B83 Chapter 12 - Sport and Recreation

Introduction

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12.1

The Government's PPG on 'Sport and Recreation' (PPG 17), published in September 1991, aims to promote sport and recreation in the widest sense. It wishes 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 that suit them best.

12.2

One of the functions of the Local Plan is to provide the appropriate context in which to:

• assess the needs for recreational facilities;
• identify deficiencies in the provision of public open space;
• encourage the development of suitable sites and types of site for additional sport and recreation and open space provision;
• ensure that provision is properly coordinated with other forms of development and other land-use policies; and
• protect open space and other land with recreational or amenity value.

12.3

The Government does not consider that it would be helpful to prescribe national standards of recreation provision. The Council has therefore drawn up its own standards of provision for both formal and informal sport and recreation, based upon national, regional and county strategies, and its own assessment of need.

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Outdoor Playing Space

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12.4

Outdoor playing spaces are areas of land that are available for sport, active recreation or children's play; are of a suitable size and nature for their intended purpose; are safely accessible; and are available to the public. Outdoor playing space therefore includes playing-fields, parks, playing pitches and play areas. All playing spaces, 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 for their contribution to the character of North Norfolk's towns and villages.

Playing Space Targets

12.5

The National Playing Fields Association (NPFA) recommends a minimum standard for outdoor playing space of 2.4 ha per 1,000 population. This is commonly called the 'NPFA Six Acre Standard'. Depending on the population profile of the locality this general standard should be met from a combination of playing space for youth and adult use, children's playgrounds and children's casual playing space within housing areas.

12.6

Playing space for youth and adult use includes facilities such as pitches, greens, courts and other areas such as putting greens in the ownership of local authorities. School facilities are also included where, as a matter of practice and policy, they are available for public use. Similarly, facilities provided by the voluntary, private, industrial and commercial sectors that serve the public's needs for outdoor recreation may contribute to meeting the NPFA's standard.

12.7

Playing space for children's use is of two types. The first includes outdoor, equipped playgrounds for children of all ages. The second comprises casual or informal playing space within housing areas.

12.8

Outside North Norfolk's towns and three Large Villages the area is more sparsely populated and, therefore, the Council considers it inappropriate to apply the NPFA's standard to the more rural areas. However, people living in these areas have no less need for recreation than people living in the towns. In order to address this need, the Council considers that a suitable target for playing space provision in Selected Small Villages should be a playing-field of a size suitable for senior cricket and winter games (a minimum size of 142 m x 114 m) and a children's play area (minimum size 700 m2). A playing-field of this size allows sufficient flexibility to hold a wide range of sporting and recreational activities according to need and local initiative, and usually exceeds the NPFA's minimum standard.

Fig. 17: Playing Space Targets
Growth Towns, Small Towns and Large Villages

• 1.8 ha per 1,000 population for youth and adult use;
• 0.2 ha per 1,000 population for children's playgrounds; and
• 0.4 ha per 1,000 population for children's informal playing space.

Selected Small Villages

• one playing-field (minimum size of 142 m by 114 m); and
• one children's play area (minimum size of 700 m2).

Playing Space Proposals

12.9

In 1992, the Council undertook an assessment of the availability of outdoor playing space in each of North Norfolk's towns and Large Villages. Based on the Council's targets for playing space, shortfalls were identified in Cromer, North Walsham, Sheringham and Mundesley.

12.10

To rectify these deficiencies the Council identified additional areas for outdoor recreational open space in each of the four settlements. These sites were considered to be of suitable size and location for meeting the playing space needs of the settlements in question based upon the populations recorded by the 1991 Census. The development of alternative sites for playing space or the community use of school playing-fields may satisfactorily remedy all or part of the identified shortfall. However, while there remains a shortfall the proposed sites are to be reserved for playing-field use.

12.11

Further surveys will need to be undertaken to establish the playing-field shortfalls in the Selected Small Villages.

Applications for New Playing Spaces

12.12

While the Council wishes to encourage the provision of additional playing-fields, it also recognises that recreational uses can have an impact on areas of landscape, wildlife and archaeological value, and also on the amenity of neighbouring dwellings.

