashdown Centre and at Turlin Moor. Clearly the longer hours of use and bright floodlighting can have an adverse impact on nearby residential areas and, consequently great care must be taken with the siting of such facilities. In addition, cut-off lighting or other means may be required to prevent the spillage of light affecting residential amenities or the character of the countryside.

L6 ALL WEATHER FLOODLIT SPORTS FACILITIES

PLANNING PERMISSION WILL BE GRANTED FOR THE PROVISION OF ALL WEATHER FLOODLIT OUTDOOR SPORTS FACILITIES PROVIDED THAT:

i) THERE ARE NO OVERRIDING TRAFFIC, ENVIRONMENTAL OR AMENITY OBJECTIONS;

ii) THE DEVELOPMENT INCLUDES AN ACCEPTABLE LANDSCAPING SCHEME; AND

iii) NEITHER THE FLOODLIGHTING EQUIPMENT ITSELF NOR THE LIGHT EMITTED FROM IT HARMS THE VISUAL AMENITIES OF THE SURROUNDING AREA.

A CONDITION LIMITING THE HOURS OF OPERATION OF SUCH FACILITIES MAY BE IMPOSED IF THIS IS REQUIRED TO SECURE THE ENVIRONMENTAL ACCEPTABILITY OF THE SCHEME.

11.33 The Council proposes to investigate the introduction of all-purpose synthetic surfaces, and the suitability of floodlighting at existing facilities. Making better use of existing facilities can also be secured by improving the quality of existing provision through better maintenance, better management and enhanced ancillary facilities.

11.34 The Council proposes to:

i) review the condition of its pitches and develop a long term programme to improve their quality;

ii) review pitch allocation procedures to avoid over-use; and

iii) introduce enhanced changing and pavilion facilities at existing sites, as appropriate.

L7 ANCILLARY FACILITIES ON RECREATION SITES

PLANNING PERMISSION FOR ANCILLARY FACILITIES AT PUBLIC OR PRIVATE OUTDOOR RECREATION SITES WILL BE APPROVED PROVIDED THAT:

i) THERE IS ADEQUATE ACCESS AND CAR PARKING;

ii) THERE ARE NO OVERRIDING ENVIRONMENTAL OBJECTIONS;

iii) THE DEVELOPMENT INCLUDES AN ACCEPTABLE LANDSCAPING SCHEME; AND

iv) THE DEVELOPMENT IS APPROPRIATE IN SCALE, PARTICULARLY IN THE GREEN BELT (SEE POLICIES NE2 AND NE3).

11.35 The dual use of existing school or other community facilities is also widely used as a means of enhancing provision. The Council has already introduced such schemes at Ashdown and Kemp Welch Schools and secured, particularly in the newer residential areas of the Borough, the provision of community facilities which themselves have limited recreational facilities. Further potential exists for this kind of initiative, however.

11.36 The Council proposes to secure the dual use of the playing fields to be provided at Oakdale South Road Middle School in order to off-set the loss of the Tatnam Playing Fields and will investigate the dual use of playing fields at Heatherlands First School. In addition, the Council will promote with the Sports Council the dual use of those Upper School facilities not currently available to the community. The Council will also promote the more widespread use of community and other private or public facilities for recreational use.

11.37 The Council recognises that it is no longer possible for local authorities to continue to directly provide recreational opportunities to the same extent as in the past. In Poole, the Council has always taken a flexible approach, working with the Poole Sports Trust, the Local Education Authority and the Sports Council, to ensure that a comprehensive range of facilities is available. Controls on capital expenditure and the local financial management of schools has simply served to further emphasise the importance of the Council’s enabling role.

11.38 The Council will support the development of new recreational facilities:

i) by the private sector;

ii) with the assistance of local clubs, community groups and other voluntary organisations;

iii) with the assistance of Poole Sports Trust, the Sports Council and local education establishments; and

iv) in association with developers, by justifiable planning obligations secured either directly or through reasonable contributions (See Policy L17). Only in exceptional circumstances will the Council provide new facilities directly.

