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SPORT AND RECREATION
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Introduction
1. Sport and recreation are activities with major land-use implications. There is growing awareness of the importance of sports and recreational facilities of all kinds in our towns and cities, and increasing use of the countryside for these purposes. The Government recognises the particular concern felt by many communities that open spaces with recreational value should be protected from development. This guidance note describes the role of the planning system in assessing opportunities and needs for sport and recreation provision and safeguarding open space with recreational value.
2. Sport and recreation are important components of civilised life. Participation can help improve the individual's health and sense of well-being; excellence can help foster civic and national pride. e a valuable social and economic role. It is the policy of the government to promote the development of sport and recreation in the widest sense: to enable people to participate in sport, whether as players or spectators, and to encourage the provision of a wide range of opportunities for recreation, so that people can choose those which suit them best. Such opportunities should,- wherever possible, be available for everyone, including the elderly and those with disabilities for whom access to facilities is especially important.
3. It is part of the function of the planning system to ensure, through the preparation of development plans, that adequate land and water resources are allocated both for organised sport and for informal recreation. It is part of planning authorities' responsibilities to take full account in their development control decisions of the community's need for recreational space, to have regard to current levels of provision and deficiencies, and to resist pressures for the development of open space which conflict with the wider public interest.
4. Local planning authorities need to take into account the value of open space' not only as an amenity but also as a contribution to the conservation of the natural and built heritage of the area. Policies for open space have to be set within a planning framework which takes full account of the community's need for -development and conservation of all kinds; local planning authorities should therefore balance very carefully the competing claims of different land-uses and the community's long term requirements for open space.
[While open space is defined in the Town and Country Planning Act 1990 as land laid out as a public garden, or used for the purposes of public recreation, or land which is a disused burial ground, there are other kinds of public and private open space. This guidance is intended to apply to all types of open space of public value.]
5. In 1986 there were 21 million adults in Great Britain regularly taking part in indoor or outdoor sport, an increase of 7 per cent. since l977. Sport is likely to go on attracting more participants, playing more often. The Sports Council has set a target-(for England) of involving2 million more people in sport in the 5 years to 1993. Likewise, the Sports Council for Wales has set a target of involving nearly 300,000 more players in the ten years to 1996. These statistics relate only to formal sport; many more enjoy the informal recreational opportunities offered by open space and the countryside.
PARTICIPATION IN SPORT
[Table showing male & female participation rates 1977 - 1986]
6. The general "ageing" of the population is currently affecting sport and recreation provision. The decline in the school age population in the 1980s is now feeding through into a large fall in the 16-24 age group, while the 25-44 and the 45-59 age groups are growing. In consequence, health-related activities-jogging, aerobics, running-and sports such as indoor bowls, dance, badminton, swimming, boating, walking and golf are likely to gain in popularity during the decade, while -team and strength-based sports may decline. Pressure on the countryside can be expected to grow. There is also evidence that the 25+ age group, as the first generation to experience the wider range of modern sports and exercise facilities in and outside school, are demanding a better range and quality of facilities.
7. The recent decline in the school age population will be reversed from 1990 by a forecast increase of 800,000 over the following ten years. This has major implications for the future of school playing fields (see paragraphs 41-44). The forecast growth will not be uniform across England and Wales, and will affect different areas to different extents. It is important to recognise that some trends are medium term or are part of a cycle; decisions on the alternative use of recreational land and open apace should be based on a long term perspective, and take into account the needs of future generations.
8 Guidance on regional planning is contained in separate versions of PPG15 for England add Wales (to be replaced in 1992 by a revised version of PPG12). The broad basis of planning for sport in terms of demand and supply, constraints and opportunities is set out for England in "Sport in the Community: Into the 90s" (Sports Council, 1988) and for Wales in "Changing Times: Changing Needs" (Sports Council for Wales, 1986). In England, each Regional Council for Sport and Recreation (RCSR) [2] prepares a regional strategy [3] which should be considered by local planning authorities and taken into account in the preparation of regional planning guidance. These regional sport and recreation strategies are drawn up in consultation with a wide range of interested organisations.
[2 See DoE Circular 47/76 Regional Councils for Sport and Recreation.]
[3 See DoE Circular 73/77 Guidelines for Regional Recreation Strategies.]
9. Strategic and regional planning guidance already issued by the Department of the Environment touches on sport and recreation issues, usually in the context of matters relating to open land. Sport and recreation issues which may need to be dealt with in such guidance are:
- policies for particular major facilities or centres which are of regional, national, or international importance;
- policies for natural landscape features and wildlife habitats having potential for recreation (eg. mountains, woodlands, rivers, estuaries, coastline), where there may be a conflict of priorities;
- policies for the urban fringe, large areas of open land within conurbations, the countryside and Green Belts; and
- implications for sports and recreation provision of strategic policies for new development.