12.13

Where a new playing-field is to be provided there will often be the need for changing rooms and maintenance and social facilities. The construction of a building to accommodate these activities will be acceptable provided it is located, designed and landscaped to minimise its impact on the amenity and character of the surrounding area. Larger facilities such as swimming-pools and sports halls will be considered in accordance with Policy 107: Proposed Sports Facilities.

Retention of Playing Space

12.14

Occasionally playing space, both publicly and privately owned, has been developed for other purposes without considering the long-term recreational or amenity needs of the local community.

12.15

It is the Council's view that, because of the positive community value of playing space, it should lead by example in the use it makes of sites in its ownership. The Government's view, contained in PPG 17, that playing-fields should be protected is therefore supported by the Council.

Playing Space in New Housing Developments

12.16

The Council's targets for sports facilities and playing space are based on historical levels of population and do not take account of population increases generated by more recent and future housing developments. Consequently, certain new residential developments will be required to make provision for playing space to help meet the needs generated by the residents of the dwellings concerned. Indeed, sport and recreation facilities and open space can form an important component of housing developments. There are some instances where the provision of sports facilities and playing space will not be appropriate, for example, in the case of specialist old persons' housing.The standards that developers are required to meet are set out in Part E, Annex 3.

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Allotments

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12.17

Many of North Norfolk's towns and villages have 'statutory' allotments (i.e. allotments provided under the auspices of the Allotments Acts 1908 to 1950) and/or 'non-statutory' allotments. Although the demand for plots seems to vary, allotments nevertheless remain a valuable recreation resource and are especially important in towns where many older houses do not have gardens that are suitable for cultivation. Furthermore, allotments can contribute to the appearance and character of towns and villages, and are often important havens for wildlife. Where there continues to be a demand, both statutory and non-statutory allotments will be protected. Even where there is a lack of demand, statutory and non-statutory allotments will usually be protected from irreversible development so as to take account of the recreational needs of future generations and to retain their amenity value.

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Formal Sports Facilities

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12.18

The Government makes clear in PPG 17 that 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 for organised sport.

Targets for Sports Facilities

12.19

The Eastern Council for Sport and Recreation (ECSR) has identified minimum recommended standards of provision in order to calculate shortfalls in the number and location of sports facilities in the Eastern Region. The ECSR 's minimum recommended standards for major sports facilities are one sports hall (32 m x 17 m x 6.7 m) for a population of 25-30,000, and one indoor swimming-pool (25 m x 13 m) for a population of 46,500.

12.20

In North Norfolk, with a population of 98,399 (estimated resident population in mid-1997; source: ONS), the target for the provision of major sports facilities is therefore four sports halls and two indoor swimming-pools.

12.21

However, these standards are not entirely appropriate to remoter rural areas like North Norfolk where population densities are low and, therefore, many people have to travel long distances to certain sports facilities. Consequently, the ECSR has produced guidelines on levels of provision that reflect the scale and type of facilities appropriate to the needs of rural areas and complement its standards for major sports facilities. In recognising the need for locational flexibility, the ECSR has produced two tiers of 'rural catchment area', based on market towns or large villages ('category A') and groups of smaller settlements ('category B').

12.22

Category A areas are centred on six of North Norfolk's towns and two of its Large Villages. The ECSR's minimum recommended standard for each category A area is:

• one community hall suitable for sport (22.5 m x 16.5 m x 6.1 m);
• one swimming-pool (20 m x 8 m);
• 2-3 squash courts;
• one floodlit multi-games area;
• outdoor playing pitches;
• one bowling green;
• tennis courts; and
• one children's play area.

12.23

The ECSR's minimum recommended standard for each category B area is:

• one community hall suitable for sport (15.2 m x 9.1 m x 6.1 m);
• one soccer pitch;
• one cricket table/artificial pitch;
• one bowling green;
• one floodlit multi-games area; and
• one children's play area.

12.24

The ECSR considers that all residents should be within 5-10 minutes travelling time of category B facilities, within 20 minutes of category A facilities and within 30 minutes of major sports facilities.

