10.1 Open space is a diverse resource, which provides a wide variety of opportunities for leisure, sport and recreation activities, whether formal, or informal, active or passive. It provides social, environmental and economic benefits, creating an attractive place to live, which promotes social inclusion and as a consequence community cohesion and development. The following types of Open Space have been identified:
1. Parks and gardens, including urban parks, formal
gardens and country parks.
2. Natural and semi natural green spaces, including woodland,
scrub, grassland, wetlands, areas of open and running water, nature reserves
and wasteland.
3. Green corridors, including canal towpaths, riverbanks,
cycleways, rights of way and disused railway lines.
4. Outdoor sports facilities, including school playing
fields, other playing pitches, athletic tracks, tennis courts, bowling
greens and golf courses etc.
5. Amenity green space, including informal recreational
spaces, and green spaces in and around housing and village greens.
6. Provision for children and young people, including
equipped play areas, ball courts, skateboard areas and teenage shelters.
7. Allotments and community gardens, including urban
farms.
8. Cemeteries and churchyards.
9. Civic spaces, including market and civic squares/places.
10. Incidental green spaces, including verges.
10.2 While it is anticipated that open space provision will primarily be aimed at meeting the needs of the local community it should be recognised that it can, with other facilities and services, enhance the attractiveness of the area and thereby support the important tourism and day visitor industry.
10.3 Open space therefore needs to be safeguarded and enhanced as a valuable resource and increased wherever possible and appropriate. The Borough Council can make a substantial contribution to ensuring this is achieved, through its role as a major provider of open space, in partnership working with the local community and, insofar as this Plan is concerned, through the operation of its land use planning function.
10.4 An Open Space Strategy has been prepared to guide the corporate actions of the Council and others and in particular inform the preparation of this Plan. The Open Space Strategy has been written using data compiled through a detailed open space audit undertaken in 2003. The PPG17 audit was carried out in accordance with revised Government guidance, which requires Local Authorities to audit their open space, sports and recreation facilities giving regard to their quality, quantity and accessibility. The audit found that there is a deficiency of open space throughout the urban area, and whilst there are no significant deficiencies of open space overall in the rural areas there are inconsistencies in provision at the local level.
Explanation
10.5 The open space standards set out in policy LR1 are the result of the open space audit and feature in the Open Space Strategy as a minimum figure that the Council wishes to achieve. The local provision standards have been set using the methodology set out in PPG17, using both qualitative and quantitative information sources both from the audit and accompanying consultation responses. The rural targets differ to ensure close proximity to all open space types in areas with low population densities. Amenity greenspace targets are lower because people living in rural areas derive similar benefits through increased contact with the open countryside. It was not possible to make a reasoned judgement in setting provision standards for civic spaces within the Borough due to the limited amount of civic space provision but the analysis suggests a local need for further provision.
10.6 This Policy is intended to facilitate development, which contributes to meeting current deficiencies in the provision of open space, or those, which may emerge over the period of the Plan, including a better distribution of such facilities. In identifying and addressing deficiencies regard will be had to the standards set out in the Policy. However, it should be noted that these are minimum figures and the distribution of population and open space and the practicalities of provision, may result in a need for a higher ‘pro rata’ scale of provision, where for example a village, or distinct neighbourhood, has a population of less than 1000 and provision can be justified and reasonably achieved.
10.7 Many categories of open space are most appropriately located within the urban area, or the boundaries of other settlements, where they are likely to be more accessible for people and have less impact on the countryside. However, this can depend on the type of open space and the community it is intended to serve. Open space of a land extensive nature may need to be located in the countryside, although it should be as accessible as possible, while open space of nature conservation value will usually be located where the interest occurs.
10.8 Green corridors, which include rights of way, can have a particular value in linking urban and rural areas and providing access to the countryside for recreational and leisure purposes. The creation and enhancement of such linkages should generally be encouraged, by for example converting disused railway lines to footpaths and cycleways, with appropriate ancillary facilities.
