14 Open space, sport and recreation

14 Open space, sport and recreation

14.1 Cheshire West and Chester contains a variety of open space typologies, sport, recreation and community facilities, and a wide network of recreational routeways and waterways. This chapter provides a series of policies that support and provide further guidance for protecting and enhancing existing sport, recreation and community facilities and the network of multifunctional open spaces, including recreational routeways and waterways. It provides opportunities to widen and strengthen the borough’s cultural, sport, recreation and leisure offer and sets out requirements for the provision of, and contributions towards open space, sport and recreation facilities with new development.

14.2 The National Planning Policy Framework (NPPF) emphasises the important contribution that access to high quality open spaces and opportunities for sport and recreation can make to the health and well-being of communities. Enabling access to leisure, recreational and community facilities and promoting active lifestyles in order to support stronger, safer and healthier communities is a strategic objective of the Local Plan (Part One). Local Plan (Part One) policies SOC 5 and SOC 6 set out the Council’s approach to meeting the health and well-being needs of the borough and protecting and providing open space, sport and recreation facilities.  

14.3 The policies in this chapter will contribute to ensuring that open spaces and sport, recreation and community facilities meet existing and future needs across the borough and continue to deliver benefits to healthy and prospering communities, personal wellbeing and sustained economic growth.

DM 35 - Open space and new development

Explanation

14.4 In order to achieve a network of diverse multi-functional open spaces, Local Plan (Part One) policy SOC 6 seeks to protect and enhance existing open spaces, sport and recreation facilities, including those identified on the policies map, and requires an appropriate amount and type of provision with new development.

14.5 Open space, including sites which provide opportunities for sport and recreation designated under Local Plan (Part One) policy SOC 6, makes an important contribution to the borough’s green infrastructure network. This policy seeks to protect the green infrastructure benefits, functions and public value of non-designated open spaces which despite having no public access, provide a range of environmental and/or quality of life benefits for local communities, including for nature conservation, visual amenity, local character and environmental quality.

14.6 Non-designated open spaces are not intended to cover extensive tracts of land, but rather sites within or related to the urban areas and identified settlements that offer a locally important green space resource for the aforementioned reasons. Non-designated open spaces will be considered on a case by case basis, and the Council will have regard to the value of the site and overall degree of harm to that value, taking into account opportunities for enhancement through improving quality, quantity or public access.

14.7 Regard should be given to sites of open space, including Local Green Spaces, that are identified and protected in neighbourhood plans. These sites are not duplicated on the Local Plan policies map.

14.8 New residential development will generate additional demand for open space. The Cheshire West and Chester Open Space Study 2016 – 2030 (the Open Space Study) provides an up-to-date assessment of open space need and has identified deficiencies across the borough. The Council seeks to ensure that new residential development does not exacerbate deficiencies and so requires inclusion or contribution towards an appropriate amount and type of open space in order to satisfy additional demand that cannot be met through existing provision.

14.9 The quantity, quality and access standards within the Open Space Study should be used to inform assessment of existing open space, in order to determine an appropriate amount and type of provision (or contribution) with new development. These standards provide minimum guidance levels and should be considered together – exceeding minimum quantity standards in an area does not necessarily mean that there is a surplus as such provision may be well-used, of poor quality or there may be gaps in access. 

14.10 The access standards set out below represent a distance only variable and should be considered within the local context of the site and its surroundings (such as road safety, legibility and other access barriers). Surrounding playable space may be required in addition to the quantity standard of play space, in line with Fields in Trust and Play England guidance.

14.11 Open space requirements apply to all new residential developments (including provision through conversion or change of use), including: extra care developments, student accommodation, one-bed dwellings and flats. Where a development site forms part of a larger scheme, the Council may consider the open space requirements in relation to the development as a whole.

