West Berkshire District Council Written Statement

7.1.1 Sport and recreation are activities with major land use implications. The planning system has a role in assessing opportunities and the need for sport and recreation provision and safeguarding open space with recreational value. It is the policy of Government to promote the development of sport and recreation in the widest sense. Recreation and leisure provision should be available for everyone, including young children, the elderly and those with disabilities for whom access to facilities is especially important.

7.1.2 It is part of the planning authority's responsibilities to take full account in its development control decisions of the community's need for recreational space, to have regard to current levels of provision and deficiencies and to resist pressures for the development of open space which conflicts with the wider public interest. Local Planning Authorities need to take into account the value of open space not only as an amenity but also as a contribution to the conservation of the natural and built heritage of the area. Policies for open space have to be set in a framework which takes full account of the community's need for development and conservation of all kinds. Authorities should therefore balance very carefully the competing claims of different land uses and the community's long term requirement for recreation facilities.

7.1.3 The principal issues covered in this chapter of the local plan include:

(i) the standard and provision of public open space in association with residential development;

(vi)provision for appropriate boating and related recreational facilities along the Kennet and Avon Canal without causing serious harm to environmental and landscape qualities of the Canal; and

(vii)provision for appropriate recreational uses and facilities at Thatcham Moors and the Lower Kennet Water Park while protecting and conserving the nature conservation and amenity value of these areas.

7.1.4 In terms of PPG12 it is appropriate to consider local options for conserving and improving the landscape and encouraging opportunities for recreation. The Countryside Commission has stressed the need for stronger links between peoples' enjoyment of the countryside and its conservation.

7.1.5 The provision of public open space in urban areas and access to the countryside is important to the quality of life of residents. There is a close relationship between policies in this chapter and those in the Environment Chapter. The countryside linkages between recreation, leisure and the rural economy can also be of particular importance. As a consequence the countryside can be safeguarded for its recreational value.

7.1.6 Government advice on recreation issues is contained in a number of PPGs, in particular the following:

PPG7 The Countryside – Environmental Quality and Economic and Social Development (February 1997)

One of the principal aims of PPG7 is to conserve and improve the landscape and encourage opportunities for recreation. PPG17 identifies sport and recreation as being activities with major land use implications together with increasing use of the countryside. These activities need to be both appropriate and in harmony with the countryside. Relevant considerations in this regard should include:

(i) the ability of the land and landscape to sustain the activity in the longer term;

(iii) to provide sufficient enabling infrastructure and amenity/environmental safeguards.

In PPG21 the Government's policy is that tourism should flourish in response to the market while respecting the environment which attracts visitors but also which has a far wider and enduring value. Tourism is not a major land-use issue in the rural parts of West Berkshire. The Council generally supports the provision of tourist accommodation as part of 'farm diversification' schemes and in line with Structure Plan policy R7.

7.1.6A Sport England advises on all aspects of planning for sport and recreation. The Countryside Commission can advise on planning for recreation in the countryside and provide technical advice on conservation and recreational planning policies. Where conflicts are likely between nature conservation and sport and recreation, it would be helpful to obtain advice from English Nature. The former Sports Council's policy position on sport in the countryside is set out in its publication:- Countryside Policy for Sport and Recreation: A Countryside for Sport 1991.

7.1.7 The Rural White Paper (October 1995) identifies recreation as an increasing demand on the countryside. Such demands have to be reconciled and positive management can help to prevent conflicts. The Government's priorities in this respect are: to promote countryside recreation, to pursue policies which enable people to enjoy the countryside close to where they live and to ensure that countryside recreation takes place in ways which cause no lasting damage to the environment and respects other rural interests. The Government published a revision to PPG17 in July 2002.

7.1.7A The Southern Council for Sport and Recreation produced a Regional Strategy for Sports and Recreation: Sporting futures (Sept 94) which emphasises the need for effective partnerships to facilitate the development of 'Sport for All'. This strategy is supported by West Berkshire Council which is keen to progress partnership developments to further such objectives.

