Chapter 9

 

Sport & Recreation

 

Introduction

9.1Sport and recreation facilities and services are provided by four major agencies - the City Council, the County Council, the voluntary sector and the commercial sector.  Over recent years there has been a general increase in commercial leisure activity and the private sector has become an important aspect of the overall provision, increasing land use demands.

9.2 This chapter deals with various aspects of sport and recreation including indoor sports provision, outdoor sports provision, water recreation, countryside sports and recreation and children's play.

 

Objectives

9.3 In formulating policies for sport and recreation, the Council has had regard to the following objectives to:

• ensure that existing levels of sport and recreation provision, including recreation open space, are retained and enhanced where appropriate
• improve the amount, quality and accessibility of sport and recreation facilities to cater for the needs of all sections of the community

 

Policies and Proposals

 

Standards of Provision for Formal & Informal Sport & Recreation

9.4 Planning Policy Guidance Note 17: Planning for Open Space, Sport & Recreation suggests that local authorities should draw up their own standards of provision for formal and informal sport and recreation, based on their own assessment of need and include those standards in their Local Plans.

9.5 The Council has accordingly carried out quantitative assessments of areas used for formal and informal sport and recreation ("public open space") for both the urban and rural areas. The level and type of provision was then assessed by reference to the following standards:

Children's play areas: 0.2-0.3 hectares per 1000 persons
(Play areas with play equipment)

Casual/informal play space: 0.4-0.5 hectares per 1000 persons
(Space for informal play)

Outdoor sport: 1.6-1.8 hectares per 1000 persons
(Pitches, greens, courts etc)

9.6 The above standards are based on National Playing Fields Association standards and only deal with active recreation space. For amenity open space the following standard was applied:

Amenity open space: 1.0 hectare per 1000 persons
(Areas of open land which contribute to the overall character and enjoyment of the area in a passive sense)

 

Current Provision for Formal & Informal Sport and Recreation

 

i) Urban Area

9.7 The quantitative assessment of open space has only included land which is publicly accessible. For the urban public open space assessment, Chester was divided into catchment areas resulting mainly from physical barriers. Please contact the Forward Planning Team for more information. From results of the local area assessments it is apparent that there is a shortfall throughout all local areas of both children's play areas and playing pitches. The pattern of provision of casual/informal play space and amenity space is more varied.

9.8 The local assessments only included "local" recreation and amenity land. To assess the whole urban area it was necessary to take into account publicly and privately owned recreation facilities and amenity areas which are publicly accessible and of a more strategic nature and were purposely omitted from the local assessments because they serve a much wider area. Figure 9a summarises the position for the urban area as a whole. There is a large shortfall of children's play areas and playing pitches. The requirements for casual/ informal play space have been met on a city wide basis, although some local areas are deficient. The apparent surplus of amenity areas has to be viewed in the context of use by visitors and tourists and the other functions it may perform. This suggests that open space is perhaps better assessed at a local level, rather than on a city wide basis, as it is generally used by local residents.

9.9 The "Greenspace Survey" of the urban area has been the subject of a public consultation exercise. This survey is essentially a qualitative survey.  It has assessed all greenspace in the city whether accessible or not, publicly or privately owned and has identified its principal function and value. The results and conclusions of this work form the basis of policies in the Urban and Rural Landscape Section in The Environment chapter.

9.10 The "Urban Play Area Strategy" assesses existing provision and quality of play areas against the three categories of play areas suggested by the NPFA. Further details regarding the new categories of play areas are contained in paragraphs 9.15 to 9.17. The "Urban Play Area Strategy" looks at the distribution of play areas and their catchment zones within the urban area and goes on to identify "gaps" in provision in terms of catchment zones.  It is important to remember that there are shortfalls in play area provision throughout the urban area when the areas are assessed against the standards outlined in paragraph 9.5.

 

ii) Rural Area

9.11 An assessment of public open space in the rural area found that most villages in the rural area appeared to have a shortfall of public open space when assessed against these standards. Please contact the Forward Planning Team for more information.