14.12 Where a financial contribution is required, it will be calculated in accordance with the most up to date evidence base. Where open space is to be provided on-site, the developer is required to provide the land and design and build the provision to the satisfaction of the Council. New public open space must be of high design quality, maximising opportunities for natural surveillance, and where appropriate and practical, provide other green infrastructure benefits such as providing wildlife habitats, flood or water storage areas, creating and linking routes for leisure and active travel and improving quality of place. New public open spaces (including sports and recreation facilities) created during the Local Plan period will be protected under Local Plan (Part One) policy SOC 6.

14.13 Amenity green space should be provided with natural green space as a combined typology, by providing amenity green space that is designed and planted to be natural in character, maximising wildlife and biodiversity opportunities. The minimum amount of amenity / natural green space that the Council will accept is a single site of 1500m2 to ensure that it can provide real recreation value and is not merely satisfied through left-over or hard to develop pieces of land. A development scheme should be sufficiently landscaped in addition to these requirements, in line with Local Plan (Part Two) policy DM 3.

14.14 In addition, contributions towards sport and recreation facilities (including playing pitches and indoor facilities) will be required in line with Local Plan (Part Two) policy DM 36. If, when a financial contribution for open space or sports pitches is received but is no longer required at the stated scheme, the sum may be re-allocated to another scheme identified by the Council in the evidence base.

14.15 Assessment of open space, sport and recreation provision is contained within a suite of documents, including the Open Space Study, the Playing Pitch Strategy (2015), the Play Strategy (2016) and the Draft Sports Facilities Strategy (2017). These documents, and any updates, should be considered together with any further guidance the Council may produce to inform decisions relating to the provision of, or contributions towards open space, sport and recreation facilities.

DM 36 - Provision for sport and recreation

Explanation

14.16 Local Plan (Part One) policy SOC 6 seeks to protect, manage and enhance existing open space, sport and recreation facilities, and requires that new development incorporates or contributes towards an appropriate level and quality of open space, sport and recreation provision.

14.17 This policy covers sport and recreation facilities, including: playing pitches (natural or artificial surfaces, either publicly or privately owned for sport and recreation); playing fields (including school playing fields); other outdoor sports areas (including golf courses, bowling greens, tennis courts, athletics tracks); and indoor sports and recreation facilities (including sports halls (which may include village halls/community centres), swimming pools, courts, health and fitness facilities, indoor cycling). Other open spaces and recreational routeways can also provide informal opportunities for sport and should be considered in line with Local Plan (Part One) policy SOC 6 and Local Plan (Part Two) policy DM 37.

14.18 The Cheshire West and Chester Playing Pitch Strategy (2015) provides a supply and demand assessment of playing pitch provision across the borough and has revealed that all pitch sports will experience shortfalls by 2027. It identifies a need to protect all existing playing pitch provision and increase capacity through creating access to school sites or bringing disused sites back into use, where feasible.

14.19 The Draft Sports Facilities Strategy (2017) provides an assessment of the adequacy of other sports and recreation facilities (indoor and outdoor) to meet existing and future needs. In line with identified needs, the Draft Sports Facilities Strategy sets out the following priorities:

• protect all existing and support new build or replacement provision of pay and play sports halls, swimming pools and fitness and studio provision;
• support replacement or refurbishment of ageing facilities, specifically Neston Recreation Centre and Northgate Arena; and
• support new provision of specialist facilities led by local club networks, especially for cycling, walking and running, gymnastics, squash, archery and watersports.

14.20 The Council will support proposals which contribute to meeting these priorities and may seek developer contributions towards them. This will be subject to meeting other development plan policies, including proposals being appropriately located, accessible by a range of transport modes and appropriately designed. When providing new or enhanced provision of sport and recreation facilities, including ancillary facilities, consideration should be given to the need to protect residential amenity in line with Local Plan (Part One) policy SOC 5 and Local Plan (Part Two) policy DM 2. This might include careful consideration of siting, design and potential cumulative impacts, including from lighting systems, noise and traffic disturbance.