Local planning authorities, in consultation with RCSRs, Sports Council regional offices and other relevant organisations, should draw attention to such issues in their advice to the Secretary of State on the preparation of regional planning guidance.
10. The Welsh Office is producing a series of Strategic Planning Guidance in Wales (SPGW) reports for consultation. The counties will take-the lead in coordinating the contributions of districts, National Park Authorities, and other interested parties in assessing the existing guidance as presented in the SPGW reports and in providing the Secretary of State with advice on the main strategic issues facing Wales in the next 10-15 years. In responding to the Secretary of State, local authorities may include advice on sport and recreation. The Sports Council for Wales will be brought into the consultation procedures.
11 County structure plans [4] set out broad land use policies on key strategic issues, having regard to national and regional policy guidance in England and national and strategic planning guidance in Wales. Local plans [5] set out more detailed policies and proposals for the development and use of land, and provide the framework for decisions on individual planning applications. Local plans are required to be in general conformity with the structure plan for the area, which will in turn reflect national needs for specific recreational facilities. The statutory procedures provide for full public consultation in the preparation and alteration of development plans. The Sports Council regional offices and the Sports Council for Wales can advise on all aspects of planning for sport and recreation. The Countryside Commission (in Wales, the Countryside Council for Wales) can advise on planning for recreation in the countryside and provide technical advice on conservation and recreational planning policies. Where conflicts are likely between nature conservation and sport and recreation, local planning authorities may find it helpful to obtain advice from English Nature (in Wales, the Countryside Council for Wales). Local planning authorities should consult widely with these organisations in drawing up development plans. Their addresses are listed in Table D.
[4 For the purposes of this document "structure plans" should be taken to include part I of unitary development plans in the metropolitan areas.]
[5 For the purposes of this document "local plans" should be taken to include part II of unitary development plans.]
12. PPG15 [this has been cancelled and superseded by PPG12] makes clear that structure plans will be expected to set out authorities' strategic land use policies for leisure and recreation. Structure plans should:
-identify the scope for major sport and recreation initiatives (e.g. community forests, use of redundant mineral sites)
- provide guidance on sport and recreation provision affecting all or significant parts of the country; and
- offer strategic guidance on other issues needing countywide policies such as the protection of sensitive areas from inappropriate sports and recreation, and the provision of football stadia and other major facilities.
13. Guidance on the preparation of local plans is given in PPG12. Local plans provide the appropriate context in which to assess local needs for recreational facilities,: identify deficiencies in the provision of public open s space; encourage the development of suitable site and type' of site -for additional sport and recreation and open space provision; ensure that provision is properly coordinated with other form of development and other land-use policies; and protect open space and other land with recreational or amenity value. Policies should offer reasonable certainty to developers, landowners and residents about the weight to be given to sport, recreation and open space needs.
14. Policies should be prepared after close co-operation between the planning department, the department responsible for sport and recreation and other local authority departments with an interest, particularly education. In "District Sport and Recreation Strategies: A Guide (1991)", the Sports Council has encouraged relevant local organisations and local authority recreation departments to draw up district sports and recreation strategies in consultation with the planning authority. The Countryside Commission can work with local authorities to draw up strategies for recreation in the countryside. These strategies should be considered in the preparation of local plans.
15. Policies and proposals in local plans can be locationally specific. They should generally cover:
-the specific needs for both mainstream and specialist sports facilities (indoor and outdoor), including, where appropriate, large sites (for example, local motor or air sports sites, football stadia, orienteering courses and boating facilities);
-the particular recreational needs of the elderly and disabled people; -the protection of public and private open space and other land of recreational, conservation, wildlife, historical or amenity value; -availability of public rights of way; and playing fields (see paragraphs 41-44 below).
Local plans should include specific policies on public access to open space which has recreational value. Consideration will need to be given in particular areas to the relationship between the recreational use of land and the interest of conservation. Access may need to be managed to protect the historic environment (see PPG16 in respect of England; a separate PPG is being prepared for Wales), or to conserve wildlife habitats in, for example, Sites of Special Scientific Interest.
16. The- Government does not consider that it would be helpful to prescribe national standards of recreational provision. Circumstances differ greatly from one area to another. It is for local planning authorities to identify deficiencies in public open space and recreation provision, and to justify the amount and location of new provision against other competing pressures for the use of land. It will therefore be helpful if local planning authorities draw up their own standards of provision for formal and informal sport and recreation, based on their own assessment of need, and include those standards in their local plan.
17. Tables A and B provide illustrative material that may help authorities formulate local standards. The National Playing Fields Association proposals for minimum standards in urban areas refer to formal sports areas for adults and informal play-space for children only, while the Greater London Development Plan minimum standards refer to accessibility to a range of facilities and functions. The extent to which particular standards are applicable in a specific area-and whether for the whole or part of a district-is a matter for the local planning authority's judgment. In considering possible standards, ease of access to local public open space, particularly on foot, should be an important consideration in plan preparation.