11.39 Under these circumstances the location of new or improved facilities will be governed largely by the location of existing facilities, local schools and new developments which provide recreational opportunities. In addition, it is the Council’s intention to promote the Central Area as a centre for leisure and recreation because of its public transport accessibility. Large land-take activities will inevitably require peripheral sites where land is available. These factors will constrain the extent to which the Council can direct facilities to areas with high priority groups - the traditional non-participators. Market research indicates that these tend to be located in the older areas of the Borough, the same areas which tend to be underprovided with open space.

11.40 Nevertheless, the availability of centrally located accessible opportunities, together with a network of widely distributed local facilities, should assist in maximising participation. It is largely through management and sports development that the Council’s contribution towards the promotion of participation and excellence can be most effective.

11.41 The Council will promote participation and excellence, particularly among the targeted groups of the young, women and the disadvantaged through better dissemination of information, targeted leisure passport schemes, improved security and sensitive management.

11.42 Those new opportunities which are required have been assessed against the specialist sports facility strategy of the South West Council for Sport and Recreation, market research, a questionnaire survey of existing clubs, the applications of widely accepted standards and local knowledge. Whilst an extensive list of new facilities might be beyond the resources of the Borough Council, many can be implemented with limited funding whilst others will be introduced over the Plan period through grant aid, development, and voluntary effort.

11.43 Apart from those improvements described in paragraphs 11.31 and 11.32, designed to secure the more intensive use of existing facilities, enhanced opportunities for angling, cricket, netball, orienteering, and rugby can be achieved through better management and enhanced ancillary facilities at existing locations. Where planning permission is required, applications will be determined with reference to Policies L6 and L7. Other requirements set out in the Council’s Leisure Strategy require the policies and proposals set out below.

11.44 Moortown Aerodrome, which is jointly owned by the Borough of Poole and Bournemouth Borough Council, has detailed planning permission for the change of use of land to form a sports and country park with sports pitches, events arenas, trim tracks and a bridleway. It will contribute significantly to reducing the shortfall in the provision of formal outdoor sports and recreation facilities.

11.45 There is an identified need for an athletics track in Poole, confirmed by the Borough’s own market research and the Sports Council strategy. This need has been met at Ashdown School, complementing the existing dual use sports facility and, therefore, the more commercial spectator sports accommodated at a newly refurbished Stadium close to the town centre. The Council will promote the provision of an athletics track at Ashdown School, to cater for the needs of local clubs.

11.46 The Council’s Leisure Strategy identifies the need for an 18-hole pay as you play golf course. Two new golf courses have recently been constructed on farmland north of Magna Road, both operated as limited membership and pay as you play facilities. Clearly, the provision of additional facilities together with outstanding planning permissions will be a material consideration in determining planning applications for new courses, bearing in mind competing claims on the countryside and the need to protect its character.

L8 GOLF COURSES

PROPOSALS FOR THE DEVELOPMENT OF NEW GOLF COURSES WILL BE CONSIDERED HAVING REGARD TO:

i) OUTSTANDING PERMISSIONS FOR GOLF COURSE DEVELOPMENT;

ii) COMPATIBILITY WITH THE GREEN BELT AND ITS LANDSCAPE;

iii) AGRICULTURAL LAND QUALITY AND THE IRREVERSIBILITY OF THE DEVELOPMENT PROPOSED;

iv) THE NEED TO RETAIN EXISTING WILDLIFE
INTEREST;

v) THE NEED TO PROVIDE FOR A MEANS OF SUMMER IRRIGATION FROM THE COLLECTION OF WINTER RAINFALL FLOWS;

vi) THE NEED TO PREVENT POLLUTION TO GROUND WATER AND/OR WATERCOURSES; AND

vii) THE NEED FOR APPROPRIATE FLOOD MITIGATION MEASURES.

11.47 A commercially run indoor tennis and fitness centre is located on the north side of Cabot Lane. Other requirements including bowls and swimming facilities, identified in the Council’s leisure strategy, can be met by the introduction of additional facilities at existing sites. Policy L9 applies generally to both indoor and outdoor sports facilities within Class D2 of the Town and Country Planning (Use Classes) Order 1987.