12.25

The Council has, in general, adopted the ECSR's standards as targets for the provision of sports facilities in North Norfolk. However, the Council considers that the ECSR's standards for the rural catchment areas are unlikely to be achieved within the Local Plan period, and therefore considers them to be long-term targets. Furthermore, the Council believes that the provision of playing pitches and bowling greens should relate to demand in the locality and, consequently, has adopted its own targets for the provision of outdoor play areas. These provide a more flexible approach to meeting local demand for outdoor recreational facilities.

Proposals for Sports Facilities

12.26

Having identified targets for the provision of sports facilities it is possible to examine the existing range of facilities and identify deficiencies.

12.27

For major sports facilities the target has largely been achieved. There are sports halls (four badminton court size) at Cromer, North Walsham and Stalham, although opening hours are constrained by school activities in each case. There is also an indoor swimming-pool at Sheringham (The Splash). However, there remains a shortfall of one sports hall and one indoor swimming-pool.

12.28

The provision of new sports facilities, according to identified shortfalls, may be achieved through the construction of new, or extension to existing, halls or the community use of existing school facilities.

Applications for Sports Facilities

12.29

Every opportunity should be taken to encourage the integration of new facilities with existing ones in order to make the most efficient use of resources. Consequently, the Council considers that the most appropriate locations for new facilities will be associated with existing open spaces in towns and villages, such as private and school playing-fields. The nature and scale of many sports facilities, whether seeking to achieve sports provision targets or not, is such that they are inappropriate in a rural setting. Consequently, large-scale sports facilities will not usually be allowed in the Countryside (see Policy 121: Large-Scale Leisure Proposals - expired 27/09/2007).

Golf Courses

12.30

About four million people play golf in the UK. In recent years greater prosperity and media coverage have served to increase participation in the sport. At the same time the need for agricultural diversification has meant that the provision of land for golf course development has become an attractive option for farmers.

12.31

In North Norfolk there are currently nine-hole golf courses at Fakenham, Mundesley and West Runton, and eighteen-hole courses at Cromer and Sheringham. There have also been proposals for further eighteen-hole courses at Corpusty and Beeston Hall.

12.32

These courses are mainly for private club members only, with no 'pay and play' facilities. Pay and play courses provide facilities for beginners and those who are ineligible for, or do not wish to be constrained by, club membership. Consequently, where new golf courses are proposed the Council will request that an element of pay and play is included for the benefit of North Norfolk's residents and visitors.

12.33

Golf courses can open up the countryside for recreation. However, they can also have a significant impact on the local landscape, wildlife and archaeology, and on the residential amenities of people living in the area.

12.34

Golf courses are, by nature, designed landscapes with particular characteristics such as mown grass, linear fairways, bunkers and water features. Golf courses change the pattern and colour of the rural landscape from the browns, greens and yellows of the agricultural scene to an image of bright green fairways and putting greens with accompanying flags and other artificial features. There is also a loss in the seasonal variety of the landscape.

12.35

Golf courses, therefore, do not necessarily blend well with the traditional North Norfolk countryside, particularly the AONB. Also, the AONB already experiences significant visitor pressure and additional golf courses would increase the demands placed upon the countryside, and the local road network, and increase the nuisance to local residents. In view of these considerations and the present level of golf course provision within or next to the AONB, it is not considered necessary or appropriate to allow additional courses within the AONB.

12.36

Similarly, golf courses will seldom be appropriate in North Norfolk's Historic Parks and Gardens where the opening up of fairways will often require the remodelling of designed landscapes. Developments that would be detrimental to the appearance or character of the setting of the Broads will also be unacceptable. Furthermore, while golf courses should be located near population centres, it is important that they respect the landscape setting of North Norfolk's towns and villages.

12.37

Elsewhere, the development of a golf course would be appropriate in places where the course would not conflict with the appearance or character of the landscape and its impact could be minimised through sensitive design and landscaping. In order to assess this impact each proposal must contain full details of the development. Details should include a draft course layout, landscaping plan, wildlife appraisal, earthworks plan, archaeological assessment and the siting of ancillary buildings.