18. There are growing links between sport and recreation on the one hand and tourism on the other. Indeed sport and recreation can be the motive for tourists to visit an area and thus influence economic growth there. Local plan policies should take into account the recreational needs of tourists and where appropriate encourage the development of facilities that benefit both visitors and residents.
19. Local plans should contain policies on the potential for re-use of disused railway tracks, which have an important part to play in offering recreational opportunities in urban areas and the countryside. For example, such tracks can-be transformed into footpaths or cycleways which provide safer alternatives to urban roads or give access to the countryside. When proposals for redeveloping goods yard or station sites on such routes are being considered, the aim should be to preserve a corridor for recreational use in order not to interrupt a significant length of disused track with recreational potential. Where a local authority has an opportunity to purchase a disused line, consideration should be given to its potential recreational value.
20. Sport and recreation facilities and open space can form an important component of housing, major office or retail developments, while reclaimed land, including former commercial docks and mineral workings, can have a recreational use. In highly built-up areas redevelopment schemes may provide opportunities for creating new public open space. It may be appropriate for local authorities to enter into planning obligations under section 106 of the Town and Country Planning Act 1990 or other powers to secure the provision of public open s ace and sporting, recreational, social, educational or other community Facilities as part of larger mixed developments. Such agreements might cover:
-the provision of on-site and off-site recreational facilities related to the development;
-in the case of small developments, a contribution to nearby sport and recreation or open space provision; and
-alternative provision when recreational land or open space is lost.
21. Local plan policies should give a clear indication of the types of development for which agreements of these kinds may be appropriate. What is provided under the terms of the agreement should be directly related to the development, necessary in planning terms to the grant of planning permission in terms of securing an acceptable balance of uses where mixed development is proposed and fairly and reasonably related to the development in scale and kind. Detailed guidance on these matters will be issued shortly in a revision of PPG1
22. Because of the positive community value of open space for recreation, local authorities should lead by example in the use they make of sites they own. They may not dispose of "open space" as defined in the Town and Country ]Planning Act 1990, or appropriate it to another purpose, unless they first publish notice of their intention to do so for two successive weeks in a local newspaper and consider any objections. Planning policies should be applied in an even-handed way regardless of ownership. The Planning and Compensation Act 1991 provides new arrangements under which local planning authorities are to obtain planning permission for their own development or for development on their land. These new arrangements are designed to increase the accountability of local authorities.
23 When local authorities come to dispose of their land, they are under a general obligation to seek the "best consideration." However, under Section 19 of the Local Government (Miscellaneous Provisions) Act 1976 and the Recreational Land General Disposal Consent 1977, they can let that land at any consideration provided it-is, and will, after disposal, continue to be, held for the purposes of Section 19. Those purposes include sports areas [6] and ancillary facilities. In effect this provision -overrides the requirements of the Local Government Act 1972 to obtain consent for disposal of a lease at less than best consideration.
[6 Sports centres, swimming pools, skating rinks, tennis, squash and badminton courts, bowling centres, riding schools, pitches for team games, athletics grounds, cycle tracks, golf courses, facilities for gliding, facilities for boating and fishing etc.]
24. Controls over the compulsory acquisition of open space are rigorous. The Acquisition of Land Act 1981 provides that a compulsory purchase order which includes open space, as defined in the legislation, or any new rights over it, shall be subject to special Parliamentary procedure unless the Secretary of State certifies that suitable alternative land is being given in exchange. Before he so certifies, the Secretary of State must satisfy himself that the land to be given in exchange is no less in area than the existing open space and is equally advantageous to the public. Broadly similar arrangements apply to common land. In certain minor cases it is unnecessary to provide exchange land.
Planning issues in different areas
25. The Government attaches great importance to the retention of recreational and amenity open space in urban areas. Demand is concentrated there, and it is important that people-particularly children and elderly people-should have access to open space close to where they live. Open space, whether or not there is public access to it, is also important for its contribution to the quality of urban life. It enhances the character of conservation areas, listed buildings and historic landscapes; it can attract business and tourism; it is part of the urban regeneration process. Use of land as open space is no less important than other uses. Once built on, open space is likely to be lost to the community for ever; planning decisions resulting in the development of open space should, therefore, take into account the longterm impact of the loss of such space.
26. Designation of land as urban open space on the proposals map and in the policies of the local plan will help to ensure that its amenity and recreational value to the community are taken fully into account in considering any proposals for development. Plans will need to distinguish on the proposals map between:
-open spaces which in the authority's view will need to be protected from development for as far ahead as can be foreseen;
-sites which are temporarily allocated to recreational use; and -unused open land which may be suitable for development.
27. In their planning decisions, local planning authorities should seek to achieve a reasonable balance between the need to make adequate provision for development in urban areas and the need to protect open space from development. Undeveloped land which has recreational or amenity value should be protected by the planning system if it can be demonstrated that there is (or would be) a deficiency in accessible public open space in the area. Development control decisions that would reduce open space should take into account the relevant development plan policies, and whether it is to be replaced with alternative provision with similar community benefit.