L9 RECREATION AND LEISURE FACILITIES

PLANNING PERMISSION FOR NEW PUBLIC OR PRIVATE RECREATION FACILITIES WILL BE GRANTED, PROVIDED THAT:

i) THERE IS ADEQUATE ACCESS AND CAR PARKING;

ii) THERE ARE NO OVERRIDING ENVIRONMENTAL OBJECTIONS;

iii) IT IS APPROPRIATE IN SCALE AND CHARACTER TO THE SURROUNDING DEVELOPMENT;

iv) IT CAN BE ADEQUATELY SERVED BY PUBLIC TRANSPORT; AND

v) IT DOES NOT COMPROMISE THE STOCK OF AVAILABLE LAND FOR INDUSTRY.

Water-Based Recreation

11.48 Poole Harbour is 4,000 hectares in extent and is one of the largest features of its type in the world. It is what Poole is best known for. It is of major ecological significance, being a Special Protection Area, Site of Special Scientific Interest and listed as a Ramsar site; it has an important port, both for freight and passenger traffic; and market research suggests that it is the Borough’s most used recreational facility.

11.49 The multiplicity of activities which take place in the Harbour inevitably create conflict, between the activities themselves, with the residents of surrounding properties and with nature conservation interests. Without careful management these conflicts can only increase as the growing popularity of water sports combines with the likelihood of better access to Poole from an improved highway network, thereby increasing pressure on the Harbour. The Council’s market research indicates that a water sports centre and improved access to the Harbour were the most widely requested new recreation facilities, and the Sports Council confirm the need for improved opportunities for water-based recreation.

11.50 Several statutory authorities, and other groups, have an interest in the Harbour and these have combined to produce a set of management policies for the Harbour. In addition, a Poole Harbour Aquatic Management Plan has been prepared in order to better manage recreational activities and control their impact on the areas of most ecological interest.

11.51 Subject to the need to safeguard the harbour wildlife (See Chapter 6) action is therefore required to:

• improve access to the Harbour, whilst minimising the impact on the residential and water environment
• secure public access when waterfront development is being considered;
• introduce policies to back up appropriate aquatic zoning;
• provide better facilities for visiting yachtsmen;
• allow for the provision of additional sheltered moorings to assist in reducing the number of swinging moorings;
• provide for a water sports centre; and
• protect existing boatyards.

11.52 At present only Baiter provides an adequate public slipway access to the Harbour. Access is also obtained at a number of other points but these almost invariably create conflicts in residential areas, particularly at Lake Road and Lake Pier, where haphazard parking and noise are intrusive. The Coastal Strategy of the South West Council for Sport and Recreation includes a policy for improving public launching facilities and, where this can be achieved, the Council is keen to take the opportunity to improve conditions at existing unsatisfactory launching sites. In 2001 a new yacht haven, developed by Poole Harbour Commissioners, was opened on Poole Quay to provide berths for visiting yachts together with facilities for Poole’s fishing fleet. There may be opportunities to provide new launching facilities in other locations (Paragraph 11.56 and Policy L11 deal with such facilities) and on the site of the former Pilkington tile factory in Hamworthy (see Central Area, Chapter 14).

11.53 On the implementation of the above schemes, the Council will take steps to limit the use of existing unsatisfactory launch sites in the Hamworthy area. Access to the Harbour shore is also required for informal recreation as such access is very limited in many parts of the Harbour.

11.54 Policy L14 seeks to secure public access to the shore where development of sites with a water frontage occurs. Such access might be required for public slipway provision or other launching facilities, or could serve a more informal recreation need, for instance as public amenity. The policy would require both the retention of existing access and the creation of a new access where none is presently available, but generally will not apply to less substantial proposals such as extensions to dwellings or minor alterations to existing buildings. In the case of development opportunities within the Holes Bay regeneration area, public access along a new extended quayside is a priority and Chapter 14 deals with this in greater detail. In determining the suitability of providing public access, the Local Planning Authority will have regard to safety and security issues as well as potential implications for the nature conservation value of the Harbour.