7.1.8 Recreation must not be seen in isolation; sport and tourism are important too. In order to achieve a proper integration of these activities, their environmental impacts and contributions to the economy and well being of rural communities need to be assessed. The Countryside Commission is to develop collaborative programmes with the Rural Development Commission, Sport England and English Tourist Board to meet this objective. To improve rural accessibility the Government commends the Countryside Commission Parish Paths Partnership Initiative and wishes to identify further ways of encouraging direct management at a local level.

7.2.1 The Berkshire Structure Plan 1991-2006 encourages the provision of a wide and balanced range of leisure opportunities insofar as this is compatible with the maintenance of the character and quality of the County's environment. The series of Structure Plan policies on recreation and tourism are summarised below:

R1 encourages general leisure provision subject to any necessary controls over form and location to ensure that it does not damage and where possible enhances the environment, character and attractions of the area;

R2 supports measures which safeguard and improve informal recreation in the countryside including the protection of and enhancement of public rights of way;

R3 supports proposals for organised recreation in the countryside provided there is a need and it does not result in unacceptable disturbance, adverse change to the landscape or rural character and harmful environmental impacts;

R5 seeks public open space and recreational provision on a scale which reflects the needs arising from the development and in a form which complements the existing provision;

R6 states that development with the loss of built leisure facilities will be acceptable only if there is a comparable replacement in the locality as part of the scheme; and

R7 accepts the provision of tourism accommodation within settlement boundaries and well served by public transport, with the exception of

(i) the re use and minor extension of appropriate existing buildings in the countryside and

(ii) small scale camping and caravan sites appropriate to rural enterprises or countryside recreational facilities.

7.3.1 The Council has an adopted Recreational Strategy (February 1993). It seeks to identify opportunities which the Council may wish to pursue over the next ten years, having regard to partnership projects as well as direct schemes, in order to maximise community benefits. It is not an exhaustive list of recreational opportunities and projects but an attempt to demonstrate ways in which the Council may progress its recreational provision in the future. The overall aim is to secure a range of recreational and leisure opportunities for all sections of the community including those with disabilities and the elderly. The Strategy is presented as essentially a management tool based on the Council's existing recreational service areas. These are:

(ii) policies for the improvement and provision of facilities (based on existing recreational centres);

7.3.2 The Local Plan is primarily concerned with securing public open space and recreation provision from new development and in setting appropriate standards for that provision having regard to the present nature, scale and distribution of these facilities within West Berkshire. This raises issues not only of quantity but also of the range and quality of such facilities. Other important factors include accessibility and the range of local needs. There is also a close affinity between recreation, sport, leisure and community provision.

(i) to ensure the appropriate level and distribution of public open space and recreational facilities to meet local needs;

(ii) to improve available opportunities for recreation provision in West Berkshire and to make them accessible to as wide a section of the community as possible;

(iii) to seek improved access to the countryside in a manner which conserves its landscape and wildlife value, is sustainable in the long term, and which minimises the conflict between users, landowners and local residents;

(iv) to continue to support the restoration of the Kennet and Avon Canal and measures to enhance its recreational value, providing such measures do not demonstrably harm the environmental character and ecology of the canal;

(v) to identify and maintain an appropriate balance between recreation and nature conservation in areas important for both activities.

7.5.1 Public open space is land available to satisfy the recreation and leisure needs of the community. It can fulfil a number of functions including:

There are no statutory national standards with respect to how much public open space should be provided. Each location will vary and PPG17 states that it is for local planning authorities to justify the amount and location of new provision. In coming forward with a local standard the PPG advises that it may be helpful to consider the National Playing Field Association (NPFA) recommended standard.

7.5.2 The NPFA recommends a minimum standard for outdoor playing space of 2.43 hectares (6 acres) per 1,000 population but PPG17 also states that in addition open space is important in amenity terms and to the overall quality of the built environment.