28. Government policies are also aimed at securing proper use of vacant land in urban areas, to sustain the vitality of our towns and cities, encourage urban regeneration and reduce development pressures on the countryside. But such policies should not be pursued at the expense of the quality of the urban environment. Where publicly owned land is set aside as open space but is so poorly maintained that it makes no effective contribution as such in practice, it may reasonably be regarded as vacant land. In such cases it could be appropriate to include it on registers of public sector vacant land in default of any early plans for its rehabilitation. The Government's Derelict Land Grant can assist with the development of derelict land for sport and recreation purposes.
29. The provision of indoor sport and outdoor synthetic or other surfaces capable of intensive use may help meet the demand for sports facilities while reducing pressure on urban open space. As land supply in urban areas is limited, priority will often need to be given to intensive forms of provision-i.e. multi-sports provision with indoor and outdoor facilities. Without sympathetic consideration from local planning authorities to providing such facilities, recreational opportunities for local communities will be restricted. Such facilities are therefore important; they can also benefit visitors and take on a regional or strategic role in certain circumstances.
30. The factors which will need to be taken into account in considering a proposal for such facilities include local environment and amenity, proximity to public transport, access for disabled people, traffic and parking, and the relationship to existing open space and grass pitches.
31. Among those matters which will generally require planning permission is the erection of floodlights. The local planning authority should seek adequate information as a basis for making decisions. It may be possible to grant permission subject to conditions, for example limiting the hours during which the lights may be switched on, or requiring the installation of some sort of shielding. In this way recreation can be encouraged wherever possible, and not stifled by lack of information about the effects of a particular development.
32. Planning authorities should consider the scope for encouraging recreational facilities and increased public access to open land on the urban fringe, where this is compatible with existing uses. Subject to the policies in local plans, protection or creation of open space for amenity, wildlife, conservation or recreational purposes is no less important in these areas than in inner urban areas.
33. In some areas of the urban fringe, sites for recreational use may act as an important buffer between agricultural and urban uses to protect crops from damage. Recreational opportunities may also arise in connection with new developments in the urban fringe, such as business and industrial parks. Local planning authorities are asked to give sympathetic consideration to planning applications for afforestation initiatives in urban fringe areas, as proposed by the Countryside and Forestry Commissions, and for possible changes of use of agricultural land for suitable recreational pursuits. It is important, where possible, to enhance the "rights of way" network in these areas. Where proposals for recreational initiatives are considered, nature conservation interests in the area should be taken into account.
[Paragraph 34 has been cancelled by paragraph 4.1 in PPG2 (revised), Green Belts (1995)]
35. People living in the countryside have no less a need for recreation than people in towns. But opportunities for sport and recreation are needed in rural areas for smaller and more widely scattered populations. The provision of playing fields, and other outdoor and indoor facilities may best be pursued by dual use of school facilities, provision of village halls, or appropriate conversions of farm buildings. In some areas residents and visitors together may support facilities which would not otherwise be viable. Facilities can serve several villages.
36. Over 80 per cent of the population visit the countryside for recreational or sporting purposes at least once a year. Informal recreation, including walking, is the most popular activity. A smaller but growing number of people take part in organised sport. Of all the visits made to the countryside, a significant proportion is made to sites managed specifically for sport or recreation. Use of such sites can relieve pressure on sensitive areas. The provision of country parks, local nature reserves and accessible "pocket parks," together with the enhancement of picnic areas, car-parking, canals, footpaths and bridleways increase the opportunities to enjoy the countryside.
37. The characteristics of the countryside which attract visitors include its natural beauty and landscape diversity, its nature conservation interest, and those various natural resources which may be used for sport and recreation. In many cases certain qualities are of particular value in their own right at local, national and international level. The statutory purposes of National Parks include not only the conservation of the natural beauty of the countryside but also the promotion of its public enjoyment and open air recreation; Areas of Outstanding Natural Beauty may also be important for sport and recreation but the main statutory purpose here is the protection of the quality of their natural beauty.
38. In National Parks, whilst conservation and recreation provision are equal objectives, where there is an irreconcilable conflict between these purposes, the conservation and enhancement of the Park's natural beauty must take precedence. In Areas of Outstanding Natural Beauty, whilst recreation is not an objective of designation, the demand for recreation can be met so far as this is consistent with the conservation of their natural beauty and the needs of agriculture, forestry and other uses. Heritage coasts, as defined in development plans, represent our finest coastal scenery, but also provide opportunities for the promotion and encouragement of recreational activities. As with National Parks, in cases of irreconcilable conflict, the conservation and enhancement of natural beauty must prevail.
