Archived decisions

Contact: Sue Clark, ext 5890

1. Summary

1.1 The following decision is sought:

That the South East England Regional Assembly be informed that:

(i) the County Council welcomes the broad intentions of the consultation draft "Destination South East: A Regional Planning Strategy for Tourism"; and

(ii) the County Council's views are as set out in Section 9 of this report.

2. Reason

2.1 The South East England Regional Assembly (SEERA) has published a consultation draft "Destination South East: A Regional Planning Strategy for Tourism". SEERA will decide how far to modify the strategy prior to the submission of its proposals to the Government Office for the South East in spring 2003, for a formal amendment to Regional Planning Guidance.

3. Other Options Considered and Rejected

3.1 Taking no action.

4. Conflicts of Interest Declared by the Decision Maker or a Member or Officer consulted - None.

5. Dispensation granted by the Standards Committee - Not applicable.

6. Reason(s) for the Matter being dealt with if Urgent - Not applicable.

Approved by: Date:

Councillor K B Estlin

7. Background

7.1 The Government has asked the South East England Regional Assembly (SEERA) to bring forward a number of reviews of particular aspects of the existing Regional Planning Guidance. One of these is tourism and related sport and recreation. On 24 October 2002 SEERA published "Destination South East: A Regional Planning Strategy for Tourism" for public consultation. A synopsis will be available at the meeting, and the proposed policies are attached as an appendix. This report sets out the key strategic issues for Hampshire outlined in the consultation draft and recommends a response.

7.2 The policy context for Regional Planning Strategy for Tourism is complex and wide-ranging. It comprises national, regional and local policies for tourism, sport, recreation, economic development, land-use planning, arts and culture, urban renaissance and rural development.

7.3 Tourism and related industries make a major contribution to the economy of the South East. In recent decades spending on tourism and employment in the sector has grown considerably. However, the nature of the industry has changed significantly. A decline in long-stay holidays has been more than compensated for by the rise in business trips, visits to friends and relatives and short breaks. There has also been a growth in day visits to attractions and the countryside. Tourism and related industries are forecast to be high growth sectors in the region over the next 10 to 20 years, with continued growth in day trips, short breaks, business trips and the number of overseas visitors.

8. Key Matters from the Draft Strategy

8.1 The primary purpose of the Regional Planning Strategy for Tourism is to provide more regionally-specific guidance on tourism development, including links with sport and recreation facilities.

8.2 The policy framework is set out under four themes. These are:

(i) sub-regional priorities;

(ii) coastal, rural and urban priorities;

(iii) planning for tourism-related development; and

(iv) visitor and resource management.

8.3 The strategy deals with sub-regional and spatial priorities by identifying a number of priority policy areas for tourism. These are the same priority areas identified in Regional Planning Guidance (RPG9) and comprise the Western Policy Area, the Thames Gateway and the Priority Areas for Economic Regeneration (PAERs). PAERs are substantial areas of deprivation which need tailored regeneration strategies to address their problems and maximise their contribution to the social and economic wellbeing of the region. One of the PAERs identified is South Hampshire, Southampton and Portsmouth.

8.4 For rural areas the Strategy contains policies to encourage farm-based proposals for tourism and associated sport and recreation uses in appropriate locations. In urban areas the tourism potential of recreational, cultural, educational and arts-related facilities are encouraged.

8.5 The Strategy proposes that opportunities be sought to diversify the economic base of the Isle of Wight and the region's coastal resorts, many of which are within the PAERs. It is also proposed that attractions and facilities in coastal resorts are consolidated and upgraded in ways which reduce the seasonal nature of the industry and support urban regeneration.

8.6 In planning for tourism-related developments it is proposed that opportunities are sought to protect, upgrade and develop new regionally significant sporting facilities. The strategy states that, whilst encouraging the enhancement and upgrading of existing attractions, new large-scale tourist attractions should only be promoted in parts of the Thames Gateway and the PAERs. It is proposed that large hotels should be treated as town centre type uses, and that affordable staff housing should be provided in areas of housing pressure.

8.7 The section on visitor and resource management suggests the development of area-wide visitor management plans which would include proposals for the management of tourist-related travel.

9. Director of Environment's Comments

9.1 "Destination South East" is a well-produced document broadly consistent with the County Council's land-use and transport strategies. The broad intentions and the vision of the draft Strategy are welcomed. In particular, the positive approach to tourism and related industries, whilst seeking to manage the pressures and problems which they can create, is supported.