L10 PUBLIC ACCESS TO SHORE

THE DEVELOPMENT OF SITES WITH A HARBOUR FRONTAGE WILL BE REQUIRED TO ALLOW FOR PUBLIC ACCESS TO THE SHORE, EXCEPT WHERE SAFETY AND OVERRIDING SECURITY REQUIREMENTS OR CONSERVATION NEEDS DICTATE THAT SUCH ACCESS BE RESTRICTED.

11.55 The Aquatic Management Plan prepared by the Poole Harbour Steering Group reserves the southern part of the Harbour as a quiet area, with water-skiing concentrated in an area to the north and east of Gold Point; windsurfing at Whitley Lake; and jet skiing north of Brownsea Island. Implementation of the Plan will largely be achieved through management and other non land use measures. However, facilities will be required at a number of locations, including Hamworthy (See paragraph 11.52) and Whitley Lake, where the Council will seek appropriate facilities for windsurfers. In the latter area, some improvement has been secured with the upgrading of the existing facilities at Shore Road.

11.56 The Poole Harbour Management Policies recognise that conflicts between recreational and commercial use of the Harbour can be minimised by reducing the number of swinging moorings in the Harbour. Nevertheless, work undertaken for the Poole Harbour Aquatic Management Plan suggests that recreational use of the Harbour is not yet at capacity and there is no intention to reduce the number of moorings overall. Both the Management Policies and the Sports Council Coastal Strategy also recognise that facilities for visiting yachtsmen should be improved. In response to these issues, Poole Harbour Commissioners put forward a proposal for a yacht haven on Poole Quay. This has since been built and is in use. The yacht haven also incorporates new facilities for local fishing vessels and flood defences. As regards water borne sports, including rowing and canoeing, it is difficult to secure permanent accommodation at waterside locations. It is particularly important that such developments respect the character of their surroundings and the interests of the wider community of Harbour users, whether commercial or recreational and whether their activities are carried out formally or casually. Such interests include the need to protect public views across the Harbour. The sensitivity of the urban and natural environment in the vicinity of the Harbour will inevitably require planning applications for yacht haven facilities to be accompanied by an Environmental Impact Assessment under the Town and Country Planning (Environmental Impact Assessment) (England and Wales) Regulations 1999.

L11 MARINA, JETTY, SLIPWAY OR OTHER BOATING OR MOORING FACILITIES

DEVELOPMENT INVOLVING NEW OR EXTENDED MARINA, JETTY, SLIPWAY, OR OTHER BOATING OR MOORING FACILITIES WILL BE PERMITTED PROVIDED THAT:

i) FACILITIES FOR COMMERCIAL FISHERMEN WILL BE MAINTAINED;

ii) PUBLIC ACCESS TO THE WATER’S EDGE WILL BE MAINTAINED OR WHERE POSSIBLE IMPROVED;

iii) FACILITIES FOR WATER BORNE SPORTS WILL BE MAINTAINED OR WHERE POSSIBLE IMPROVED; AND

iv) THE INTERESTS OF OTHER USERS OF THE HARBOUR OR FORESHORE ARE RESPECTED.

11.57 Poole Harbour’s status as a boating centre supports, and is supported by, a number of boatyards. The range of repair facilities for leisure craft and other marine related activities is valuable in terms of the needs of the Harbour users and the employment generated. There is little opportunity to establish new marine-related facilities in the area, and it is thus important to retain the limited number of existing boatyards in order to service a valuable recreational asset.

L12 BOATYARDS AND BOAT STORAGE

PLANNING PERMISSION WILL BE REFUSED FOR DEVELOPMENT WHICH RESULTS IN THE LOSS OF BOATYARDS AND BOAT STORAGE AREAS.

11.58 Marine recreation also takes place off the beach but these can be controlled largely through beach management. Planning applications for development will be determined in the context of policies set out in Chapter 6.

The Countryside

11.59 Of the Borough’s 6,400 hectares, approximately 1,800 lie within the Green Belt. The countryside, both within the Borough and beyond, is an accessible recreational resource for most residents of Poole. Indeed, recent market research indicates that nearly 64% of the local population visit the countryside for recreational purposes, far more than use indoor recreational facilities or participate in active outdoor sport.