10.9 In considering the provision of open space the creation of a network of linked publicly accessible green spaces should be pursued wherever possible and appropriate. The creation of such a network, possibly utilising green corridors, Such provision can enhance accessibility and the quality of the environment, particularly in urban areas. Account also needs to be taken of the potential dual role and joint use of open space, which may for example comprise a recreational resource and a site of importance for nature conservation. In this regard the use of school playing pitches to also meet wider community needs may be particularly valuable in meeting open space deficiencies.
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Land comprising approximately 100 hectares south of Ashlawn Road, Rugby, as shown on the Proposals Map, is allocated for the provision of country park. Principal cross references: LR1, LR2, LR4, LR6 – LR11 |
Explanation
10.10 Through the open space audit, it was recommended that the Council investigate the opportunities of developing a park within the southern parts of the urban area to meet local needs and expectations and address the deficiency in these areas. The Council has allocated land, through policy LR2, to the south of the urban area for a country park. The land forms approximately 100 hectares on the edge of the urban area on the boundary with Daventry district.
10.11 The area immediately south of Rugby between Dunchurch and Kilsby Lane represents great potential for the development of a country park. It is thought that the country park could include a combination of woodland, habitat educational features, and this allocation, when implemented, will help to achieve the targets as set out in Policy LR1 and will also create an opportunity to improve sustainable transport networks and to enhance biodiversity within the Borough.
Policy LR3 – Quality and accessibility of open space Planning permission will only be granted for the provision of open space, which would comprise a high quality and accessible facility, and which ensures that open space: 1. Is appropriately maintained, if necessary through the
use of developer contributions Planning permission will be granted for development, which enhances the quality and accessibility of existing open space, provided it accords with Policy LR4. Principal cross references: H11, H12, LR1, LR4-LR8 |
Explanation
10.12 It is important to ensure new open space is of high quality with good accessibility and that improvements are undertaken where needed to existing sites, particularly those that are not well used, to encourage greater and sustainable usage. This could, for example, include the provision of:
• buildings to store maintenance equipment,
• fencing for security and screening,
• high quality design and landscaping of facilities,
• measures to retain and enhance sites of value for nature conservation
and the cultural heritage,
• toilets, changing rooms, shelters and parking facilities,
• specific facilities for sport and recreation eg. pitches laid
out to appropriate standards and skate board areas,
• convenient access to, from and within the facility, and
• facilities to enhance access for pedestrians, cyclists, and public
transport and
• Infrastructure, including drainage.
10.13 It will be particularly important in formulating and considering proposals for development, entailing the provision of open space and/or housing, to ensure as many dwellings as possible have safe and convenient access to open space, providing it does not detract from the environment and amenity. The Borough Council will seek to locate housing wherever practically possible within 1000m of the various types of Open Space referred to in paragraph 10.1, having regard to Appendix 4.
Policy LR4 – Safeguarding open space Planning permission for the development of Open Space shown on the Proposals Map for non-sport and recreation uses will be granted provided that: 1. The open space is no longer needed or of value for its
current or other open space use now and in the foreseeable future;
or Principal cross references: LR1, LR2, LR3, LR5-LR8 |
Explanation
10.14 The safeguarding of existing and proposed open space is important, in order to ensure that appropriate facilities are available to meet the needs of the whole area. Therefore, development that involves the loss or reduction of such facilities will only be acceptable where it is clearly demonstrated that the existing use, or any potential open space use, is not required, or the proposed development would result in enhanced sport and recreational facilities sufficient to outweigh such loss. In determining proposals the Council will have regard to the findings of the Open Space Audit and Open Space Strategy, together with any additional or updated information relating to the adequacy of provision in the area. The minimum standards of open space provision set out in policy LR1 will need to be achieved or exceeded.
10.15 There is an overall deficiency of open space within the urban area, but provision is not distributed evenly. Some areas are fairly well provided for, while others are significantly deficient. Provision throughout the rural areas is also inconsistent. Therefore, proposals that would result in the loss of any open space will need to assess the continuing availability of open space facilities serving the local area, together with the findings of the Open Space Audit, updated as appropriate.
