Chapter 13 - Recreation & Open Space

13.1 Open space and recreation facilities are important to the quality of life of Denbighshire residents. Recreation facilities can provide opportunities for active participation in formal sports and other leisure activities which can be important for general health and fitness. Many people gain pleasure from quiet forms of recreation such as country parks and local nature reserves. Open space at the most basic level can provide visual relief from the built environment or at a larger scale provide recreation opportunities. The County is also fortunate in possessing a coast and countryside that is easily accessible for various forms of recreation.

13.2 Strategic Policy in Part 1 seeks that an adequate provision of a range of recreation facilities and open space is provided, maintained and enhanced. Policies in this Chapter will provide the more detailed land-use planning framework for the protection and provision of open space and recreation facilities.

13.4 The Government seeks to support the development of recreation opportunities and make recreation opportunities available to everyone. The planning system should ensure adequate land and water resources are allocated for recreation taking full account of the need for recreational space, current levels of provision and deficiencies, and the impact of location. Planning Policy Wales (2002) requires open spaces with significant recreational or amenity value to be protected from development. UDP’s should justify the amount and location of new recreation provision and consider including standards of provision for recreation based on an assessment of need.

13.6 Recreation facilities and open space are for the most part provided and maintained by the County Council although a number of private facilities exist. Many public recreational facilities (parks and playing fields) are provided in dual use with educational establishments e.g. school sports halls and swimming pools used by the public outside school hours. However, finance for these facilities is scarce and the County, through policies in this Chapter will encourage the provision of new and improved open space and recreation facilities by adopting an enabling role, that is working together with other providers and securing other sources of funding. Research on facilities planning by the Sports Council for Wales suggests Denbighshire is relatively well provided for in terms of most types of sports facilities. The 1997 survey suggested there was sufficient need for 3 additional indoor bowling rinks and one sports hall. However, this is a quantitative assessment and is not based on qualitative standards or maintenance.

13.7 Policies in relation to open space and recreation cannot be considered in isolation. For example, it is important to recognise the links that exist between recreation and tourism as the development of facilities and protection of open space can benefit both residents and visitors to the County. Indeed, additional patronage of facilities from visitors may allow provision to be made where it would not otherwise be viable. Recreation provision must also take account of environmental impacts especially in the open countryside where recreation activities could harm the environment.

13.9 As outlined in Part 1 of the UDP it is one of the Plan’s strategic objectives to promote equity and equality of access to recreational facilities and to prevent ‘town cramming’ by protecting appropriate green spaces in built up areas. Policy GEN 2 also seeks the protection of open space within Development Boundaries.

13.10 The importance of open space is recognised by policies that seek its protection and its provision as part of new residential developments or specific allocations. Policies also seek to allow the development of recreation facilities in urban areas and the countryside subject to meeting amenity and environmental safeguards. The importance of recreational routes in providing access and links between the countryside and areas of open space is also recognised.

13.12 The policies in this chapter generally have a positive effect on the environment by enhancing / protecting local conditions and the public’s health. By locating facilities close to residential areas, people will be encouraged to walk, cycle or use public transport. Only new golf developments are likely to have negative environmental effects and the policy has a number of strong criteria to ensure harm is not caused to the environment.

DEVELOPMENT WHICH WOULD RESULT IN THE LOSS OF EXISTING OPEN SPACE THAT HAS RECREATIONAL AND/OR AMENITY VALUE, INCLUDING THOSE AREAS SHOWN ON THE PROPOSALS MAP, WILL ONLY BE PERMITTED WHERE:-

i) THE OPEN SPACE CAN BEST BE RETAINED AND ENHANCED THROUGH THE REDEVELOPMENT OF A SMALL PART OF THE SITE;

ii) ALTERNATIVE PROVISION OF EQUIVALENT COMMUNITY RECREATIONAL BENEFIT IS MADE AVAILABLE;

iii) THERE WOULD BE AN OVERALL COMMUNITY GAIN FROM THE DEVELOPMENT AND THE PARTICULAR LOSS OF OPEN SPACE WILL HAVE NO SIGNIFICANT UNACCEPTABLE AFFECT ON LOCAL OPEN SPACE PROVISION OR THE AMENITY AND CHARACTER OF THE AREA.