11.60 Lying, as it does, on the periphery of an expanding conurbation, it is a resource under pressure and the need for careful management is particularly important, given its sensitive character. The Green Belt already contains Upton Country Park, golf courses and planning permission has been implemented for sports facilities at Moortown Aerodrome. Given that much of the remaining area is made up of the Stour Valley and heathland Sites of Special Scientific Interest, there is little scope for introducing more formal recreational facilities, without destroying the character or viability of what little agricultural land remains.

11.61 It is therefore proposed that only that land between Moortown Aerodrome and the Canford Heath Site of Special Scientific Interest, including the existing mineral workings and waste disposal site is suitable for formal recreational activities.

L13 OUTDOOR RECREATION -CANFORD HEATH

LAND BETWEEN THE CANFORD HEATH SITE OF SPECIAL SCIENTIFIC INTEREST AND MOORTOWN AERODROME, SHOWN ON THE PROPOSALS MAP, IS SUITABLE FOR OUTDOOR SPORT AND RECREATION OF A NON-INTENSIVE CHARACTER COMPATIBLE WITH ITS GREEN BELT STATUS. SUCH DEVELOPMENT SHOULD:

i) KEEP NEW BUILT FACILITIES TO A MINIMUM;

ii) PROVIDE ADEQUATE PARKING FACILITIES, SUITABLY LOCATED AND SCREENED;

iii) PROVIDE PUBLIC PEDESTRIAN/BRIDLEWAY ACCESS ROUTES TO PROMOTE THE ENJOYMENT OF THE AREA BY THE PUBLIC;

iv) HAVE REGARD TO THE PROBABLE CONDITION OF THE EXISTING MINERALS AND WASTE DISPOSAL SITE WHEN RESTORATION HAS BEEN COMPLETED; AND

v) RESPECT THE REMOTE CHARACTER OF THE ADJACENT HEATH AND AVOID ADVERSE EFFECTS ON ITS ECOLOGICAL VALUE.

11.62 The sensitivity of the Green Belt, the need to retain as much of its rural character as possible and its proximity to areas of residential development has precluded the identification of sites suitable for noisy sports such as clay pigeon shooting, motorcycle scrambling and off-road vehicle driving. These will continue to be accommodated on suitable vacant urban sites, on a temporary basis. Where applications for formal recreation activities, including noisy sports, are made and conform with other policies of the Plan, particularly those relating to countryside and nature conservation interests, the Council would seek agreements with recognised national bodies regarding use and site management and would impose conditions controlling periods of use in order to protect local amenity. The other countryside and nature conservation policies of the Plan will also apply to the developments allowed under the terms of Policy L13.

Footpaths and Cycleways

11.63 Proposals for pedestrian movement and cycleways are set out in the Transportation Chapter. However, access to urban open space and to the countryside is enhanced by a comprehensive network of footpaths and cycleways. It should be a general principle of development that opportunities be taken to extend such access, particularly where open spaces can be linked. In this regard, Policy L14, below, relates to all developments and not only to those near the strategic links specified. It also applies to the provision of parking areas. In addition, it is the intention of the Council to secure an extension to three strategic footpath links, at Canford Heath, Holes Bay and, working with the South East Dorset Greenlink Project, along the Stour Valley.

L14 ACCESS AND LINKS TO OPEN SPACE

DEVELOPMENT PROPOSALS WILL BE EXPECTED TO INCLUDE PUBLIC FOOTPATH/CYCLEWAY/ BRIDLEWAY LINKS WHERE THESE WOULD FACILITATE IMPROVED ACCESS TO OPEN SPACE, IMPROVED LINKS BETWEEN OPEN SPACES AND EXTENSIONS TO COUNTRYSIDE ROUTES, INCLUDING LONGFLEET DRIVE NORTHWARDS TO MAGNA ROAD, THE RIVER STOUR FOOTPATH AND THE HOLES BAY WALK, ALL SHOWN ON THE PROPOSALS MAP.