10.16 Open spaces that are poorly managed and maintained and which consequently become unattractive and underused, clearly do not serve the public interest. Poor use of a facility, however, should not be taken as necessarily indicating an absence of need in the area. Consideration will be given to the quality and accessibility of existing facilities and how any under use and degradation may be remedied by improved management so as to increase the levels of use and therefore the value of the open space to the local community in accordance with PPG17.
Policy LR5– Provision of open space as part of new development Planning permission will only be granted for development, which makes appropriate provision for open space, within the development and/or off site, which is necessary for it to proceed, in locations that are readily accessible by a choice of transport, and in accordance with other policies of this Plan. Principal cross references: H11, H12, LR2, LR4, LR6-LR8, A1, A2 |
Explanation
10.17 Government Policy accepts that new development should cater for the needs it creates, or contribute towards the meeting of this elsewhere. When new development results in increased demand for facilities, developers should meet the cost of provision. (Circular 1/97 (Planning Obligations). It is the Council’s intention to achieve the minimum standards for provision, as set out in policy LR1, and in order to do this all new development will need to make provision for the end users. When deciding on a type of open space or the level of contribution to be made, regard will be had to the Open Space Audit and Open Space Strategy.
10.18 The most obvious form of development which creates a demand for
facilities is residential development, however, other forms, including
industry, commerce and retailing, can also have an impact on existing
provision and there will be a need to make appropriate provision for the
occupiers/users of these developments. Such open space can be of:
• a functional nature e.g. children’s play areas, playing
fields and allotments, (most probably provided by residential development)
• benefit for amenity e.g. amenity green space,
• importance for nature conservation, e.g. green corridors, or the
cultural heritage e.g. archaeological sites.
10.19 It is possible that development may need to make provision for open space, both within and beyond the site and that off site provision may comprise contributions in kind, or of a financial nature, together with other developments, in order to provide a facility. Given that small sites have limited potential for making on site provision, off site contributions are more likely to arise. It is important to ensure that any open space provision is of sufficient size and suitably configured, to be of recreational value, as well as aesthetic value, wherever appropriate
Policy LR6 – indoor and outdoor leisure, sport and recreation developments to meet the needs of a local community Planning permission for indoor and outdoor leisure, sport and recreation development, including extensions to existing facilities, which are necessary to meet the needs of a local community will be granted: 1. Within the Urban Area of Rugby, Dunchurch, Long Lawford
and the Main Rural Settlements as shown on the Proposals Map, or 1. It is well related to existing residential areas and
conveniently and safely accessible, Principal cross references: ED7-ED9, ED11, ED12, TCR7, LR1-LR5, LR8-LR10 |
Explanation
10.20 This Policy is concerned with the provision of indoor and outdoor facilities to meet the needs of local communities. It is not possible to precisely define what comprises a local community, as it is in many respects a fluid concept. Nevertheless for the purposes of this Plan it is considered that the extent of local communities in spatial terms can be considered to approximate to those four urban and eight rural sub-areas identified by the ‘Open Space Audit’. The sub-areas are shown on the map in Appendix 4. The Open Space Audit and Open Space Strategy will be referred to when considering applications against the criteria of this Policy.
10.21 Proposals for leisure, sport and recreation developments, including extensions to existing facilities, to meet the needs of a local community are best located within or close to the area they are intended to serve, where they can be safely and conveniently accessed. This in many cases will not be within the Town Centre of Rugby. Examples of such developments are indoor and outdoor pitches, courts or greens, areas for informal recreation, small swimming pools, community centres, entertainment facilities and a variety of catering establishments etc. They can also often be provided as part of a combined facility and provide ancillary accommodation. Such development will be acceptable provided they are primarily to serve the needs of the local population and are of a scale appropriate for that purpose, to ensure that they do not attract large numbers of people from the wider area or threaten the viability of other facilities. They should normally be located within the urban area of Rugby, or the boundary of settlements, in order to safeguard the appearance and character of the countryside and ensure they are accessible for people. The Main Rural Settlements are likely to be the preferable rural locations for such facilities, where they could meet the needs arising within nearby smaller villages. However, there may be circumstances where facilities could not be located in a settlement. In such circumstances a countryside location may be acceptable.
