Recreation, Sport and Tourism

267. The countryside of Hampshire, in particular the New Forest; its military heritage; its historic cities, towns and villages; the coast and the sailing waters of the Solent, combine to produce an attractive location for recreation and tourist activities.

268. A buoyant tourist industry has played a part in the economic success of Hampshire and it is expected that its contribution to the local economy will continue to grow, with contributions from the domestic and particularly the overseas markets generating both jobs and income. The wide range of recreational facilities has added to the attractions of Hampshire for commercial investment and as a place in which to live and work. Maintaining and improving facilities will make an important contribution towards the continued economic prosperity and quality of life.

269. The intensity of leisure and tourist activities in many areas, particularly the Solent coast and the New Forest, is such that there is increasing concern about traffic congestion, physical erosion of land and disturbance of sensitive habitats. Accommodating additional recreational development and increased visitor pressure must not result in further reduction of the attractiveness of these areas.

R1 In built-up areas, development which improves or extends the range of tourist, recreational, sporting, social or cultural facilities will be permitted subject to the requirements of the transport and environment policies of the Plan. Permission will not be granted for any development which would result in the loss of either recreational and sporting facilities or of open space for which there is a need, unless alternative provision is made of at least equivalent value (in terms of quality, quantity and accessibility).

270. It is important that urban areas should offer an adequate and accessible range and standard of recreational, sporting, social and cultural facilities to meet community and specialist needs. Tourist facilities will also assist in maintaining the quality of life, contributing towards the regeneration of urban areas and, indirectly, in stimulating economic development.

271. To minimise car trips, proposals must be easily accessible by public transport, cycling and walking. Development within town centres contributes towards maintaining their vitality and viability, particularly development accommodated by re-using or redeveloping underused or redundant land and buildings.

272. Open space is important to the quality of life. In urban areas, open space is valuable for recreation, amenity, education and nature conservation; and contributes significantly to the image of a locality. The protection of these areas is important.

273. Local planning authorities should identify recreational deficiencies and needs in recreation facilities, including playing pitches and other open space. The retention of existing facilities and any provision for new facilities will be based on the local planning authority's own assessment of need and standards of provision.

R2 Before granting planning permission for new housing development, local planning authorities should be satisfied that sufficient open space, recreational and play facilities will be provided either:

(i) on-site for an individual housing development; or,

(ii) on a cumulative basis (i.e. in association with other such

open spaces to be provided), to serve the development and

other adjacent or nearby housing schemes.

Areas of acknowledged open space deficiency will be identified in local plans. Within these areas, local planning authorities should negotiate to seek a higher provision of public open space to offset the identified deficiencies.

274. Open space may have several components, such as space for amenity and informal recreation use and outdoor playing space for sport, active recreation or children's play. Open space requirements should be determined locally in response to local circumstances and needs. Local planning authorities will need to identify deficiencies in public open space and recreation provision and justify the amount and location of new provision against other competing pressures for the use of land. Local plans may set out minimum requirements for the provision of open space in general, but local authorities may also require open space for general amenity use, informal recreation or outdoor playing space, additional to that set out in the standards subject to their particular requirements. Policy MDA 1 makes a specific reference to open space requirements additional to those referred to in this policy.

275. Where local plans establish standards for outdoor playing space, the minimum requirements for new housing development should be based on the current guidance of the National Playing Fields Association (NPFA), subject to variation to take account of local circumstances. Local planning authorities are recommended to consult the detailed advice regarding minimum standards for outdoor playing space published by the NPFA. Currently, NPFA standards comprise 2.4 hectares of playing space (minimum) for each 1,000 persons. Depending on the local population profile (which will affect levels of participation in sport and play), the total standard should be met by aggregating space within the following ranges:

Outdoor sport 1.6 - 1.8 hectares

Children's playing space 0.6 - 0.8 hectares

276. The minimum requirements should be met or exceeded in all new developments (subject to the advice of the NPFA). Where for reasons of land scarcity the minimum standards cannot be met in any given plan period, the planning authority should adopt them as a target and set an intermediate standard for achievement.