7.5.3 Proposals for new housing will be acceptable only where they include appropriate public open space and recreational provision. Informal open space should normally be within the site and accessible safely by foot. This may not be possible for formal sports provision, in which case alternative arrangements such as contributions elsewhere may be appropriate. New rights of way should be provided to afford safe access to and between new and existing open spaces.

7.5.4 The former Newbury District Local Plan (1993) policy REC 1 had a public open space standard of between 3 and 4.3 hectares per 1,000 population in new residential development. The then Local Plan Inspector concluded that there was sufficient flexibility in the wording of this policy as well as the range itself to allow for local variation and generally that the policy was not unreasonable. He also considered the Council had sought to achieve a standard suitable for present day needs within new housing areas rather than trying to remedy overall deficiencies by requiring developers to provide for existing residents.

7.5.5 The standard of 4.3 hectares per 1,000 population has generally been adopted by the other Councils in Berkshire. The exceptions are Reading and Slough where to achieve such a standard would be unrealistic given their built up and urban natures. The adjoining local planning authorities outside Berkshire appear to be applying a public open space standard of 2.8 hectares per 1,000 population. It is against this background that a standard of between 3 and 4.3 hectares per 1,000 population remains reasonable and justified in the context of West Berkshire.

In respect of sheltered and other special needs housing, however , there may be greater flexibility applied in the application of this standard. The second part of Policy RL.1 explains the context.

7.5.6 The threshold of 10 or more dwellings was selected following a comprehensive audit of all open space and outdoor sports provision in West Berkshire, which concluded that, though there was a shortfall of over 50 hectares of such space across the district, no open space was required for developments of less than 10 dwellings.

POLICY RL.1 The Council will require, in new residential development of ten or more dwellings, the provision of between 3 and 4.3 hectares of public open space per thousand population in such form, scale and distribution as may be considered appropriate depending on local circumstances, together with associated facilities/equipment. The Council will seek the transfer of public open space to local authority ownership control in a condition appropriate for such use together with any appropriate sum for ongoing maintenance.

In the case of sheltered and special needs housing the provision of public open space will be negotiated on the particular type of accommodation and facilities, size of site, the balance of private/public open space needs, local circumstances and the provision and enhancement of nearby accessible and appropriate open spaces.

7.5.7 This public open space can be provided for in a number of ways as set out in policy RL.2. In applying the appropriate public open space standard the Council will not normally accept areas of less than 0.2 hectares (0.5 acres) in size, unless adjoining an existing area where the total together would exceed the minimum viable size. The average occupancy rate per dwelling for the West Berkshire is 2.6 persons (1998).

7.5.8 Public open space should be genuinely available in perpetuity to the public at large. The Council will normally seek the transfer of public open space areas into local authority ownership/control in a condition appropriate for such use, and together with a reasonable sum for their ongoing maintenance as set out in Circular 1/97.

POLICY RL.2 The provision of public open space may be satisfied in the following ways:

(a) by allocating space on the development site itself;

(b) by making space permanently available through formal agreement on other land in the applicant's control which is readily accessible from the development site and appropriate for public open space/recreational use;

(c) in certain circumstances by making payment (subject to formal agreements) to meet the necessary public open space or other recreation requirements within a reasonable distance of the development site. The Council will accept such a payment only if it is able to provide new public open space or other appropriate recreation facilities easily accessible to the development site within a reasonable period of time;

(d) by a combination of (a), (b) and (c).

7.6.1 Policies RL.1 and RL.2 of the Local Plan set out the public open space standard and the process of that provision. The purpose of this policy is to set out the criteria which the Council will use, in discussions with developers, to select appropriate public open space and recreation sites and the nature of that provision. These are judgmental criteria and are not mutually exclusive.