Policy LR7 – Indoor and outdoor leisure, sport and recreation developments of more than local significance Planning permission for indoor and outdoor leisure, sport and recreation developments, including extensions to existing facilities, which meet the needs of more than the local community will be granted within Rugby Town Centre, as defined on the Proposals Map. Outside the Town Centre such development will only be permitted where there is a need for the development, which cannot be met within the Town Centre and the proposal: 1. Is in an edge of Town Centre location, or Provided that: 1. It would not be detrimental to the vitality and viability
of the Town Centre of Rugby, taking into account the cumulative
impacts of development. For development outside the Urban Area of Rugby regard will be had to the benefits of previously developed sites in accessible locations, which are well related to the town, Dunchurch, Long Lawford, a Main Rural Settlement, and/or existing leisure, sport and recreation developments of more than local significance. Principal cross references: ED7-ED9, ED11, ED12, TCR3, LR1-LR5, LR10, LR11 |
Explanation
10.22 This policy is concerned with a wide range of indoor and outdoor leisure, sport and recreation developments, including extensions to existing facilities, which can be considered to be of more than local significance, in that they can also meet the needs of the wider community, eg. the town of Rugby as a whole and much of the surrounding rural area. They include such indoor facilities as cinemas, theatres, night clubs, bowling alleys, skating rinks, health/fitness clubs, entertainment and amusements centres, restaurants and other catering establishments. While outdoor facilities may for example include, sport stadia, playing pitches or surfaces, areas for water based sport and areas for informal recreation. Day visitors and tourists coming to the area can also use these facilities and as such they may be vital to the tourist and day visitor industry, although this is not their prime purpose. Facilities and attractions for day visitors and tourists, including overnight accommodation, are addressed by Policies LR10 and LR11.
10.23 The Town Centre is a sustainable and appropriate focus for the provision of a wide range of such facilities and services. Locating such developments in the Centre, especially in unused floorspace on the upper floors of premises, can add to its diversity and as a consequence its vitality and viability, for the benefit of both the local community and visitors, especially during the evening and at night. Furthermore the Centre can be accessed conveniently and safely by a choice of transport eg by foot, cycle or public transport, as well as the car, while access for persons with disabilities, or whose mobility is otherwise constrained, is also likely to be more satisfactorily achieved. Leisure, sport and recreation developments, which have the potential to generate a large number of trips, can therefore be beneficially located in such an accessible location.
10.24 It is recognised that it may not be possible or appropriate to locate all indoor leisure, sport and recreation developments of more than local significance within the Town Centre. Where there is a need for a development, which cannot be accommodated in the Centre, then a sequential approach for the location of the development should be followed. Such an approach may result in the identification of an acceptable site in an edge of Centre, or even elsewhere within the town, if there is no edge of Centre location available and suitable for the purpose.
10.25 Extensions to existing facilities may be needed to meet the operational requirements of the use. It is likely that such an extension could only be accommodated where the existing use is located. This may result in permission being granted for development outside the town of Rugby, in a village, or the countryside.
10.26 Exceptionally it may be appropriate and even necessary to accommodate other development in village locations and the countryside. This is particularly the case where there is a need for development, including the diversification of farming, which could only be satisfied in such a location, or to maintain a building of historic and/or architectural importance through its conversion.
10.27 Any development in village or countryside locations should not adversely affect amenity and the environment, nor comprise unsustainable development through an unacceptable reliance on the use of the car for access. Such developments should therefore be well related to the town of Rugby and accessible by a choice of transport.
Policy LR8 – Retention of existing leisure, sport or recreation facilities Planning permission will not be granted for development, which would result in the loss of any part of an existing leisure, sport or recreation facility, which is not covered by Policy LR4, unless: 1. A needs assessment clearly demonstrates that the facility is surplus to requirements in terms of its existing and potential value to the local community and it has the support of the local community, sports clubs and users; and Any receipts gained from the disposal of the facilities are reinvested in line with the needs assessment. OR 2. A satisfactory exchange of land can be secured which would improve the value of the facility to the local community and is supported by the results of community consultation. Principal cross references: TCR3, TCR8, LR1-LR7, LR10 |
Explanation
10.28 Many leisure, sport or recreation facilities provide an important service for local residents and visitors to the area. Loss of these facilities could adversely affect Rugby Town Centre, or local communities, particularly if the continued provision of other local services is threatened as a consequence.