9.12 The rural open space assessment identified a number of large and "medium" sized villages with particular needs and deficiencies which the Council should seek to address in the Local Plan. These villages were listed as: Kelsall, Guilden Sutton, Mickle Trafford, Farndon, and Saughall. It was suggested that there was a particular need in Ashton for an area of casual/informal open space and in Dodleston a particular need for a cricket pitch has been identified. It was suggested that as far as the smallest villages are concerned, increasing provision significantly would not seem to be realistic, nor a priority and they will probably have to continue to look to medium and larger villages/urban areas for provision of facilities.

Figure 9a

 

Assessment of Public Open Space in Urban Area

- Summery of Total Provision

 

	Children's Play Areas (ha)	Casual/Informal Playspace (ha)	Playing Pitches* Including Green & Courts (ha)	Amenity Areas **(ha)
Actual Provision	3.09	37.77	43.85	164.03
Level of Provision	SF 12.29	SF 0.68	SF 57.08	SP 87.13
	to 19.98	to SP 7.01

* Includes large recreation facilities which serve the whole of the Urban Area, not included in local assessments

 

** Includes publicly owned strategic amenity areas not included in local assessments

 

This table provides a summary of the total quantity of public open space in the urban area. It includes the total figures from the local assessments and in addition, a figure for "strategic" areas of open space, which serve a larger, city wide, function.

Policy SR 1

Reason/Explanation

In line with Central Government Guidance in PPG 17, which recommends that local plans should include standards of provision for recreation.

 

The standards of provision for active recreation are based on National Playing Fields Association standards. Children's play areas are defined as publicly owned or publicly accessible equipped play areas. Casual/informal play space is defined as publicly owned or publicly accessible land providing for informal recreational needs, including informal play and kickabout space. Space for outdoor sport is defined as land which is specifically provided to cater for outdoor formal sports. It can be publicly or privately owned. School playing fields can only be included where the facilities are available for public use on a regular and sustained basis as a matter of policy and practice. Amenity space is defined as areas of accessible open space, which contribute to the overall character and enjoyment of the area in a passive sense.

Policy SR 2

Development resulting in the loss of existing playing fields, including school playing fields no longer required for educational purposes, will not be permitted unless alternative recreation provision of an equivalent standard is made available in a suitable location.

Reason/Explanation

This policy applies to publicly and privately owned playing fields. Where playing fields are designated under Policy ENV 17 as urban or village greenspace and have wildlife, cultural or landscape importance in addition to their recreation value, then proposals for development affecting them will be considered under Policy ENV 17.

 

There is a general shortage of playing fields across the District and such facilities will be protected from development unless alternative facilities can be provided. Development on playing fields may be permitted where this would provide small-scale structures to support existing recreational uses or provide facilities for new recreational uses.

 

In considering applications involving playing fields, the Council will have regard to the advice contained in PPG 17: Planning for Open Space, Sport and Recreation; the findings of the Council’s open space assessment; the quality and quantity of existing provision in the catchment area and, where applicable, the identified need for additional or enhanced facilities.

 

Other recreation facilities such as play areas and informal play space are protected under Policy ENV 17.

 

Meeting the Existing Shortfall in the Provision of Areas for Formal & Informal Sport and Recreation

9.13 By reference to the standards adopted by the Council there is a shortfall of public open space virtually throughout the District, especially of playing fields. The Council will aim to reduce this shortfall through better management of existing facilities and the provision of new sites. The Council will also encourage joint use arrangements for school facilities, wherever possible.

Policy SR 3

Reason/Explanation

To meet the needs identified in these areas.

Policy SR 4

In addition to those areas identified in Policy SR 3, proposals for the provision of new areas for formal and informal sport and recreation and/or the improvement of existing areas will be permitted.

Reason/Explanation

To meet the shortfall in provision throughout the District, when assessed against the Council's adopted standards.