14.21 Where possible, the Council will seek the opening up of private and school sports facilities and spaces for community use, in line with Local Plan (Part Two) policy DM 39.

14.22 Proposals relating to existing or new sport and recreation facilities will be assessed by the Council on a case by case basis, informed by the most up to date evidence base. New residential development will generate additional demand for sports pitches, so new provision or a contribution to increase capacity of an existing site(s) may be required to accommodate this additional demand. The Council will seek to increase capacity of existing provision by enhancing its quality, accessibility and maintenance, securing greater community access and, subject to relevant development plan policies, undertake works such as providing or improving ancillary facilities (e.g. changing facilities, parking, floodlighting).

14.23 To determine an appropriate amount and type of contribution or provision with new development, the Council will use Sport England’s strategic planning tools as a starting point to understand the additional demand generated. This will then be considered alongside the assessment of need and other findings within the Playing Pitch Strategy to determine how additional demand should be met. The use of developer contributions will be informed by the findings of the Playing Pitch Strategy and Action Plan for the analysis area in which the development is located. Developments of 10 dwellings or less are unlikely to generate a playing pitch contribution.

14.24 New provision on-site may be considered to be appropriate in certain instances, including when the development is located within an area of identified need and the new provision constitutes creation of a multi-pitch community sports hub or community sports facilities associated with a new school. Sport England should  be consulted on applications of 300 dwellings or more, which can inform the assessment for on-site provision.

14.25 When a development proposal requires replacement or on-site sport pitch provision, the Council may require the applicant to provide additional information, such as a Feasibility Study and/or Agronomy Report, to assess suitability of the site to accommodate the pitch. The Council may stipulate requirements of new pitch provision through planning conditions.

14.26 Contribution towards open space will also be required in line with Local Plan (Part Two) policy DM 35.

DM 37 - Recreational routeways

Explanation

14.27 There is a wide network of recreational routeways across the borough including footpaths, cycleways, bridleways, canals and waterways, and public rights of way. In line with Local Plan (Part One) policies SOC 6 and STRAT 10 which support opportunities to extend and improve access to green corridors and the local footpath and cycle network, and Local Plan (Part One) policy ECON 3 which recognises the economic benefit of maintaining a wide network of recreational routeways, this policy seeks to protect and, where possible, enhance the network for combined benefits to health, ecology, accessibility and the economy.

14.28 The following strategic recreational routeways are of particular importance within the borough, providing value locally and for visitors. Approximate routes rather than specific boundaries are shown on the policies map as public enjoyment often relates to their wider setting and surroundings.

14.29 Development that affects disused rail corridors, including Chester Millennium Greenway and Tattenhall-Whitchurch rail corridor, should be considered against Local Plan (Part Two) policy T 4 which safeguards these routes for future transport use.

14.30 Opportunities to improve the quality, accessibility and connectivity of the network of recreational routeways, including medium and long-distance routes which cross administrative boundaries, should be maximised. Measures to enhance existing routes might include: upgrades to facilitate shared use and accommodate the needs of different users; enhanced signage for wayfinding and information/interpretation; improved entrances and boundaries; habitat creation; enhanced provision of public rights of way furniture such as benches and bins; safety improvements; and promotion of railway stations as gateways for exploring and visiting recreational routes. Recreational value may also be enhanced through provision of appropriately located visitor facilities that are of appropriate scale and type for the location and recreational use of the site.

14.31 Investment in the network of recreational routeways should be informed by the latest evidence base, including: the Council’s Rights of Way Improvement Plan and Transport Strategies; the Draft Sports Facilities Strategy which identifies a need for safe traffic-free cycling facilities; and the Chester Waterways Strategy which seeks to maximise the recreational potential of the waterways.  