10.29 Where an application for development is submitted, which would affect the provision of an existing facility it will be important to take account of the views of all relevant organisations, in addition to those of the local community, to help gauge the value of the facility and its potential.
10.30 It will be important to consider proposals, which would result in the loss of open space facilities, against the guidance provided by Policy LR4.
10.31 Where the current financial viability of the facility is a reason for the change, the applicant will be required to provide an independent report which will cover the investigation of alternative sources of funding and discussions with Rugby Borough Council’s Leisure Department to demonstrate that this is the case. The length of time any such facility has been vacant, or not trading could be material. However, the current viability of the facility may not be considered sufficient reason to allow its development for other purposes, where for example it has the potential to become viable. In this regard it will be necessary for it to be demonstrated that all options to retain the facility in use for leisure, sport or recreation purposes have been explored and are unlikely to be successful. Such demonstration will include proof of appropriate marketing of the site over a reasonable period at a price that reflects its current use, and that no reasonable offer has been refused. Evidence that local clubs/community groups have been offered the chance to acquire the facilities will also need to be submitted.
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Proposals for the development of, or an extension to, an equestrian establishment will be considered against the following criteria: 1. Whether there would be a significant adverse effect
upon the environmental quality or character of the surrounding area;
and Principal cross references: ED8, ED9, ED11, ED12, LR6-LR8, LR10, LR11 |
Explanation
10.32 This policy applies to all equestrian activities, including riding schools, stud farms, livery, training, breeding and any development required in association with cross country, competition or the hire of horses. It aims to set out a positive approach towards proposals for horse-based development that maintains environmental quality and the character of the surrounding area.
10.33 Horse riding and equestrian activities are popular forms of recreation in the countryside and they can help diversify rural economies. There are many opportunities for equestrian activities to utilise redundant buildings and to aid farm diversification. Where the re-use of a building is possible this should be fully explored before pursuing a new build.
10.34 Where a new building is proposed, it should be situated where any visual effect can be mitigated and minimised, preferably in close proximity to existing buildings. The form, structure and materials of buildings for equestrian activities should reflect their use. Where possible, the use of semi-permanent structures should be utilised before the construction of irreversible development.
10.35 It is inevitable that there will be some minor problems arising from equestrian activities, which will impact on people in the surrounding area. The Council will have regard to the likely impact of equestrian activities on neighbouring properties, especially in relation to noise and smell. There may, however, be circumstances where the provision of facilities for equestrian activities would lead to an unacceptable impact on the character of the local area, such as on the road network.
Policy LR10 – Tourism and visitor facilities and attractions Proposals for the development of tourist facilities, including extensions to existing facilities, will be permitted within Rugby Town Centre, as defined on the Proposals Map. Where there is a need for the development, which cannot be met from within the Centre the proposal must meet the following criteria: 1. It is in an edge of Town Centre location, or Provided that: 1. It would not be detrimental to the vitality and viability
of the Town Centre, taking into account the cumulative impacts of
development. For development outside the Urban Area regard will be had to the benefits of accessible locations, which are well related to the town, Dunchurch, Long Lawford, a main rural settlement, an existing major visitor attraction and/or public transport services. Principal cross references: ED8, ED9, ED11, ED12, TCR3, LR1-LR9 |
Explanation
10.36 As with much of the country the tourist and day visitor industry, including business tourism is of major significance for the local economy and developments associated with the industry can, if properly controlled, serve to enhance the environment and quality of life for the local community. Such developments can include:
1. Overnight accommodation,
• Hotels,
• Guest house, bed and breakfast, and farm accommodation
• Hostels
• Camping barns
• Caravan and camping sites,
• Self catering/holiday lets (which satisfy the policies for housing
development in rural locations)
2. Conference facilities and
3. Visitor attractions
• Theme parks
• Country parks
• Museums
• Craft centres
• Nature reserves
• Historic sites etc
10.37 Many facilities, which serve the local community are also an attraction for visitors to the area eg shops, catering establishments, entertainment facilities and parks. The provision of these is addressed by other policies of the Plan.