Open spaces are of special significance for their recreational and amenity value. For the purposes of this policy, open space includes formal and informal open space whether in public or private ownership. These areas include parks, playing fields (including those in educational use) urban green-spaces and allotments.

In certain circumstances it might be beneficial to allow the redevelopment of a small area of underused or poorly maintained open space so that the remainder can be safeguarded and improved, so better meeting local need. Development on areas of open space may also be permitted where alternative provision can be made. However, the new open space must be easily accessible to the local community and be at least equivalent in terms of type, quantity and quality to that which is being replaced.

Where development would result in an overall benefit to the community based on an acknowledged need, such as a built sports or community facility, the loss of open space may be permitted where there is a proven and clear excess of that type of open space in the locality. The fact that some areas of open space may have become degraded or underused will not affect their status as protected areas as they could make a positive contribution in the future. It may be possible to improve open space during the plan period through developer contributions (Policy REC 2).

Policy REC 2 – Amenity & Recreational Open Space Requirements in New Developments

WHERE APPROPRIATE NEW DEVELOPMENT SHOULD PROVIDE LANDSCAPED AMENITY AREAS AS AN INTEGRAL PART OF THE DEVELOPMENT.

NEW RESIDENTIAL DEVELOPMENT MUST MAKE PROVISION FOR RECREATIONAL OPEN SPACE IN ACCORDANCE WITH THE COUNTY STANDARD OF 3.2 HECTARES PER 1000 POPULATION.

Where significant developments are proposed, including residential, retail, tourism, employment, and leisure uses appropriate levels of landscaped amenity areas should be provided. These areas should be designed as an integral part of the development in order to ensure they contribute positively to enhancing the development and surrounding area. These areas should not consist of ‘leftover’ and other unsuitable areas of land which can also be difficult to maintain.

In residential developments of 10 or more units, and where existing open space cannot meet the needs of a proposed residential development, then the scheme will be expected to contribute to open space in accordance with the County standard. Open space can include formal pitches, play areas, informal urban greenspace including landscaped amenity areas. The exact amount of open space required will be related in scale and kind to the development, and depend on the particular nature of each application, for example sheltered housing schemes will not be expected to make provision for children’s play space.

The County has adopted a minimum standard for open space of 3.2 ha per 1000 population. This standard is broken down into the following categories:

Community Recreational Open Space (CROS) (e.g. playing fields, parks)	2.4 ha
Children’s Play Space (e.g. equipped playgrounds, casual play areas)	0.8 ha

The open space required must be provided so that it is of benefit to the occupants of the new development. Ideally open space will be provided on-site, or in certain instances off-site but close to and accessible to the development. Where these two options are not practical or feasible, as could be in the case of sports pitch provision, then the Local Planning Authority may consider the use of ‘commuted sums’, whereby applicants would then pay the County Council a reasonable sum to provide the required open space on their behalf. Commuted sums would then be used to layout new open space or improve and enhance existing open space. Sums would not be used for the maintenance of existing open space. The exact form of open space provision will take will depend on the nature of each application. However generally CROS provision should include a minimum of between 1.6 and 1.8 ha’s for outdoor sport in accordance with the National Playing Fields Association recommendations.

Where the open space requirement is provided through commuted payments any future open space provision should be within the same community council area as the development. In certain cases provision may be made in an adjacent community if the open space provided would be of greater or equal benefit to the occupants of that development.