7.6.2 In most cases a balance needs to be set between recreation and amenity. The areas of land allocated/identified for public open space use need to be interesting and with sufficient diversity and quality to fulfil a variety of recreational roles, both formal and informal. Such areas also need to be readily accessible from the surrounding development and clearly defined with good access for maintenance and management purposes. In general a scatter of small areas has less recreational potential than one or two larger areas. Recreation/public open space areas need to be designed for both informal and formal activities - with a balance between them that is appropriate to local needs and circumstances. Recreation/public open space provision needs to be an integral part of any development brief prepared for major housing development (it should not be treated as an after use for the residual land but as a key element determining in part the overall quality of the scheme). Having regard to Local

Plan policy ENV.15, and where practical to do so, public open space/recreation land should avoid using the 'best and most versatile land'.

POLICY RL.3 The Council when considering the public open space requirement in connection with a residential development proposal (Local Plan policy RL.1 refers) will seek a 'quality' provision, the acceptability of which will be judged against the following criteria:

(a) the nature, diversity and attractiveness/condition of the land being offered; and

(b) its suitability for an appropriate range of recreational activities both formal and informal; and

(c) the provision is compatible with wildlife conservation and sites of ecological or archaeological importance; and

(d) the location of different recreational facilities within the public open space area(s) can be accommodated without undue disturbance or harm to the amenity of adjoining residents and landowners.

(e) the proposed public open space area(s) is easily accessible from adjoining development areas by foot, cycle and public transport where appropriate; and

(f) the public open space provision is not unduly fragmented into a number of small areas which thereby limits its recreational value and potential. Ideally public open space provision should be grouped into larger 'park areas' where both formal and informal recreation activities can be properly integrated and managed.

7.6.3 The above criteria are not presented as absolute requirements but need to be taken together in assessing the suitability of a particular land area or site for public open space/recreational use. It is normal practice to seek advice from the Council's Culture and Youth and/or Countryside and Environment Services on the nature and suitability of public open space/recreation provision within major development schemes.

7.7PROTECTION OF EXISTING PUBLIC AND PRIVATE OPEN SPACE AND RECREATION FACILITIES

7.7.1 The Council considers there is a need to protect both public and private open space in West Berkshire given local pressures and demand.

7.7.2 Where redevelopment or change of use of existing open space and/or recreation facilities is proposed, there will be a requirement for alternative areas and/or facilities which offer replacement or improved provision. The determining factors will be the quality of the alternative provision and its access arrangements, including provision for the disabled.

7.8.1 The purpose of this policy is to ensure the retention of allotment land or its alternative use as public open space has first priority. Allotments are predominantly found within or adjoining settlements for ease of access. They are often part of the established character and amenities of the area and need to be safeguarded from development pressures.

POLICY RL.4 The Council will normally resist the loss of allotment land unless suitable alternative provision is to be made, or if surplus to requirements is to be first considered for general public open space or recreational use having regard to the character of the area and local deficiencies in such provision. Applications for the development of allotment land will be judged against the following criteria in regard to the alternative site to be provided:

i. the horticultural value of the replacement site

ii. the access and parking provision at the new site

iii. the accessibility of the new site in locational terms.

7.9.1 Public rights of way are an important recreation resource and for many people their use provides the best way to experience and enjoy the countryside. One of the key aims of the Council is to seek improved access to the countryside for informal recreation purposes. In this context and generally as part of its countryside management initiatives, the Council will seek to improve and extend public rights of way; negotiate access agreements with landowners and to introduce recreational amenities on to suitable land within its control. At a strategic level the Council supports provision of the Thames Path National Trail, improving access along the Kennet and Avon Canal which is designated as a Long Distance Waterway Walk and the Lambourn Valley footpath which links the Kennet Valley with the Ridgeway. In view of the importance of Greenham Common for informal recreation and public access the Council has negotiated the provision of public rights of way on the common

7.9.2 Notwithstanding the detailed nature of Structure Plan policy R2 which sets out a range of measures to safeguard and improve informal recreational in, and access to, the countryside, it is still felt necessary amplify this with a specific policy in the Local Plan.