39. In the majority of rural areas, however, the aim should be to balance and reconcile these interests through appropriate management measures. Sport and recreation activities in the countryside should be appropriate and in harmony with it. In development plans and development control, local planning authorities should have regard to preserving or enhancing those characteristics which are important, and to providing for the needs of the local community and economy and for other uses of land such as agriculture and forestry. They should take account of the nature of the particular sporting or recreational activity and the ability of the land to sustain that activity in the long term. A location may be suitable for some pursuits but not others; some locations may be suitable for a cluster of activities. It should be possible to contain the impact by appropriate management measures (for example through restrictions on time, space or season). At locations where further activities are possible, local planning authorities may consider promoting 64 enabling" infrastructure (e.g. for launching watercraft) that would enable further provision to be made.
40. The Government's Farm and Conservation Grant Scheme can support the alternative use of agricultural land and buildings for sport and recreation, and under the set-aside scheme arable land may potentially be available for suitable sports facilities and for public access subject to appropriate planning controls. The Countryside Commission works closely with local authorities, farmers and other countryside managers to make information about local opportunities more widely available.
41. All playing fields, whether school playing fields, or those owned by
other public, private or voluntary organisations, are of special significance
both for their recreational and amenity value and, in towns and cities, for their contribution to the green space of an urban environment. When not required for their original purpose, they may be able to meet the growing need for recreational land in the wider community.
42. Yet in some cases playing fields, both publicly and privately owned, may have been sold off without taking into account the long-term needs of the community for recreation or amenity open space. Playing fields should normally be protected, except where:
-sports and recreation facilities can best be retained and enhanced through the redevelopment of a small part of the site; -alternative provision of equivalent community benefit is made available; or
-the local plan shows an excess of sports pitch provision and public open space in the area, taking account of the recreation and amenity value of such provision.
43. Local authorities have, for some years, been encouraged by Government to make use of school premises for community recreation purposes and there is evidence that this is happening. The Department of Education and Science is publishing a guidance booklet on dual use entitled A Sporting Double. School and Community (I 991). During recent years, in response to a fluctuating school population, local education authorities have taken decisions to dispose of land and buildings surplus to educational requirements. Such decisions are a matter for local discretion. However, once redeveloped, it is unlikely that school playing fields can be recovered. Given the projected increase in school rolls during the 1990s and the continuing important recreational and amenity value which these sites provide, the Department of Education and Science is considering advising local education authorities not to dispose of any school playing fields unless they have investigated and established that the sites will not be required in the longer term for school or community use. In doing so, they should consult with the local planning authority and take account of any policies in the local plans.
44. Local plans should include a statement of the extent of the communities requirements for sports pitches and policies on the protection of playing fields. They should take account of the Register of Recreational Land being prepared by the Sports Council (with assistance from the Central Council of Physical Recreation and the National Playing Fields Association).
All-seater Football League stadia
45. The Government has accepted Lord Justice Taylor's recommendation in his final report on the Hillsborough stadium disaster that all-seated accommodation should be introduced at all Football League grounds for reasons of safety, public order and spectator comfort. The Government's objective is to achieve all-seated accommodation at all First and Second Division grounds from the start of the 1994/95 season and at all Third and Fourth Division grounds from the start of the 1999/2000 season.
46. To achieve this, football clubs will need to redevelop their grounds to varying degrees, possibly enlarging the stadium/site, or in some cases transferring to new locations. Many grounds are out-dated, lack amenities, and are unsuitably sited in residential areas where access by public transport is poor and parking space inadequate.
47. Local planning authorities are asked to give sympathetic consideration to development proposals designed to achieve the aim of all-seated accommodation of Football League grounds. They should take account, given the timetable in paragraph 45 above, of the urgency in considering applications for planning permission for such development. In view of this urgency and the likely scale of development, particularly where a new ground is proposed, it is important that there is close consultation at an early stage between individual clubs and their local planning authorities. A local planning authority may wish to initiate a dialogue where it knows a particular club is seeking relocation.
48. The possible relocation of a Football League club to a new site may be of sufficient importance to merit a locational policy in the structure plan. Given the urgency of the moves towards improved football stadia, and the impact that a new football stadium may have across and beyond district boundaries, the county councils may find it helpful to convene a forum of local planning authorities and the relevant local football clubs to consider the question of a strategic site.
49. The adequacy of existing football stadia and the need for improvement should be taken into account in preparing and reviewing the local plan. Account will need to be taken of all normal planning considerations, such as traffic, parking, access to public transport, and possible conflicts with neighbouring uses. The improvement of safety and public order are also important factors which will need to be given due weight both in formulating local plan policies and in dealing with specific applications. Local planning authorities should also have regard to the extent to which proposals incorporating multiple-use and non-football leisure facilities will be of benefit to the community as a whole. Considerations of particular relevance to the relocation of football clubs will include the possible use of reclaimed or derelict land, especially in the urban fringe, including former mineral sites, and the proximity of any new site to the traditional catchment area of the club.