R3 In the countryside, permission for tourist, recreational and sporting development will be granted if:

(i) it assists the local economy; or

(ii) it relieves recreational pressure on the New Forest; or

(iii) it meets local recreational or community needs; or

(iv) it involves the re-use or adaptation of existing buildings;

and provided that:

(a) the proposed development is compatible with the character of the countryside;

(b) any proposed new building and structures are ancillary to an outdoor recreational or sporting use, small in scale and unobtrusive so as to maintain the open character of the countryside;

(c) the proposed development is consistent with the transport and environment policies of this Plan; and

(d) the proposal does not rely on any associated development contrary to the policies of this Plan (such as, for example, housing or business uses) to secure its economic viability.

277 Informal countryside recreation is one of the most popular leisure activities, and a growing number of people take part in organised sport in the countryside. Recreational and sporting development is welcome in the countryside, but not at the expense of environmental considerations. Tourist and cultural facilities, such as those which help the public to appreciate the heritage of Hampshire, may also be appropriate.

278. The countryside is, however, not the appropriate location for primarily indoor recreation or sporting activities, unless these meet local needs which cannot be met elsewhere, nor for development which harms the character of the countryside or the amenity of nearby residents. Designated areas of the countryside and the open character of strategic and local gaps must also be protected.

279. Tourist, recreation and sporting development can help to support and diversify the economy in rural areas by, for example, finding alternative uses for agricultural land and buildings. There may be opportunities for re-using mineral workings, landfill sites and redundant land for creating opportunities for recreation and public access. People living in rural areas also have recreational and sporting requirements. In order to reduce the need to travel, some requirements may best be met in or adjacent to the smaller towns and villages, or by the conversion of rural buildings.

280. Travel by car may also be reduced by locating countryside tourist, recreation and sporting facilities on sites capable of being reached by foot, public transport or bicycle. The urban fringe provides scope for both formal and informal facilities close to urban populations and opportunities to improve access to the countryside.

281. The public's enjoyment of the New Forest must not be at the expense of the Forest's landscape and wildlife. The aim of the strategy for the New Forest (paragraphs 110-115) is to promote the enjoyment of the New Forest in a way which is not detrimental to its landscape, wildlife and traditional character. Future tourist and recreational development and management of the New Forest and the Solent must be the subject of detailed studies to integrate recreation, tourism and economic initiatives with landscape and conservation objectives.

282. The footpath and bridleway network and other means of access to the countryside are extensive, but under-utilised in many areas. Opportunities should be taken where they arise to extend and improve access. Particular regard should be had to protecting the convenience and amenity of rights-of-way in the design of any new development.

283. Golf is one of the largest users of land for countryside recreation. Golf courses are acceptable in principle in the countryside, and may be a particularly good use for urban fringe sites and areas of poor environment where enhancement of the landscape would be beneficial. However, they can cause a significant impact on the countryside, particularly on the diversity and character of the landscape and on nature conservation, and may lead to urbanisation. Special care must be taken over the location, siting, design and management of golf courses so as to minimise their impact, and they may not be appropriate in some areas of particular sensitivity.

R4 The development of major sporting, leisure and tourist facilities other than those provided for by Policy R6 may, exceptionally, be permitted on sites adjacent to existing or proposed built-up areas if:

(i) there is no suitable alternative site within the town centre or, where a town centre site is not available, on an edge-of-centre site or elsewhere in the built-up area or allocated in a local plan;

(ii) there would be significant benefit to the community;

(iii) it is well related to public transport and the strategic road network;

(iv) it is not proposed on a site allocated for another major land use, particularly housing, employment, retailing and open space;

(v) any associated development does not conflict with other policies of this Plan; and

provided that the siting and design has particular regard to the built environment, local amenity, archaeology, landscape and nature conservation considerations.

284. This policy enables the development of major facilities such as sports stadia and arenas, cultural centres, multiplex cinemas and bowling alleys. Such facilities can make a significant contribution to the quality of life, economic growth and urban regeneration. Their development will be encouraged on suitable town centre sites or, if none are available, elsewhere in built-up areas, especially where they contribute to the vitality of town centres and are well related to public transport networks. They may also be located in the urban fringe in exceptional circumstances. In all cases, transport and environmental concerns will be of particular importance. Any associated `enabling' development (such as retailing, housing or business uses) must not conflict with other policies of this Plan.