 

The Council will seek to increase the amount of publicly accessible open space throughout the District, through the provision of a range of types of space from small play areas to larger facilities such as public parks. There will be a particular focus on areas of identified need, such as West Chester.

 

The Council will also pursue joint use arrangements and the implementation of its Play Area Strategy to meet the identified shortfall.

 

9.14 The area of land south of the Blacon escarpment has been identified as forming part of an area of Urban Greenspace extending across the Dee Flood Plain to the west of Chester. The Council wishes to secure part of the area south of the escarpment as a park to increase the level of access and enjoyment of the area for recreation purposes.

 

Guidelines for Formal & Informal Sport and Recreation Provision in New Housing Development

 

i) Play Areas

9.15 In 1992 the National Playing Fields Association published guidelines for providing adequate play space for children in new housing development. This advice relates to the overall level of provision and its distribution, and suggests that a hierarchy of play spaces should be provided.  This approach was reiterated in the NPFA’s updated document published in 2001.

9.16 The three categories of play provision suggested by the NPFA are: Local Area for Play (LAP), Local Equipped Area for Play (LEAP) and Neighbourhood Equipped Area for Play (NEAP).

9.17 The NPFA guidelines acknowledge that there are categories of housing which may never accommodate children, and where no play provision is necessary. Examples are sheltered housing, or certain types of hostel accommodation where the occupancy is controlled. However, it should not be assumed that children will never be housed in single-person accommodation because in reality parents often do bring children up in such accommodation.

9.18 Policy SR 5 below sets out the requirements for the provision of play areas within new housing development, in line with the NPFA guidelines.

9.19 It is important that the selection of play area sites is integrated into the whole process of design, and not just added as an afterthought.  Play areas should be sited in open, welcoming locations, not on backland with accesses along back alleys.  Play areas should also be linked as far as possible with other open spaces, footpath systems and amenity areas.  Detailed landscape schemes for the play areas should be approved by the Council.  Arrangements should be made with the Council for the continuing maintenance of the play areas, possibly in the form of commuted maintenance payments where the future maintenance of such play areas is to be taken over by a Parish Council or the City Council.  Applications for major residential areas, where development is proposed to be phased, should indicate areas to be set aside for recreation in line with the requirements below for the whole estate, in order to ensure properly planned provision of recreation space.

Policy SR 5

Reason/Explanation

To meet the Council's adopted open space standards and to meet the needs of residents.

 

The above standards are based on NPFA recommended standards ("The Six Acre Standard : Minimum Standards for Outdoor Playing Space").

 

The NPFA recommend that all play spaces should be accessible on foot from every dwelling in the group without having to cross major hazards such as main roads, railways or waterways. They also recommend that Local Areas for Play (LAPs) should not be more than 60m straight line distance or 100m walking distance from any of the houses in the group; Local Equipped Areas for Play (LEAPs) should not be more than 240m straight line distance or 400m walking distance from any of the houses; and Neighbourhood Equipped Areas for Play (NEAPs) should not be more than 600m straight line distance or 1000 m walking distance from any of the houses.

 

The Council will have regard to these criteria in applying the policy.

 

Play areas should offer a variety of play equipment and seating for accompanying adults. Play equipment and safety surfacing should comply with relevant British Standards. In some cases, it might be appropriate to combine the play space facilities to make more effective use of space.

 

Play areas should not be located so close to houses as to cause noise or nuisance problems for those households and measures should be taken to prevent the spread of noise from the play areas to the surrounding houses, perhaps in the form of a buffer zone which should be in addition to the requirements set out in this policy.

 

Where proposals are submitted for developments involving 15 or more dwellings, the Council will expect that provision for play areas is made on site. Exceptionally however, where the developer can demonstrate that it is not practicable to provide the entire play area requirement on site, the Council will seek the payment of a commuted sum which will be used elsewhere in the immediate locality, either for the provision and maintenance of new open space or for the enhancement of an existing space.