50. Because of the size of the structures involved, major football stadia cannot be regarded as appropriate development within an approved Green Belt. As PPG2 makes clear, very special circumstances would be needed to justify setting aside the general presumption against inappropriate development in the Green Belts. It would be most unusual for a stadium proposal to meet those very special circumstances unless all other practicable options for location had been exhausted and other considerations had been fully addressed. A site for development as large as a major football stadium should normally be identified in a local plan. It could be considered alongside any proposal for the adjustment of Green Belt boundaries. Such boundaries should be altered only in exceptional circumstances, after consideration of development opportunities within urban areas. The procedures for making and reviewing local plans provide opportunities for full public consultation on proposals to alter boundaries.
51. Noise from motorised sports and some gun sports can cause concern in some locations. General guidance on planning and noise is given in Department of the Environment Circular 10/73 (Welsh Office 16/73). This is under review, and updated advice will be issued in due course. The Control of Pollution Act 1974 enables the Secretaries of State to approve codes of practice giving guidance on appropriate methods of minimising noise. A code on noise from model aircraft was issued in 1982, and the Clay Pigeon Shooting Association is preparing a draft code in consultation with the Department of the Environment.
52. Where there is a clear demand for noisy sports activities, it is important that planning authorities seek to identify sites which will minimise conflicts with other uses. Criteria for the selection of sites for regular use must include the potential impact of the activity on the site and on adjacent land use and nearby residents. Suitable sites can often be found; they could include degraded land, former mineral sites or set-aside farming land which meet all of the criteria. They may be adjacent to an existing noise generator such as a main road, or in locations screened by banks and trees. The provision of suitable sites can divert unauthorised and damaging use of playing fields, footpaths, open land and woodlands. If the governing body of the relevant sport has produced a code of conduct for use when organising events, this should be consulted when seeking to resolve problems with existing sites or considering new ones.
53. Newer leisure activities, such as war games, can cause disturbance and danger as well as noise problems. Sensitive areas, including ancient woodlands, should be protected from such activities that would have an adverse impact. The Town and Country Planning General Development Order 1988 (the GDO) gives a general grant of planning permission for the use of land for certain activities for up to 28 days in any calendar year. Longer use requires specific planning permission. The permitted development rights available in the GDO have been granted by Parliament and should be withdrawn only where there is a real threat to the amenity of the area. However, the damage resulting from these activities may be particularly acute in some fragile areas such as Sites of Special Scientific Interest (SSSIs) and a local planning authority may make a direction under Article 4 of the GDO withdrawing permitted development rights and requiring a specific planning application to be made for a temporary use. For a direction to remain in force for longer than six months, the Secretary of State's approval is necessary.
54. The Government has announced that in Sites of Special Scientific Interest in England and Wales it intends to withdraw all permitted development rights for the temporary use of land for wargames, motorsports and clay pigeon shooting. Advice on planning applications for these uses in SSSIs will be included in the forthcoming Planning Policy Guidance note on Nature Conservation.
55. Participation in air sports has grown substantially, particularly as hanggliding, gliding and microlight aircraft have developed in the last twenty years as alternatives to flying light aircraft for sport. At the same time there has been pressure on flying from existing airports. Some have closed down for economic reasons; others have extended their availability to larger aircraft. Small airfields are being established on new sites, particularly where landowners wish to take advantage of the set-aside scheme. In any application to use a field as an airfield, local planning authorities should consider carefully the proposed runway and circuit alignments, as well as other sports uses to which it can be put, in order that environmental problems for those on the ground, in particular noise, are kept to an acceptable level.
56. In considering development plan policies and proposals for new development affecting inland waters, local planning authorities should bear in mind the need to obtain advice from the [Environment Agency], which has statutory duties in respect of water recreation and the responsibility to safeguard water quality, for example by licensing discharges to such waters. There is a widespread shortage of mooring facilities for boats both on inland waters and on the coast. Development plans may encourage the imaginative use of redundant mineral workings, disused commercial docks and redundant agricultural land in proximity to inland or tidal water. Such use can provide extensive new moorings without undue detriment to local interest or the natural environment.
57. Golf courses can open up the countryside for recreation, but they can also have a significant impact. They should be located and designed to ensure harmony with the surrounding countryside and to conserve the natural environment. Each proposal should contain full details of the site and of the impact of the development proposed, including the effect on public rights of way. Any significant associated developments, such as hotels, should be considered on their own merits. Special care should be taken in considering application in areas such as National Parks, Areas of Outstanding Natural Beauty, Sites of Special Scientific Interest, Green Belts, historic landscapes and the Heritage Coast.
58. English Heritage has prepared guidance on golf course proposals in historic landscapes including archaeological remains, conservation areas, and parks and gardens. This suggests how to assess the historic value of a landscape, gauge the impact of a golf course proposal, the historical considerations which may need to be borne in mind in deciding the application, and safeguards which can be built in when permission is granted. English Heritage also publish a Register of Parks and Gardens of special historic interest in England.