Applicants will have to make appropriate arrangements for the future maintenance of landscaped amenity areas, and for other open space where this is principally of benefit to the development itself, for example where it has been provided on or close to the development. It may be necessary to secure provision of open space through planning conditions, and payment of commuted sums for open space provision and maintenance through the use of legal agreements. Any planning agreements will be made in accordance with Welsh Office Circular 13/97 ‘Planning Obligations’. Further details are available in a Supplementary Planning Guidance Note.

LAND IS SAFEGUARDED FOR OPEN SPACE AND/OR RECREATIONAL FACILITIES AS SHOWN ON THE PROPOSALS MAP AT:

1. NANTGLYN (playing fields)

2. HEN ARDD, ERYRYS (open space)

3. GLAN MORFA, RHYL (open space / nature reserve/ community woodland)

4. MARINE LAKE, RHYL (recreation area)

5. CAE FRON, DENBIGH (informal recreation open space)

6. LON FAWR, RUTHIN SOUTH (as part of extended open space)

7. BODELWYDDAN (extension to existing open space)

The above sites individually and collectively can make a valuable contribution to the enjoyment and quality of life of the community. It is for this reason that they will be safeguarded from development and brought forward for the beneficial use of the community.

A Countywide ‘Public Open Space’ Survey undertaken in 1995 (updated in 2000) by the LPA revealed crude shortfalls of open space in certain areas, and to mitigate these shortages the above allocations have been made. The Survey identified a particular problem area of Rhyl especially the western side of the town. It is hoped that the allocations at Glan Morfa and Marine Lake will go some-way to improving the open space situation in Rhyl. Glan Morfa is allocated as a nature reserve and community woodland with low-key recreational routes.

It is worth noting that the survey is only a crude indicator as it takes no account of access to or quality of open space. Furthermore, in rural areas any standard may not be applicable or useful due to the dispersed nature of population.

This policy aims to allow for the development of new and improved recreation facilities and open space within Denbighshire. The improvement of sport and recreation facilities in Denbighshire (including laying out areas of open space) is supported especially as major facilities such as swimming pools and leisure centres can benefit both residents and visitors. Provision of major new facilities should take account of the demand by the Sports Council for Wales facilities planning model which can help determine whether a need exists and how this can best be met. New recreation facilities must be acceptable in terms of their impact on the surrounding area. The use of planning conditions which restrict the hours of operations so that disturbance such as floodlighting and traffic can be controlled may be necessary to make a development acceptable. Where new open space is proposed, care should be taken to ensure that its use would not seriously harm residential amenity.

The loss of protected open space may be permitted where it would lead to an improved or new built recreation facility subject to meeting the criteria outlined in Policy REC 1.

DEVELOPMENT OF RECREATION FACILITIES OUTSIDE DEVELOPMENT BOUNDARIES WILL ONLY BE PERMITTED WHERE THERE ARE NO ALTERNATIVE SUITABLE SITES AVAILABLE WITHIN DEVELOPMENT BOUNDARIES AND THERE WOULD BE NO UNACCEPTABLE HARM TO:

i) LANDSCAPE ESPECIALLY WITHIN THE AONB, AOB, LLA’s, HISTORICALLY IMPORTANT LANDSCAPES AND THE UNDEVELOPED COAST;

ii) AREAS OF NATURE CONSERVATION VALUE ESPECIALLY STATUTORILY PROTECTED SITES AND ‘WILDLIFE SITES’;

iii) THE BEST AND MOST VERSATILE AGRICULTURAL LAND;

iv) THE LOCAL HIGHWAY NETWORK.

FACILITIES SHOULD UTILISE EXISTING BUILDINGS. ANY NEW BUILDINGS / STRUCTURES SHOULD BE SITED CLOSE TO EXISTING BUILDINGS AND BLEND INTO THE LANDSCAPE IN TERMS OF DESIGN, SITING, MATERIALS AND LANDSCAPING.