R5 Informal countryside recreation and sport will be promoted as the primary use of the Blackwater Valley.

· A riverside public footpath will be secured along the full length of the valley, as part of a strategic route linking the Thames Path to the North Downs Way.

· Following the cessation of minerals and waste development, sites will be restored to uses which reflect the open and undeveloped nature of the valley, i.e. recreation, agriculture or forestry.

285. The Blackwater Valley straddles the boundary of Hampshire, the former county of Berkshire and Surrey, from Eversley in the north to the Hog's Back in the south. At its northern and southern ends the valley is bordered by pleasant countryside, but most of it lies between urban areas including Sandhurst, Camberley, Frimley, Hawley, Farnborough, Aldershot, and Ash. About 300,000 people live within two kilometres of the river. The strategic and local planning authorities joined together with the Countryside Commission and the Sports Council in 1979, to set about restoring and opening up the valley because, despite exhibiting many of the worst characteristics of the `urban fringe', it still possessed areas of considerable charm and offered a number of opportunities for recreation.

286. The Blackwater Valley Recreation and Countryside Management Service (reporting to a Joint Committee of the local authorities) is working to preserve the valley as an open gap between the existing built-up areas, and to promote informal countryside recreation and sport as the primary uses in the valley (see Policy G1). The Blackwater Valley Strategy 1993-98, which has been adopted by the Joint Committee, provides the framework and impetus for the development of recreational uses. Because of the importance of the valley as a strategic gap, any recreational buildings and car parks should be small in scale and unobtrusive.

R6 Development of a `holiday village' will be permitted in the countryside either in south-east or north-east Hampshire, where the local planning authority is satisfied that a countryside location which does not harm habitats and features of special nature conservation importance is justified and that the development:

(i) achieves major benefits to the County's economy;

(ii) is well related to the strategic road and passenger rail networks;

(iii) does not have an unacceptable impact on landscape, wildlife, the built environment or local amenity, including existing recreational uses;

(iv) is not located on the undeveloped coast or in a strategic gap;

(v) promotes a high quality of landscape and buildings; and

(vi) includes appropriate provision for mitigation of any adverse impacts on the locality.

287. The `new generation' of holiday villages is characterised by low density, self-contained holiday accommodation, with high quality buildings and landscape. Such villages provide for short-break activity holidays throughout the year in a rural, wooded environment. This major form of tourist development could bring considerable economic and other benefits to Hampshire.

288. The indications are that only one facility of this type would be required in this part of southern England. A holiday village may be permitted in the countryside of either north-east or south-east Hampshire, provided it is environmentally acceptable. These are broad areas of search within which a holiday village might be permitted if all the other requirements of the policy are met. The reasons that these areas of search have been chosen include those of minimising the impact on the New Forest and excluding development on the undeveloped coast, within strategic gaps or Areas of Outstanding Natural Beauty.

289. Any proposed holiday village must avoid any direct or indirect impact on habitats and features of special nature conservation importance. It must also avoid any unacceptable impact on any features of archaeological interest, mineral and water resources, the best and most versatile agricultural land or the character of the landscape and mitigate any effects on local amenity, such as excess traffic along local roads or a reduction in public access for countryside recreation.

R7 In built-up areas developments which improve hotel, conference facilities and other serviced accommodation will be supported provided they are consistent with the environment and transport policies of this Plan.

R8 Except on the coast, within strategic gaps, the New Forest or within other areas of acknowledged importance, proposals for development for additional camping and touring caravan sites will be supported provided they:

(i) can be unobtrusively sited and landscaped in order to minimise their impact on the countryside; and

(ii) have an adequate means of vehicular access and are well related to the Strategic Road Network.

290. No specific proposals are made for new facilities in any particular location. The policies are intended to provide the flexibility to respond to changing demands and to take advantage, where appropriate, of private sector initiatives. In considering the relative merits of a particular proposal, the local planning authorities will take account of the desirability of providing new recreation and tourism facilities in locations which will help ease visitor pressure on particularly sensitive areas such as the New Forest and along the coast. Opportunities should be taken to encourage the relocation of existing facilities from sensitive to more robust locations.