10.38 It is important to ensure that development is consistent with the principles of sustainability. The town of Rugby, particularly the Town Centre, is the most sustainable location to meet the needs of many visitors, given the facilities and attractions it already possesses and its good accessibility, to provide a choice of transport for the numerous trips generated. Development to meet the needs of visitors can also add to the diversity of the town, particularly the Centre and as a consequence enhance its vitality and viability, especially during the evening and at night. Conversely care needs to be exercised to ensure an undue concentration of visitor facilities does not detract from the overall attractiveness of the Centre.10.39 It may exceptionally be acceptable to accommodate development in villages, or the countryside, where there is a need for the development and it is appropriate to such a location. This could include development, which is well related to the Urban Area, the more substantial villages and/or an existing major visitor attraction and enjoys, or has the potential to enjoy, good accessibility. In addition it may also include development which diversifies farming, to enhance the vitality and viability of rural communities. Caravan and camping facilities are an example of a type of facility, likely to be particularly appropriate to a rural location, as are camping barns the provision of farm accommodation and country parks. It may also be appropriate to allow other development, which is ancillary to an existing use and necessary for its operational requirements. In addition the conversion of a building for use as a visitor attraction or facility could also be acceptable in a rural location, particularly if it is of historic and/or architectural importance and the use provides a means of maintaining the structure.
10.40 In all cases it will be important to ensure the development does not have a detrimental impact on the environment, safety and amenity. For example caravan and camping sites can seriously disrupt visual and residential amenity, if poorly designed and without the necessary safeguards.
LR11 – Conversion of buildings to tourist facilities Planning permission will be granted for the conversion of a building to provide tourist facilities, provided the following criteria are met; 1. The building is suitably constructed and worthy of retention
by virtue of its historic or architectural interest or its contribution
to the character of the area; Principal cross references: H15, H18, H22, ED8, ED9, ED11, ED12, LR1-LR10 |
Explanation
10.41 It is important to limit the impact of development and utilise existing resources. Consequently, where possible and appropriate the potential for the reuse of existing buildings should be realised in preference to new build. The buildings should be substantial and good quality buildings, which are capable of conversion with little change to their character, appearance and setting. The building should be worthy of retention through historic or architectural interest or through its contribution to the character of the area and should require little in the way of alteration, extension or rebuild for is conversion.
10.42 In the open countryside and local needs settlements, conversions to employment generating uses will be preferred. It will be necessary for the applicant to demonstrate that the building cannot be developed for an employment generating use before consideration will be given to holiday accommodation. A building may be physically unsuitable for employment use because of its particular character or location, or there may be no demand for such employment opportunities in the locality. If lack of demand is put forward as the reason that the building cannot be developed for an employment generating use the Council will expect proof that the property has been widely advertised for a period of at least twelve months at a price which reflects its value as an employment enterprise and that no reasonable offer has been refused. Such evidence will be strengthened where it has been substantiated by a professional body and/or a firm of Chartered Surveyors. Where evidence is submitted in support of an application, the Council may seek the views of bodies such as the Countryside Agency, in order to gauge whether the building has any potential as a viable employment generating enterprise. Inadequate return on investment will not by itself be sufficient justification to demonstrate that the building cannot be used for employment.
10.43 Self-catering accommodation provides the majority of tourist accommodation in the Borough. This accommodation may well be permitted where residential use would not be appropriate and conditions will be necessary to avoid setting a dangerous precedent for allowing residential building in unsustainable locations. Occupancy controls will normally involve restricting occupation by one person or group of persons to a maximum continuous period of six weeks in any one year. In addition, the use of such premises for habitation shall be limited to a maximum of 11 months in any one year. To facilitate the enforcement of such controls, applicants will be required to make available to the Local Planning Authority, upon reasonable request, the register of occupiers of the premises to which the permission relates.