12.38

Golf courses can be valuable in sustaining wildlife habitats in intensively farmed landscapes and often attract a variety of flora and fauna. However, proposals that could damage areas of nature conservation interest will be unacceptable.

12.39

Generally, an eighteen-hole course requires 40 to 60 ha (100 to 150 acres) of land depending on its shape, topography and vegetation. Given the large areas of land involved, it is possible that sites of archaeological importance will be affected. Courses should therefore avoid sensitive sites and developers must be prepared to be flexible in the course layout if works reveal new archaeological remains.

Golf-Course-Related Developments

12.40

Even with a modest-sized course, a clubhouse and maintenance building will probably be required. Wherever possible, existing buildings should be converted to provide accommodation for these needs. Where no such buildings are available, the Council will require new buildings to be of the highest standard of design, reflecting the design principles of the North Norfolk Design Guide (see Part D).

12.41

The construction of golf courses is often linked to residential, hotel and health and sports club developments. There are usually clear policy objections to these types of development in the Countryside where they involve new buildings and, therefore, such combined proposals will be considered in relation to the other policies of the Local Plan.

Sport and Noise

12.42

Noise from motorised sports, gun sports or newer leisure activities, such as war games, can cause concern in some locations.

12.43

Proposals for such uses should seek locations that minimise the potential impact of the activity on adjoining uses, nearby residents, areas of nature conservation interest and areas used for quiet recreation. Suitable sites may include former mineral workings, land adjoining existing noise generators, such as major roads, or in locations adequately screened by banks and trees. The provision of suitable sites can help divert unauthorised and damaging activities away from sensitive areas such as open land, woodlands, picnic areas and footpaths.

12.44

For many of these activities, planning permission will not always be necessary. The Town and Country Planning (General Permitted Development) Order 1995, as amended, gives a general grant of permission for the use of land for certain activities for up to 28 days in any calendar year (14 days for car or motor-cycle racing); longer use requires permission. However, permission is always required for motor sports, clay-pigeon shooting or war games within a SSSI.

12.45

General guidance on noise pollution is given in Chapter 5: Determining Applications for Planning Permission.

Air Sports

12.46

Participation in air sports has grown substantially, particularly as hot-air ballooning, hang-gliding, gliding and flying microlight aircraft have developed in the last twenty years or so as alternatives to flying light aircraft for sport.

12.47

There are several former military airfields throughout North Norfolk, and these should be considered as suitable locations for air sports before looking elsewhere. In all cases the Council will consider the proposed runway or airstrip alignments, the proposed uses and the overall environmental impact of the proposal.

Policy 111: Air Sports - expired 27/09/2007
Development proposals for airfields, or airfield-related developments, will be considered in relation to Policy 17: Control of Noise. Applicants must demonstrate that North Norfolk's former military airfields are unsuitable for the proposed use before permission is granted for the development of a new site.

Community Use

12.48

Community use is the sharing of sport and recreation facilities by different groups. Community use is normally associated with the dual use of school sports facilities, but it can also apply, for example, to Ministry of Defence establishments and business facilities. The community use of existing facilities that are currently unavailable to the public would be a sensible use of resources. The Council has already been involved in successful community use schemes at schools in North Walsham, Cromer, Stalham and Hoveton. These schemes have been used to meet identified shortfalls in sport and recreation provision and, in addition, they have helped to maintain and improve the existing facilities. The Council supports the proposed community use of educational and other facilities, particularly where it would help meet the Council's targets for sports facilities and playing-field provision.

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Informal Recreation in the Countryside

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12.49

Informal recreation in the countryside includes activities such as walking, country drives, cycling, horse riding, and picnicking. By definition, countryside recreation usually takes place outside of settlements. However, occasionally there may also be opportunities for informal countryside recreation within settlements, such as walking or cycling along former railway lines. Countryside recreation can be of benefit to a person's health and sense of well-being and can increase one's appreciation and understanding of an area's landscape and wildlife.