 

In the case of proposals involving 5 to 14 dwellings, the Council does not consider it would be practical to require provision to be made for play areas on site, in view of the size of the development. Moreover, provision on such sites would result in a proliferation of small open spaces which would be expensive to maintain. In these circumstances the developer will be required to pay a commuted sum which will be calculated on the basis of 15 square metres per dwelling, having regard to the open space standards set out in Policy SR 1 in this chapter and Policy ENV 23 in the Section on Urban and Rural Landscape in the chapter on Environment. The Council considers it would be unreasonable to require any provision for play areas in respect of developments of less than 5 dwellings.

 

In assessing the level of open space provision, the Council will have regard to the scale of the development area and the proposal as a whole, rather than any sub-division into smaller parts.

 

Where appropriate the Council will request applicants to enter into a Section 106 Agreement under the Town and Country Planning Act 1990 to ensure provision and secure the future maintenance of the recreation space.

 

Further information on the application of this policy is provided in Supplementary Planning Guidance Note ‘Play & Open Space Provision in New Housing Developments’.

 

ii) Playing pitches

9.20 The NPFA do not provide specific guidelines on the provision of playing pitches in conjunction with new residential development.  With regard to larger new residential developments of 200 houses plus, an area of about 0.85 hectares should be provided for new pitches. This figure is based on the NPFA standard of 1.6-1.8 hectares per 1000 population for playing pitches. This would be sufficient to provide a football pitch, tennis courts, bowling greens or various other formal pitches.

Policy SR 6

Where there is a proven deficiency, proposals for new residential developments where the total site area is capable of accommodating at least 200 dwellings, a space of about 0.85 hectares shall be provided for playing pitches, in addition to the requirements for children’s play areas.

Reason/Explanation

To meet the Council's adopted open space standards and to meet the needs of residents.

 

Where appropriate the Council will request applicants to enter into a Section 106 Agreement under the Town and Country Planning Act 1990 to ensure provision and secure the future maintenance of the recreation space.

 

Any consideration of off-site provision will be considered under the terms of policy ENV 23. In assessing the level of open space provision, the Council will have regard to the scale of the development area and proposal as a whole, rather than any sub-division into smaller parts.

 

iii) Amenity open space

9.21 With regard to amenity open space, the Council has adopted a standard of 1 hectare per 1000 population. Using an average household size this would suggest the provision of 25m2 of amenity open space per dwelling in new residential developments. Further details regarding landscape design requirements in new developments are included in the Urban and Village Landscape Section in The Environment chapter.

Policy SR 7

Where appropriate in new housing development, landscaped amenity areas accessible to the public shall be provided at a guideline rate of 25m2 per dwelling, in addition to any recreation open space requirements. Where this would be impractical on-site through reasons of size or site configuration, consideration will be given to securing its provision elsewhere in the immediate locality under the terms of Policy ENV 23.

Reason/Explanation

To meet the Council's adopted open space standards and to meet the needs of residents.

 

Amenity space is defined as areas of open space which contribute to the overall character and enjoyment of the area in a passive sense.

 

In assessing the appropriate application of this policy, regard will be had to the size, nature and character of the proposed development, of the surrounding area and the availability and function of nearby open space. Its application to housing developments of less than 5 dwellings would not normally be regarded as appropriate. On schemes of between 5-14 dwellings, it may be impractical to provide amenity space of a size to render it beneficial. In such circumstances, negotiations under policy ENV 23 would seek to secure agreements under Section 106 of the Town and Country Planning Act 1990, to ensure the provision of alternative facilities in the locality and to ensure its maintenance for an agreed period.

 

Indoor sports provision

9.22 Possible future developments could include expansion of Northgate Arena and the sports centre at Upton. The Council will encourage the expansion and improvement of existing facilities, as these are usually well placed to serve the local community.

Policy SR 8

Reason/Explanation

To prevent any inappropriate development.

 

Golf

9.23 Golf is becoming an increasingly popular sport and has a substantial land use impact.  Despite being landscaped with trees and grass, golf courses are often "green deserts" with little wildlife value. Golf courses should be located and designed to ensure harmony with the surrounding countryside and to conserve the natural environment.