59. Ministry of Housing and Local Government Circular 33/70 (Welsh Office 36/70) is hereby cancelled.
Summary of the NPFA minimum standard of outdoor playing space recommendations
The National Playing Fields Association recommends a minimum standard for outdoor playing space of 2.43 hectares per 1,000 population. This is commonly referred to as the "NPFA 6 Acre Standard."
Breakdown of the Standard
Depending on the total population profile of the locality concerned, the total standard should be met by an aggregation of space within the ranges given below:
A Youth and Adult Use
Facilities such as pitches, greens, courts and miscellaneous items such as athletics tracks, putting greens and training areas in the ownership of local government, whether at county, district or parish level; facilities as described above within the educational sector which are as a matter of practice and policy available for public use; facilities as described above within the voluntary, private, industrial and commercial sectors which serve the leisure time needs for outdoor recreation of their members or the public
1.6 - 1.8 ha (4 - 4.5 acres)
B Children's Use
B 1 Outdoor equipped playgrounds for children of whatever age; other play facilities for children which offer specific opportunity for outdoor play, such as adventure Playgrounds
0.2 - 0.3 ha (0.5 - 0.75 acres)
B2 Casual or informal play space within housing areas
0.4 0.5 ha (1 - 1.25 acres)
The Association recommends that:
Further information can be found in the publication The NPFA "Six Acre Standard" (1989) and The State of Play (1990) (The National Playing Fields Association).
Example of local planning authority standards for publicly accessible open space
Type and main function
Approx. size and distance from home
Characteristics
Regional parks and open
spaces
Linked Metropolitan 400 hectares Large areas and corridors of
open Land and Green 3.2 - 8km natural heathland, downland,
Corridors) commons, woodlands and
Weekend and occasional parkland also including areas
visits by car or public not publicly accessible but
transport which contribute to the
overall environmental
amenity. Primarily providing
for informal recreation with-
some non-intensive active
recreation uses. Car parking
at key locations.
Metropolitan parks
Weekend and occasional 60 hectares Either i. natural heathland,
visits by car or public 3.2km or downland, commons,
transport more woodland etc. or ii. formal
where the
parkis ion.
appreciably S,
larger r
other pursuits. Adequate car
parking.
District parks
Weekend and occasional 20 hectares Landscape setting with a
visits by foot, cycle, car 1.2km variety of naturaf features
and short bus trips providing for a wide range of
activities, including outdoor
sports facilities an aying
fields, children s for
different aize and
informal recr4 ursuits.
Should provi( car
parking.
Local ' parks
For pedestrian visitors 2 hectares Providing for court games,
0.4km children'@ play, sitting-out
areas, nature conservation,
landscaped environment; and
playing f@lds if the parks are
large enough.
Small local parks and open
spaces
Pedestrian visits, especially 2 hectares
by old people and cfiildren; 0.4km
articularly valuable in
Eigh density areas
Linear open spaces
Pedestrian visits Variable.
Wherever
feasible.
Gardens, sitting-out areas, children's playgrounds or other areas of a specialist nature, including nature conservation areas.
Canal towpaths, paths, disused railways and other routes which provide opportunities for informal recreation, including nature conservation. Often characterised by features or attractive areas which are not fully accessible to the public but contribute to the enjoyment of the space.
Reference material
Title Published by
National Countryside Recreation
Survey 1984
Access Study: Summary Report
Motor Sports and Motor Recreation-A Handbook for Providers
Changing Times: Changing Needs
Sport in the Community: Into the 90S
Providing for Motorised Sports Providing for Air Sports
Policies for Enjoying the Countryside
The NPFA Six Acre Standard
The State of Play
A Countryside for Sport
Countryside Commission (1985)
Countryside Commission (1986)
Sports Council (1986)
Sports Council for Wales (1986)
Sports Council (1988) IC'
Sports Council (1989)
Sports Council (1989)
Countryside Commission (1989)
National Playing Fields Association (1989)
National Playing Fields Association (1989)
Sports Council (November 1990)
SOURCE: Greater London Development Plan, as amended by London
Planning Advisory Committee in 1988.
NOTE: These standards are shown for illustrative purposes only, and are not intended to be endorsed as being of general application.