Access to the Countryside

12.50

Over 80% of the British population visits the countryside for recreation or sporting purposes at least once a year. Residents and visitors in North Norfolk can enjoy the area's varied countryside by using its long-distance footpaths and short circular walks. They can also visit picnic sites, Holt Country Park, historic parks, beaches and other beauty spots. The Council considers that one of the most effective contributions it can make towards encouraging the continuation and development of informal recreation in the countryside is to maintain the appearance and character of the area by controlling development.

12.51

However, much of North Norfolk's countryside has poor public access. The countryside is largely in private ownership, and even where there are public rights of way these are sometimes overgrown and difficult to follow. In some locations waymarking is non-existent.

12.52

In view of this situation, the Council's aim for informal countryside recreation is to increase the opportunities for the public to enjoy the countryside and its wildlife without damaging them. This can be achieved by enhancing existing facilities, promoting the development of new public rights of way, developing a network of 'open-access' sites such as country parks, and providing more facilities for car-borne visitors in appropriate locations. Within the AONB, more detailed guidance on the type and location of provision is given in the Visitor Management Strategy for the Norfolk Coast (see Local Plan paragraphs 6.59 - 6.61).

Rights of Way

12.53

Public access to the wider countryside depends upon public rights of way. The County Council, as Highway Authority, has a statutory duty to assert, protect and maintain public rights of way. Parish councils and local volunteers frequently undertake waymarking and path clearance activities. The Council has powers to create, divert or extinguish public footpaths and bridleways through Public Path Orders and may also deal with obstructions of public rights of way. Landowners and occupiers have certain duties to keep public rights of way over their land open and unobstructed.

12.54

Of particular significance to the rights of way network are linear routes of strategic importance, and circular routes of more local importance. In North Norfolk there are two strategic routes, or long-distance footpaths, namely the 'Norfolk Coast Path' and the 'Weavers Way'. Circular walks can be within or around a single village or involve the linking of several villages, long-distance paths or open-access sites.

12.55

In 1993, the Countryside Commission set out the 'National Target for Public Rights of Way', which identifies key component tasks to ensure that the network is legally defined, properly maintained and well-publicised. In 1995, the County Council adopted the strategy document 'Public Rights of Way: A Strategy for Norfolk' following public consultation. This strategy establishes the necessary principles for managing public rights of way in Norfolk and is reviewed annually through a 'Milestones Statement', which identifies action and progress towards the National Target. The Council and the County Council are developing a collaborative approach to delivering the strategy, to ensure that all public rights of way in North Norfolk are clearly signed, easy to follow and a pleasure to use. However, the Council considers that the existing network should not only be protected and maintained but, because walking is becoming more popular, should also be extended.

Policy 113: Rights of Way - expired 27/09/2007

The Council will encourage the retention and extension of the existing public rights of way network, and seek to ensure that all routes are appropriately signposted, waymarked and kept free from obstruction.

12.56

The Council will only support development proposals that involve the extinguishment of rights of way where they are clearly obsolete and of no demonstrable recreational value. It will also expect proposed footpath diversions to follow convenient and equally attractive routes compared with the original.

12.57

There are several disused railway trackbeds in North Norfolk, including the North Walsham to Cromer coastal line, most of the Wells-next-the-Sea to Norwich line and the Holt to Norwich line. Railway trackbeds can have an important part to play in offering recreational opportunities in towns, villages and the countryside, and they are also increasingly recognised for their nature conservation value. Former trackbeds can be used for walking, cycling and horse riding, thereby providing safer alternatives to urban and rural roads and improving access to the countryside. Parts of the Weavers Way, for example, use the former Cromer to Hoveton line, and the 'Paston Way' utilises much of the former coastal line.

12.58

Proposals for redeveloping goods yards or station sites should take account of the need to protect the recreational potential of disused railway trackbeds.

Policy 115: Rights of Way along Disused Railway Trackbeds
Development proposals which would prevent the future establishment of rights of way along disused railway trackbeds will not be permitted.

Open-Access Sites

12.59

Open-access sites are areas where there is unrestricted public access to the countryside. These areas include Holt Country Park, most beaches, coastal areas (particularly those owned by the National Trust), some commons, many woods and forests (especially those owned by Forestry Enterprise), 'community woodlands', 'pocket parks' and picnic areas.