RIDING STABLES / PONY TREKKING DEVELOPMENTS WILL ONLY BE PERMITTED WHERE SUITABLE BRIDLEWAYS OR OTHER ROUTES ARE SAFELY ACCESSIBLE.

The countryside comprises areas outside the defined settlement boundaries and can include the urban fringe. The urban fringe is an area where open space such as playing fields may be an appropriate use. Not only can it act as a buffer between the built-up urban area and countryside but can provide open space and recreation opportunities for nearby residents.

Many forms of recreation can be pursued in the countryside and the aim is to allow appropriate recreation (including laying out areas of open space) without harming the open countryside and the important natural features within it. Particular care must be taken in areas of landscape and nature conservation interest. Facilities should be based on an acknowledged need and use existing buildings.

Where proposals for riding stables or pony trekking come forward it must be demonstrated that suitable routes are readily and safely accessible for riding. Horse related development which would unacceptably harm rights of way in terms of overuse and environmental damage will not be acceptable.

Water based recreation on the County’s coast, lakes/reservoirs and rivers requires careful consideration due to potential environmental consequences especially where noise is an issue. Issues relating to coastal recreation are covered more fully in the Coastal Zone Chapter. ‘Noisy Sports’ and golf developments are also the subject of more detailed policies (REC 6 & REC 7) which follow. Voluntary management agreements may help to resolve potential conflict in the countryside with regard to recreation, including ‘noisy sports’.

DEVELOPMENT INVOLVING ‘NOISY SPORTS’ WILL ONLY BE PERMITTED WHERE THERE WOULD BE NO UNACCEPTABLE HARM TO:

i) THE AMENITY OF NEIGHBOURING LAND USES AND THE QUIET ENJOYMENT OF THE COUNTRYSIDE;

ii) LANDSCAPE CHARACTER ESPECIALLY WITHIN THE AONB, AOB, LLA’s, HISTORICALLY IMPORTANT GARDENS AND LANDSCAPES AND THE UNDEVELOPED COAST;

iii) AREAS OF NATURE CONSERVATION VALUE ESPECIALLY STATUTORILY PROTECTED SITES AND LOCAL ‘WILDLIFE SITES’;

iv) THE BEST AND MOST VERSATILE AGRICULTURAL LAND.

‘Noisy Sports’ include clay pigeon shooting, jet skiing, paintball / wargames and motorsports. Some of these activities have permitted development rights under Part 4 Schedule 2 of the Town and Country Planning (General Permitted Development) Order 1995. However within SSSI’s permitted development rights for the temporary use of land for war games, motorsports and clay pigeon shooting do not apply. Where control does exist this policy is intended to prevent unacceptable developments especially in terms of damage or disturbance to neighbouring land uses. General development control policy (GEN 6) and pollution policy (ENP 1) in the UDP, and other legislation also seek to control noise generating developments.

Planning Policy Wales (2002) states "special consideration is required where noise-generating development is proposed in or near statutorily designated areas or is likely to affect a protected species. The effect of noise on the enjoyment of other areas of landscape, wildlife and historic value should also be taken into account". It is possible that users of accessible countryside or open space could have their enjoyment of the countryside lessened by noisy recreation activities and this will be a consideration in determining planning applications.

Many of these developments are best located near existing noise producers or where physical barriers lessen their impact on surrounding land uses. Where noisy sports are likely to unacceptably affect a neighbouring land use, planning conditions may be used to restrict the hours/days of operation of the activity, specify acceptable noise levels and require measures to reduce the effect of noise to an acceptable level.

Voluntary management agreements may help to resolve potential conflict in the countryside with regard to recreation, including ‘noisy sports’.