9.2 SEERA mentions deficiencies in the data relevant to the tourism sector. It is agreed that further work needs to be undertaken to remedy the fundamental data problem to avoid an inaccurate picture of tourist activity across the region. Some of the maps in "Destination South East" give a misleading impression and should be deleted or replaced with more useful maps. For example, Map 1 is titled "Areas with High Levels of Tourism Related Economic Activity" but neither Winchester nor Portsmouth is identified in the categories shown. It should be acknowledged that tourism is important in most parts of Hampshire and the South East.

9.3 SEERA should reconsider the Priority Areas for Tourism Development identified in Policy 1. Those proposed are based solely on RPG9 and are not necessarily the areas important for tourism. The Thames Gateway and the PAERs, which are all in coastal locations, are considered appropriate priority areas for sub-regional guidance, as there is scope for growth in tourism in the Thames Gateway and it is appropriate to consolidate and upgrade tourism facilities in the PAERs to support urban regeneration. However, the Western Policy Area, which covers a large area to the south and west of London and includes north- east Hampshire (Rushmoor, Fleet, Basingstoke and surrounding areas), does not form a suitable sub-region for the planning of tourism, and should be deleted from the priority areas for tourism development and management. This is because the Western Policy Area does not match the areas with existing high levels of tourist activity.

9.4 One noticeable omission from the priority areas for tourism development and management are the proposed National Parks. In the New Forest there is a need to manage the pressures associated with the existing high levels of tourism to protect the special character of the New Forest. The `enhanced' status of the proposed National Parks is likely to increase pressure to travel to these areas, and the strategy ought to acknowledge the need to address these travel requirements sustainably. It is recommended that the strategy includes a policy for the New Forest and South Downs which indicates how the pressures associated with increased levels of tourism following National Park designation will be dealt with.

9.5 Policy 3 concerns tourism-related farm-based diversification and development. However, rural tourism is much more than farm-based diversification and the policy should be broadened to include other areas of rural tourism.

9.6 Policy 7 relates to regionally-significant tourism. It states that new regionally-significant attractions should only be encouraged in the Thames Gateway and the PAERs, where they form an essential part of the wider regeneration strategy and are easily accessible by public transport. At present many visitor attractions are struggling to survive and it is considered that there should be no encouragement for tourist attractions of regional significance in the PAERs. This is because new tourist attractions of regional significance (those generating over 250,000 visitors per annum) are likely to take customers away from existing tourist attractions and may result in a significant number of them going out of business.

9.7 Policy 8 concerns tourist accommodation. It proposes that development plans should consider large hotels as town centre uses, which should accord with the sequential approach as set out in PPG6. This approach is welcomed, as large hotels, often with ancillary facilities, can make a significant contribution to the vitality and viability of town centres. A reference to conference facilities should be added to this part of the policy.

9.8 Throughout much of Hampshire and the South East it is difficult for lower paid workers to find affordable housing, and the need to provide staff accommodation was one of the issues highlighted in the Hotel Sector Shortage Study for Hampshire prepared for the County Council by Tourism Solutions in 2001. Therefore the inclusion of this as a case study in "Destination South East", and the policy which encourages the provision of staff accommodation in association with hotels and unserviced accommodation in areas of housing pressure, is welcomed.

9.9 This policy should also permit some new unserviced accommodation as part of farm diversification in appropriate locations within rural areas (eg re-use of existing buildings as camping barns).

9.10 Policy 10 concerns countryside and coastal management. It states that management initiatives should be developed to ensure that the natural resources and landscapes upon which rural tourism is largely dependent are conserved and enhanced. The policy and text should be strengthened to ensure that the appropriate balance between attracting and providing for visitors and the conservation of the natural and built environment is a key element of planning policies for tourism.

9.11 Many tourists arrive at ports and airports in the region. The strategy could be improved if it also considered how these gateways into the UK could be upgraded and improved.

9.12 The Regional Transport Strategy identifies a number of regional transport gateways, hubs and interchanges, but these are not referred to in the Strategy. The development of these interchanges should be linked more closely to the Strategy, as this regional framework will be a key element in how the transport strategy will be delivered. The transport network of `hubs and spokes' should be highlighted as an essential element in maximising tourist activity, whilst also meeting economic and environmental needs.

9.13 The encouragement for major tourist attractions to develop travel plans for travel to their sites is welcomed. It would be useful if there was a requirement for travel plans for major events (eg Farnborough Air Show) as well. Currently there is no requirement for major event planners to liaise with local authorities as to how visitors will access their sites and any arrangements tend to rely on goodwill. The development of stronger guidance and legislation is needed.

9.14 The Strategy highlights the importance of monitoring although it also identifies the lack of data currently available. Nevertheless, it should include specific, quantifiable targets for key areas to assist in monitoring and measuring the success of the Strategy.

9.15 Although transport is highlighted as an essential element of the Strategy, the Vision itself makes no reference to transport and could therefore usefully be strengthened.

7681/SC