Commercial Recreation and the Arts

11.64 Greater affluence and the transformation in popular culture and lifestyles have encouraged the pursuit of a wider variety of recreational activities. As a result leisure has assumed a greater economic importance and the commercial sector has become more and more involved in meeting public demands. The success of Tower Park has demonstrated this and private provision has become more significant. This is to be encouraged and will allow the Council to adopt an enabler role in addition to the direct provision of facilities. In order to promote sustainable development, however, these should be located at public transport nodes, principally local centres or in the Central Area of Poole. Consideration of development proposals will therefore have regard to any additional traffic, and contributions towards shared parking provision or additional public transport facilities may be sought. It should be noted that this section applies to uses in D2 of the Town and Country Planning (Use Classes) Order 1987, other than sports facilities which are the subject of Policy L9.

L15 COMMERCIAL ENTERTAINMENT AND LEISURE

PLANNING PERMISSION WILL BE GRANTED FOR COMMERCIAL ENTERTAINMENT AND LEISURE FACILITIES, PROVIDED THAT:

i) THEY ARE LOCATED IN THE TOWN CENTRE OR IN LOCAL CENTRES;

ii) THERE IS ADEQUATE ACCESS AND CAR PARKING, HAVING REGARD TO THE AVAILABILITY OF EXISTING PUBLIC CAR PARKS AND THE SCOPE FOR SHARED PARKING;

iii) IT IS APPROPRIATE IN SCALE AND CHARACTER TO THE SURROUNDING DEVELOPMENT; AND

iv) IT CAN BE ADEQUATELY SERVED BY PUBLIC TRANSPORT.

11.65 The Council regards the promotion and development of the arts as important both to the quality of life in the Borough and to economic development. The Lighthouse, home to the Bournemouth Symphony Orchestra, is a high profile venue both for those who watch and those who participate. However, there are many groups involved in artistic endeavours of all kinds and many local venues are used. There is little evidence of a need for new built facilities and, as a result, the promotion of a thriving arts and cultural environment will rarely be a land use issue.

L16 ART AND CULTURAL FACILITIES

PLANNING PERMISSION WILL NOT BE GRANTED FOR DEVELOPMENT WHICH RESULTS IN THE LOSS OF ART OR CULTURAL FACILITIES UNLESS SUCH FACILITIES CAN BE SATISFACTORILY RELOCATED. PLANNING PERMISSION WILL BE GRANTED FOR NEW ART OR CULTURAL FACILITIES IN THE TOWN CENTRE AND LOCAL CENTRES, PROVIDING THAT THE CRITERIA ESTABLISHED IN POLICY L9 ARE MET.

Planning Obligations

11.66 The Borough’s Leisure Strategy, together with the Local Plan, has established the level of open space and recreational facilities needed in the Borough. Open space is required for both amenity and active recreation (See paragraphs 11.13 to Policy L9). Sites have been reserved for additional open space and necessary facilities proposed in order to meet both existing shortfalls and the demand generated by new residential development. The latter may not only require new provision but also the enhanced maintenance of existing facilities under increased pressure.

11.67 Government advice indicates that it is reasonable for development to support the provision of on or off-site recreational facilities in order to achieve the objectives of the Local Plan. During the past 20 years, much of the Borough’s growth has taken place in the form of green field development and the urgent need for open space to serve these major expansion areas, such as Creekmoor, Bearwood, Merley and Canford Heath, has influenced patterns of provision. As a result, the contribution which development has made to recreational provision has been limited to those sites which have been sufficiently large to justify open space provision on site. However, the residential development of small sites also gives rise to a need for recreational facilities, the implications of which will be more marked in future as a higher proportion of the Borough’s residential development will take place on infill sites.

11.68 Planning Policy Guidance Note 12 states that where a planning authority expects developers to enter into planning obligations on a regular basis, in relation to similar types of development, they should set out their policy in their local plan. Such obligations should be reasonable and directly related in scale to the benefit which would accrue to the development. Where developments are too small to justify on site facilities, contributions to the provision of such facilities will be an alternative means of meeting the requirement.

11.69 The inclusion of adequate open space within residential development has been widely accepted and is supported in Planning Policy Guidance Note 3: Housing. The Borough Council will continue to regard the provision of 3.2 hectares of open space per 1,000 population as a reasonable standard. This comprises the National Playing Fields Association standard of 2.4 hectares of outdoor play space, including youth/adult play, equipped children’s play and casual play, together with a further 0.8 hectares of amenity open space. It is considered that 0.2 hectares is the minimum usable and efficiently maintained area of open space and that, where the necessary provision is less than this, a contribution to off-site provision or enhancement will be sought.