14.32 Where opportunities arise to support creation of new routes or improvements to the existing network, the following might be considered alongside the findings of the most up to date evidence base: Ellesmere Port Greenway Loop, A5117 Cycle Route, Ellesmere Port to Thornton Science Park, Chester – Ellesmere Port Canal Towpath, Sutton Way Boulevard (Ellesmere Port), Rossfield Road Footbridge (Ellesmere Port), cycle route along the length of the Weaver Navigation, cycle routes across Frodsham marshes and between Frodsham and Delamere.

14.33 Increased public access may not be appropriate in all areas, and consideration should be given to the potential for increased recreational pressures and disturbances on internationally designated sites with the creation or extension of recreational routes. Such adverse effects should be avoided and a project-level Habitat Regulations Assessment (HRA) may be required on a case by case basis, in line with Local Plan (Part One) policy ENV 4 and Local Plan (Part Two) policy 
DM 44.

14.34 This policy should be read alongside other relevant development plan policies, and can be used to inform policies in emerging neighbourhood plans where there are opportunities to identify and support enhancements to recreational routeways locally.

DM 38 - Waterways and mooring facilities

Explanation

14.35 Local Plan (Part One) policy ECON 3 supports development proposals that have the potential to improve access to and use of the borough's waterways in particular the canal network. The borough has a wide network of canals that provide recreational opportunities. The waterways form part of the multi-functional green network in the borough and are integrated into a network of walkways, cycleways, open spaces and ecological networks. This policy should be considered alongside Local Plan (Part Two) policies DM 37 and DM 44.

14.36 The waterways in the borough have a wide variety of mooring facilities available and demand may result in pressure for the further development of new linear or layby mooring facilities, new marina developments, or extensions to existing  facilities. The policy allows for the development of these, providing the impacts on users and the local environment can be minimised and mitigated. Additional controls will apply to new built development within the Green Belt, in line with the NPPF and Local Plan (Part One) policy STRAT 9.

14.37 Public access and the recreational use of the waterways as defined in Local Plan (Part Two) policy DM 37 is supported. The Habitats Regulations Assessment (HRA) highlighted that any adverse effects on internationally designated sites of ecological value arising from recreational pressure must be avoided and a project-level HRA may be required on a case by case basis, in line with Local plan (Part One) policy ENV 4 and Local Plan (Part Two) policy DM 44.

14.38 The Manchester Ship Canal is an important part of the canal network within Cheshire West and Chester however this is a commercial waterway and a Statutory Harbour Authority with restricted public access.

14.39 Inland waterways are an important form of infrastructure that can potentially be affected by all scales and forms of development located near the waterway. Local planning authorities are required to consult navigation authorities before granting planning permission for development likely to affect specified rivers, canals, reservoirs, canal feeder channels, watercourses, let offs and culverts. The TCPA Policy Advice Note: Inland Waterways sets out additional guidelines for safeguarding inland waterways from inappropriate development.

14.40 The policy supports proposals that provide regeneration benefits alongside the waterways, particularly in urban areas. In line with other Local Plan (Part Two) policies, there is an opportunity to upgrade industrial areas of Ellesmere Port along the M53/Shropshire Union Canal corridor, recreational schemes around Chester Castle and Riverside linked to historic assets, the regeneration of industrial areas of Northwich, and Winsford alongside the Rivers Dane and Weaver. This will support economic development, tourism and recreational development along the waterways and at associated tourism attractions alongside the waterways such as the National Waterways Museum, Lion Salt Works and Anderton Boat Lift. The Winsford Neighbourhood Plan aims to promote and diversify the use of the Flashes and Weaver Valley.

DM 39 - Culture and community facilities

Explanation

14.41 Local Plan (Part One) policy SOC 5 supports new and improved health facilities, with improved links to healthcare in the rural area and strengthen the boroughs cultural, recreation and leisure offer. Within new developments, especially residential, community facilities can contribute to the social well-being of the community and bringing people together, whilst contributing to the local infrastructure in line with Local Plan (Part One) policy STRAT 11. There is a wide range of different types of community facilities and services that meets the day to day needs of the local area. For the purposes of the policy, community facilities and services could include: education, libraries, social services, fire, police, health, public houses, local shops, places of worship and community centres.