NEW OR EXTENDED GOLF COURSES OR GOLF DRIVING RANGES WILL ONLY BE PERMITTED OUTSIDE THE AONB AND WHERE THE DEVELOPMENT DOES NOT UNACCEPTABLY HARM:

i) THE CHARACTER OR APPEARANCE OF THE LANDSCAPE ESPECIALLY THE AOB, LLA’S AND HISTORIC LANDSCAPES;

ii) AREAS OF NATURE CONSERVATION VALUE ESPECIALLY STATUTORILY PROTECTED SITES AND ‘WILDLIFE SITES’;

iii) THE SAFETY OF THE PUBLIC;

iv) RESIDENTIAL AMENITY ESPECIALLY THROUGH THE USE OF FLOODLIGHTING;

v) THE BEST AND MOST VERSATILE AGRICULTURAL LAND;

vi) AREAS OF HISTORIC, ARCHITECTURAL OR ARCHAEOLOGICAL IMPORTANCE.

FACILITIES SHOULD UTILISE EXISTING BUILDINGS. ANY NEW BUILDINGS/ STRUCTURES SHOULD BE SITED CLOSE TO EXISTING BUILDINGS AND BLEND INTO THE LANDSCAPE IN TERMS OF DESIGN, SITING, MATERIALS AND LANDSCAPING.

SATISFACTORY ACCESS MUST BE PROVIDED AND THE DEVELOPMENT SHOULD NOT RESULT IN AN UNACCEPTABLE IMPACT UPON THE LOCAL HIGHWAY NETWORK.

The provision of golf facilities can benefit residents and attract visitors to the County. However, demand for additional golf courses or golf driving ranges must be weighed against possible detrimental environmental impacts. Particular concerns exist over landscape protection and it is considered that these developments would be inappropriate within the AONB where conservation of the natural beauty of the landscape is the main planning consideration.

Golf courses can be an acceptable use in urban fringe areas and would not necessarily compromise Green Barrier polices especially if they make good use of existing buildings. Within open countryside careful design may make proposals acceptable in landscape terms. Developers are encouraged to draw up management plans regarding the protection and enhancement of a sites ecological interest, and to address measures to reduce water consumption.

Driving ranges have an intensity of built forms and as a result tend to be best suited to urban or urban fringe sites rather than the open countryside. Substantial perimeter fencing, floodlighting and the ‘light industrial’ character of buildings and car parks make integration into the open countryside problematic. Similarly short courses can be highly intrusive due to the intensity of features within a confined area. Where floodlighting is used this must not harm the amenity of neighbouring residential properties (Policy ENP 1). Where golf courses or driving ranges are located close to public rights of way, public highways or near to residential areas there use must not endanger the safety of the public.

New golf development should not lead to the permanent damage or loss of the best and most versatile agricultural land.

DEVELOPMENT WHICH WOULD UNACCEPTABLY HARM EXISTING AND PROPOSED RECREATIONAL ROUTES, INCLUDING THOSE SHOWN ON THE PROPOSALS MAP, WILL ONLY BE PERMITTED WHERE:-

i) A SATISFACTORY ACCESS CORRIDOR ALONG THE ORIGINAL ROUTE IS RETAINED;

ii) A SUITABLE DIRECT ALTERNATIVE CORRIDOR IS PROVIDED.

This policy relates to existing and proposed recreational routes including those shown on the Proposals Map. Recreational routes constitute footpaths, cycleways, bridleways, water-courses and river corridors and disused railway lines with potential for recreational uses. Policy TRA 1 seeks to safeguard disused railway lines for transport uses where there is a reasonable prospect of them coming forward for this purpose. Policies TRA 10 & TRA 11 deal with public rights of way and walking and cycling routes.

These routes provide important linear and circular open space links within and between urban areas and the countryside. They can also link with other regional and national routes. This policy seeks to prevent development that would impair the use of these routes whether by blockage or the creation of inconvenience.

Where possible, new routes will be promoted especially on the County’s network of water courses, river corridors and on disused rail lines. The former trackbed between Llangollen and Trevor is safeguarded for a walkway and cycleway in Policy TRA 11. REC 8 and TRA 11 are shown on the Proposals Maps under the same notation.