12.60

The Council has supported the establishment of new woodlands for the benefit of local communities and to create new wildlife habitats. The first community woodland in North Norfolk is near North Walsham, in the parish of Knapton, and is known locally as Pigneys Wood. Here, local people have been encouraged to become involved in the woodland from its very early stages, including planning, planting and management, and they now enjoy the benefits of free access to a maturing mixed woodland.

12.61

At a more local level, small, informal countryside recreation sites, or pocket parks, are encouraged on land near smaller settlements. Pocket parks are to be provided and managed in much the same way as community woodlands, although they may not necessarily be wooded, for example commons or former 'surveyors allotments'.

12.62

There are several picnic sites in North Norfolk. The Council recognises that picnic sites are a particularly important resource for the District's residents and visitors who are dependent on the car for transport.

Equestrian Activities

12.63

Horse riding for recreation purposes (including horse breeding and training) is a common activity in North Norfolk. Unfortunately, the unsightly nature of field boundaries, equipment and shelters can have a detrimental effect on the landscape. Furthermore, overgrazing by horses can have significant adverse effects on both landscape and wildlife. Applicants for planning permission will be expected to have regard to the British Horse Society's recommendations for grazing land.

12.64

The erection of buildings for equestrian purposes usually requires planning permission. In considering proposals for such developments, the Council will take into account the effect that the buildings would have on neighbouring uses, the landscape, areas of nature conservation value and highway safety.

Water Recreation

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12.65

While the opportunities for using inland waterways for sport are limited in the Local Plan area, water sports along the coast deserve a special mention. A wide range of sports currently takes place off North Norfolk's coast, including angling, sailboarding, canoeing, rowing, sailing, 'sub-aqua', swimming and water-skiing. However, planning controls over the coast only extend seawards as far as the low water mark; therefore, the role of land-use planning in water sports activities is limited largely to land-based facilities.

12.66

The inaccessibility of the North Norfolk coast together with its tidal conditions restrict the
opportunities for sailing in the area. Consequently, further facilities and access points are likely to be concentrated on the existing centres at Wells-next-the-Sea and Blakeney.

12.67

Much of the North Norfolk coast is of high nature conservation value. While most water sports activities, such as fishing, sailing and sailboarding, can be compatible with these wildlife interests, motor boats, water-skiing and jet skis may have a serious impact on nature conservation interests. Motorised water sports may also endanger swimmers.

12.68

Motorised water sports can be noisy, but planning controls over water sports are limited and noise is only a material planning consideration in certain circumstances. Where noise is a material consideration, planning applications will be assessed according to Policy 17: Control of Noise, in addition to other relevant policies in the Local Plan.

12.69

Feasibility studies have ruled out the possibility of a marina development at Cromer on the grounds of cost and engineering difficulties.

Policy 118: Motorised Water Sports - expired 27/09/2007
Development proposals for land-based facilities to support coastal water sports will not be permitted where they are likely to generate motorised water sports activity that would be significantly detrimental to the safety of bathers or nature conservation interests.

12.70

Water sports activity on North Norfolk's rivers is generally limited to fishing.

12.71

Opportunities also exist to restore the North Walsham and Dilham Canal and use the route as an area for informal recreation. This 20 km canalised section of the River Ant is a statutory navigation, but has fallen into disrepair. Part of the canal lies within the Local Plan area and the Council wishes to see it restored for quiet waterway and informal recreation. Restoration is also considered important by the Inland Waterways Association as it would raise the water levels to enable small craft to use the canal. However, in view of the nature conservation value of the canal, the Council is of the view that there should not be any major dredging or other works except for the repair of lock gates and associated structures. Indeed, full restoration is neither desirable nor practical, and it is not intended that the canal becomes an extension of the Broads navigations for cruisers or other motorised craft. Any partial restoration proposal will be the subject of consultation with those who have an interest in the canal.

Policy 119: North Walsham and Dilham Canal - expired 27/09/2007
The Council will encourage the partial restoration of the North Walsham and Dilham Canal to provide for informal water and land-based recreation that is compatible with the nature conservation and other environmental interests of the canal and its basin.

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