14.42 With a growing and ageing population there is an increasing pressure on health services, particularly Accident and Emergency departments. Improved services and facilities will need to meet changing healthcare needs. Increasing the level of care in the community will ease some of this pressure, whilst providing a sustainable option that reduces the need to travel and will particularly benefit the elderly population. Neighbourhood planning groups experience pressures on the health services and other community development such as education first hand and are best placed to understand the needs of the local community.

14.43 Culture makes an important contribution to the social, economic and cultural wellbeing of the borough and are therefore safeguarded and new proposals supported where appropriate. They can contribute to social wellbeing of our residents and contribute to the local economy. Many cultural facilities are considered main town centre uses and should be directed to town and district centres in line with Local Plan (Part One) policy ECON 2. Applications that promote tourism should meet the criteria set out in Local Plan (Part One) policy ECON 3.

14.44 The Department for Digital, Culture, Media and Sport definition of 'culture' is generally taken to include the following areas: arts (including visual arts, literature, music, theatre and dance), architecture, crafts, creative industries, design, heritage, historic environment, museums and galleries, libraries, archives, film, broadcasting and media. Cultural development will be expected to be aligned with the Cheshire West and Chester Cultural Strategy and action plans.

14.45 The Draft Sports Facilities Strategy states that where possible, opportunities should be taken to secure community use agreements in new build education sites (and other community facilities) by planning condition or other legal agreement. It was identified that many of these facilities have the opportunity to increase activity in the community, but are not available to the general public on a pay and play basis. Increase in pay and play accessibility for sports halls and swimming pools will be welcomed and supported in new and existing facilities.

14.46 The policy protects existing community facilities and cultural assets with a view to helping them to adapt to new challenges and uses. Where proposals involve the loss of an existing community facility or building used for cultural purposes, the Council will require demonstration that there is no longer a need for the facility, either now or in the foreseeable future. The possibility of using the premises for any other community facilities for which there is an identified need in the locality should be fully investigated by the applicants and evidence of this provided to the Council. Capability of continued or other community uses could relate to the economic viability or physical condition of the building.

14.47 When considering proposals for demolition or change of use, the Council will also take into consideration the role of that facility within the community and existing alternative facilities in the surrounding area. Local shops are important for meeting the day to day needs of a community and the loss of such a facility can be very damaging, especially to members of the community that are less mobile. It is therefore important to protect these uses, especially if this is the only shop in an area.

14.48 ACVs have been identified by the local community as important to their social well-being. Therefore, every opportunity to retain such a use should be made. Locally important community facilities and services may also be identified at a local level, through neighbourhood plans, parish plans and village plans.

14.49 There are a number of social, economic and environmental benefits that can be achieved by including public art in a scheme in both the urban and rural area, these include:

• contribute to local distinctiveness and a sense of place
• create a stimulating environment to live, work, invest or visit
• encourage people to value their surroundings, contributing to a reduction in vandalism and fear of crime and creating a healthier, safer and sustainable environment
• create a sense of local identity and community pride
• providing a focus and stimulus for tourism

14.50 Public art involves the commissioning of artists and craftspeople to make new site specific work that can be permanent, temporary, internal or external. Public art includes work that is integrated into a scheme; this could range from bespoke street furniture, lighting, boundaries and landscaping through to internal details of a building - its furniture, flooring, ceramics and textiles. It can also be sculpture, photography, performance, moving image and events. Significant development could include major regeneration schemes and key sites.

14.51 Public art does not have to be within public spaces, but has to be accessible to the public realm or available in the semi-public areas of completed developments. Early engagement in public art will maximise the benefits and embed the creative process into the development as recommended in the Public Art Strategic Framework.