11.70 Where on-site provision can be justified, it will relate only to amenity open space and casual play. Youth and adult outdoor play, equipped children’s play and built recreational facilities, including provision for water-borne sports, will frequently need to be provided off-site. Equipped children’s play areas are difficult to site appropriately, bearing in mind the conflicts which can arise between the need for accessibility and residential amenity, so that carefully sited new provision or the necessary upgrading of existing facilities will be required to serve new residential development. Youth and adult outdoor play can be expected to have a Borough-wide catchment and will again include new provision, such as that at Moortown Aerodrome, or measures, such as all-weather surfacing and floodlighting, to make better use of existing facilities. Major built facilities, including indoor sports provision, will similarly serve the entire Borough.

11.71 New residential development will be expected only to make a contribution which is proportionate to the net increase in the Borough’s population which will arise from that development. This will vary between flats and houses and will also be influenced by the general fall in average household size which is occurring both locally and nationally.

11.72 Not all types of residential development will be expected to contribute equally. Family housing and flat development will, where local circumstances demand it, normally be expected to provide for the full range of recreational facilities. However, care needs to be taken in assessing the needs of other forms of residential accommodation, including special needs housing. In this respect, because of their occupancy type, sheltered housing, hostels and bedsits would not normally be expected to provide for children’s or casual play, for example.

11.73 Residential location could also have a bearing on the level and type of provision appropriate. In some areas, for example, a flexible approach to the type of amenity provision required may be appropriate. Where the development is of a size sufficient to justify on-site provision, the full standard will need to be met. In other cases, where an area is well endowed with amenity open space it may be difficult to justify additional provision. However, where there exists a shortfall or where existing provision in the area of the development is under pressure which would be exacerbated by the development a contribution would be required. Children’s play and open space for casual play needs to be accessible from development so that where provision is already adequate or cannot be made available, a contribution may not be required. However, local circumstances and pressures on the urban area are such that the cumulative impact of residential development within the built up area will require additional local provision or enhancement in most areas of the Borough. The anticipated increase in population will similarly require additional adult and youth outdoor play and major built facilities with a Borough-wide catchment.

11.74 Calculation of the levels of any contribution will be based on the appropriate proportion of the cost of what is to be provided, measured in terms of the net population increase to be accommodated (rather than the cost minus what the Council can afford). More details of this and the way in which the implementation of the obligations policy is to be administered, including the necessary Section 106 legal agreements, is to be found in Supplementary Planning Guidance published by the Council.

L17 PROVISION FOR RECREATION FACILITIES

RESIDENTIAL DEVELOPMENT SHOULD MAKE APPROPRIATE PROVISION FOR RECREATION FACILITIES DIRECTLY RELATED TO, AND NECESSARY FOR, THE DEVELOPMENT, HAVING REGARD TO THE TYPE, LOCATION, SCALE AND CUMULATIVE IMPACT OF THE DEVELOPMENT PROPOSED:

THE COUNCIL’S OPEN SPACE STANDARDS ARE:

AMENITY OPEN SPACE
                   0.8 HECTARES PER 1,000

CASUAL AND EQUIPPED CHILDREN’S PLAY 
                   0.6 -  0.8 HECTARES PER 1,000

YOUTH AND ADULT OUTDOOR PLAY
                   1.6 -  1.8 HECTARES PER 1,000

TOTAL        3.2 HECTARES PER 1,000

AMENITY OPEN SPACE AND PROVISION FOR CASUAL PLAY WILL BE PROVIDED ON-SITE IF THE DEVELOPMENT IS OF A SIZE SUFFICIENT TO JUSTIFY THE PROVISION OF AT LEAST 0.2 HECTARES. WHERE THE AREA OF OPEN SPACE IS LESS THAN THIS, AND IN THE CASE OF EQUIPPED CHILDREN’S PLAY, YOUTH AND ADULT OUTDOOR PLAY AND OTHER RECREATION FACILITIES, PROVISION WILL BE OFF-SITE.