Policy SR 9

Reason/Explanation

Golf courses can meet a need for outdoor sport and recreation.

 

However, the development of golf courses may change the overall character of an area. This can often be to the detriment of wildlife and natural and/or historical features or may result in the loss of the best and most versatile agricultural land. Layout designs should seek to retain the existing landform and landscape features.

 

It is important that such proposals are assessed to ensure that they are in line with other policies in the Plan and any significant associated development, such as hotels, will be considered on their own merits.

 

The Council will require the submission of layout details and wildlife and landscape management plans with any proposals for the development of golf courses. Where the proposal involves the importation of material, details of the volume of material and timetable for its use will be required. Details of the existing and proposed topography, temporary and permanent access roads and any lighting schemes should also be submitted.

 

Where golf courses which were previously on what was agricultural land cease to be used as such there will be a presumption against the use of the land for permanent forms of development.

 

Athletics Track

9.24 There is currently no adequate athletics track in the Chester area and participants have to travel some distance to find suitable facilities. The need for an athletics track within the District has long been recognised and negotiations are currently underway for the development of an athletics track and associated facilities.

Policy SR 10

Land adjoining the County Officers Sports Complex in Long Lane, Upton is allocated for an athletics track and essential facilities.

Reason/Explanation

To meet the identified need for such a facility. The Council considers that this is the most appropriate site for this development which would be consistent with Green Belt policy.

 

Any development proposals on this site would need to comply with policy ENV 65. Essential facilities may take the form of small changing rooms or unobtrusive spectator accommodation, as described in paragraph 3.5 of PPG 2.

 

Water Recreation

9.25 There has been a rapid growth in water based sport and recreation. This has led to congestion and conflicting uses on the River Dee, particularly in the area of the Groves. The Chester Waterways Study suggested that the dispersal of activities on the River and Canal is very important and that this could be achieved by developing alternative attractions upstream of the Groves.  Any proposals for such facilities will be considered in relation to all relevant local plan policies.

Policy SR 11

Reason/Explanation

To improve access to the River and Canal and to improve facilities for residents and visitors.

Policy SR 12

Reason/Explanation

Proposals for water recreation facilities may harm local wildlife and the natural environment or may result in the loss of recreational land.

 

The Council will require the submission of a wildlife and landscape management plan to be submitted with any proposals for new water recreation facilities. The Council will also require any public rights of way to be safeguarded.

 

The Council will require all applications for water recreation to be supported by details on the impact of the proposal, including the effect on public rights of way.

 

This policy is not intended to prevent the development of modest water recreation facilities in public areas.

 

It may be appropriate to use former mineral extraction sites for water recreation purposes (see Policy ENV 62 in the Section on Mineral Extraction and Waste Disposal in the chapter on The Environment).

 

Noisy/Environmentally Intrusive Recreation Activities

9.26 Sport and recreation activities in the rural area range from the passive and quiet to the active and noisy, and conflicts can occur with other land uses.

Policy SR 13

Reason/Explanation

Some newer leisure activities, such as war games, can cause disturbance and danger as well as noise problems. It is important to protect sensitive areas and residential areas from noisy/environmentally intrusive activities which would have an adverse impact.

 

Countryside Recreation

9.27 The Council has identified a number of Strategic Recreation Corridors in the plan area i.e. the River Dee, the Shropshire Union Canal, the former Mickle Trafford-Shotton and Tattenhall-Whitchurch railway lines and the Sandstone Trail. Specific boundaries cannot be drawn for these Corridors because they relate to the enjoyment of a linear feature and the surrounding countryside.

9.28 These Strategic Recreation Corridors form an important element of the Green Network, as described in the Section on the Urban and Rural Landscape in The Environment chapter.  These Corridors secure key links between the countryside and the built environment and have the benefit or potential to facilitate greater public access and enjoyment of the countryside.

Policy SR 14

Reason/Explanation

The Council recognises the importance of these Corridors for countryside recreation and will seek both to protect and enhance them in order to increase public access to the countryside.