Countryside and Nature Conserva- Countryside Commission and
tion Issues in District Local Plans Nature Conservancy Council
(November 1990)
Good Conservation Practice in Sports Council, Countryside Com-
Sport and Recreation mission, Nature Conservancy Coun-
cil and World Wide Fund for Nature (1991)
District Sport and Recreation Stra- Sports Council (1991)
tegies-A Guide
Sport and Recreation in the
Countryside Central Council of Physical Recreation (1991)
The Playing Pitch Strategy Sports Council, Central Council of
Physical Recreation, and National Playing Fields Association (1991)
A Sporting Double: School and
Community Department of Education and Science (1991)
Environmental Assessment: The Countryside Commission (1991)
Treatment of Landscape and
Countryside Recreation Issues
Visitors to the Countryside Countryside Commission (1991)
Useful addresses
These bodies are ready to provide advice on sport and recreation issues
The Sports Council
16 Upper Woburn Place
London WCLH OQP
Tel: 071-388-1277
The Countryside Commission
John Dower' House
Crescent Place
Cheltenham
Glos GL50 3RA
Tel: 0242-521381
English Nature
Northminster House
Peterborough PE1 lUA
Tel: 0733-340345
The Countryside Council for
Wales
Plas Penrhos
Ffordd Penrhos
Bangor
Gwynedd LL57 2LQ
Tel- 0248-370444
The Sports Council for Wales
National Sports Centre for
Wales
Sophia Gardens
Cardiff CF1 9SW
Tel: 0222-397571
The Central Council of Physical
Recreation
Francis House
Francis Street
London SWLP 1DE
Tel: 071-828-3163/4
English Heritage
Fortress House
23 Savile Row
London WlX 1AB
Tel: 071-973-3000
CADW: Welsh Historic
Monuments Executive Agency
Brunel House, 9th Floor
2 Fitzalan Road
Cardiff CF2 1UY
Tel: 0222-465511
Regional Councils for Sports and Recreation (forum in which many organisations with sport and recreation interests are gathered) and Sports Council regional offices (which act as secretariat to RCSRs):
Northern Region Eastern Region
Aykley Heacrs 26/28 Bromham Road
Durham DHl 5UU Bedford MK40 2QP
Tel: 091-384-9595 Tel: 0234-45222
Greater London Region
Yorkshire and Humberside PO Box 480
Region Crystal Palace National Sports
Coronet House Centre
Queen Street Ledrington Road
Leeds LS1 4PW Londo@ SE19 2BQ
Tel: 0532-436443 Tel: 081-778-8600
South East Region
North West Region PO Box 480
Astley House Crystal Palace National Sports
Centre
Quay Street Ledrington Road
Manchester M3 4AE Londo@n SE19 2BQ
Tel: 061-834-0338 Tel: 081-778-8600
@6
West Midlands Region
Metropolitan House
1 Hagley Road
Five Ways
Birmingham B16 8TT
Tel: 021-456-3444
East Midland Region
Grove House
Bridgford Road
West Bridgford
Nottingham NG2 6AP
Tel: 0602-821887
Southern Region
51A Church Street
Caversham
Reading
Berkshire RG4 8AX
Tel: 0734-483311
South Western Region
Ashlands House
Ashlands
Crewkeme
Somerset TA18 7LQ
Tel: 0460-73491
Regional Offices of the Countryside Comniission
Northern Region Midlands Region
Warwick House Cumberland'house
Grantham Road Broad Street
Newcastle upon Tyne Birmingham B15 lTD
NE2 1QF Tel: 021-632-6503
Tel: 091-232-8252 Eastern Region
Ortona House
North West Region 110 Hills Road
2nd Floor Cambridge CB2 1LQ
184 Deansgate Tel: 022S-354462
South East Region
Manchester M3 3WB
71 Kingsway
Tel: 061-833-0316
London WC2B 6ST
Tel: 071-831-3510
South West Region Yorkshire & Humberside
Bridge House Region
Sion Place 8a Otley Road
Clifton Down Headingly
Bristol BS8 4AS Leeds LS6 2AD
Tel: 0272-739966 Tel: 0532-742935/6
Regional Offices of English Nature
Eastern Region North West Region
Northminster House Blackwell
Peterborough PE1 lUA Bowness-on-Windermere
Tel: 0733-340345 Windermere
Cumbria LA23 3JR
North East Region Tel: 09662-5286
Archbold House
Archbold Terrace
Newcastle upon Tyne
NE2 1EG
Tel: 091-281-6316n
Southern Region West Midlands Region
Foxhold House Attingham Park
Crookham Common Shrewsbury
Newbury Shropshire SY4 4TN
Berks kGl5 8EL Tel: 074377-611
Tel: 063523-8881 South East Region
South West Region The Countryside Management
Roughmoor Centre
Cold Harbour Farm
Bishops Hull
Taunton Wye Ashford,
Somerset TAl 5AA Kent TN25 5DB
Tel: 0823-283211 Tel: 0233-812525
Regional Offices of the Countryside Council for Wales
Dyfed/Powys Region
Pfas Gogerddan
Aberystwyth
Dyfed SY23 3EE
Tel: 0970-828551
North Wales Region
Hafod Elfyn
Ffordd Penrhos
Bangor
Gw@nedd LL57 2LQ
Tel: 0248 370444
South Wales Region 43/44 The Parade Road Cardiff CF2 3UH
Tel: 0222 485111