 

This policy will be applied both to proposals which directly or indirectly affect these Corridors.

 

(See Policy ENV 26 in the Section on the Urban and Rural Landscape in the chapter on The Environment)

 

9.29 Chester District has limited facilities for quiet countryside recreation, such as walking, picnicking, cycling or riding. The provision of additional small scale facilities, such as car parks, viewing points and picnic sites should be encouraged, but care would have to be taken over location in order to avoid detracting from the feature being visited.

Policy SR 15

Proposals for small scale recreation facilities in the countryside will be permitted provided such proposals would not harm the amenities or character of the surrounding area. Such proposals will be permitted provided that they are sensitively designed, sited and integrated with existing recreation areas, the rights of way network and cycle routes.

Reason/Explanation

The countryside is an important recreational resource and small-scale developments, provided that they are sensitively designed and sited, can enhance people's enjoyment of the countryside without detracting from the environment.

 

Carden Park

9.30 The Council considers that it would be appropriate for Carden Park to continue to develop as a country leisure pursuits centre.  However, the Council is concerned to ensure that the scale and nature of further development would not damage the character of the area nor cause nuisance to local residents.

Policy SR 16

Carden Park is allocated as a country leisure pursuits centre. Proposals for country leisure pursuits will be permitted where the scale and nature of the activities are consistent with the overall aim of maintaining and enhancing this attractive rural area and not causing demonstrable harm to the amenities of local residents.

Reason/Explanation

To protect the character and amenity of this area.

 

Country leisure pursuits are those activities which take place in a rural setting where the countryside and its features are an integral part of the experience.

 

Footpaths, Bridleways and Cycleways

9.31 The Council is aiming to create a comprehensive pedestrian/cycle route network. Cycle routes are identified on the Local Plan Proposals Map and specific cycling policies are included in the Transport chapter of the Local Plan.

Policy SR 17

Reason/Explanation

Footpaths and bridleways within the District are the responsibility of the County Council. Leisure walks and horse riding are becoming increasingly popular and the definition of routes of various lengths and extensions to the network will help to cater for this trend, reduce pressure on more popular paths and provide a further attraction for tourists to the countryside.

 

Recreational cycling is becoming an increasingly popular activity.

 

Monitoring

9.32 The following issues arising from this chapter will be monitored during the Plan period.  This information will inform the application of policies and will help to assess their effectiveness.

• loss of existing recreation space to other uses, and provision of new recreation facilities
• the implementation of allocated sites within this chapter
• the Greenspace Surveys, Open Space surveys, Playing Pitch Strategy and Play Area Strategy will be reviewed and updated

 

Environmental Appraisal of Policeis and Proposals

 

Global Sustainability

9.33 The effect of these policies in terms of global sustainability is difficult to determine.  An increase in sport and recreation facilities could lead to more travel, and although policies require that new facilities should be accessible by public transport, there could be an increase in car use and, therefore, emissions.  However, an increase in provision could also mean that people have less distance to travel to facilities and, overall, the provision of more facilities could lead to an improvement in transport efficiency.

9.34 There could be scope for more tree planting in conjunction with further open space provision, which could also contribute to preserving the global atmosphere.

 

Natural Resources

9.35 The policies relating to sport and recreation will have a mixed affect on natural resources.  New development will place greater demands on water and other natural resources and will generate more waste.  Water sports could threaten the quality of water.  The policies aim to protect wildlife habitats and biodiversity and there may be scope for the creation of new habitats.

 

Local Environment

9.36 The Appraisal shows that the protection of existing recreation open space and the requirement to provide various categories of open space in new housing developments will obviously make a positive contribution to the urban and village environment.

 

Environmental Impact Significance

9.37 The sport and recreation policies should have a very positive impact on the local environment and quality of life.  Whilst the development of new facilities such as a tennis centre and an athletics track may have a detrimental affect in terms of more demand for travel, the policies aim to minimise any negative impacts on the environment.