POLICY RL.4A The Council will safeguard and, where appropriate, seek the enhancement and expansion of the public rights of way network and recreational cycle routes. The Council, in consultation with interested bodies, organisations and landowners, will investigate and where appropriate and practicable, implement opportunities for improving public access to the countryside for informal recreation where such provision can be accommodated without detriment to the landscape, agriculture, the rural character of the area, or the amenities of local residents.

7.10.1 An issue raised by the Sports Council (now Sport England) at the deposit stage of the plan was the omission of a policy dealing with noisy sports in the countryside. In the view of the Sports Council there was a clear demand for noisy sports in the area and where there was a clear demand the planning authority should seek to identify sites.

7.10.2 Recreation/sporting activities can take place for up to 28 days in any one year on open land not forming part of the curtilage of a building, other than motor sports where the limit is 14 days. Therefore much of this activity takes place outside of the need for specific planning permission.

7.10.3 An analysis of planning applications in West Berkshire since 1991 for what may be termed 'noisy sports' does not show a significant level of demand or pressure, such as to justify the need for either site specific identification or allocation. Furthermore, no specific sites for such uses have been identified or suggested in the Local Plan consultation responses.

7.10.5 In the circumstances it was not considered necessary to recognise or identify any particular site or sites in West Berkshire for noisy sporting activities. In addition Structure Plan policy R3 and para 12.14 set out the environmental factors against which such proposals in the countryside should by judged. The Council will therefore rely upon this policy should proposals for such development be made.

7.11.1 Policy E10 of the Structure Plan is concerned with protecting the character and setting of rivers, canals and streams. Particular attention will be paid to safeguarding the environment of the Kennet and Avon Canal and development likely to give rise to a significant increase in boating traffic will normally be resisted. It is therefore necessary for the Local Plan to set out the criteria which will be used in considering proposals for boating and moorings development along the Canal.

7.11.2 The following policy is based on policy KA7 from the 1993 District Local Plan. Extensions, additions and intensification of existing boating facilities will be judged against criteria (a), (b), (d) and (e) of Policy RL.5.

POLICY RL.5 The Council will permit proposals for the provision of mooring basins on the Kennet and Avon Canal only where the moorings basin together with ancillary buildings, the access arrangements and other uses specifically related to the use and enjoyment of the canal are:

(a) not located in an area or in a form which would demonstrably harm the character or landscape setting of the canal or adversely effect the intrinsic ecological value of the canal; and

(b) are not intrusive into open countryside or prejudicial to the wider landscape character; and

(c) are located within or on the edge of an existing settlement or other built up area; and

(d) would not result in significant harm to the amenity of nearby residents; and

(e) can be satisfactorily provided with services, access and parking; and

(f) includes the provision of watering, sewerage and refuse/recycling collection facilities for boat users of the moorings and the Canal.

7.11.3 The Kennet and Avon Canal is recognised as an important recreation and leisure resource. Policy KA.7 from the NDLP (1993) set a limit of 300 new moorings on the West Berkshire section of the canal. The position in May 2002 was that there were 404 existing berths and commitments for a further 209 giving an overall total of 613 berths. The length of the canal in West Berkshire is 22 miles or 24% of the total canal length.

7.11.4 British Waterways has set out its intentions for the Kennet and Avon Canal in various documents . It considered there was a need for 1500 private boat moorings by the year 2000, compared to the current provision of 1300. The NDLP (1993) provisions figure (300 new mooring berths) was based on a total requirement of 1,500 permanent moorings (net 1,150) taken from the British Waterways Leisure Strategy of August 1987. It is therefore generally considered by the Council that adequate provision has been made for new moorings on the West Berkshire section of the Kennet and Avon Canal, and that any significant increase over and above these levels should be resisted.

7.12.1 The River Thames is an asset of national significance in West Berkshire. Notwithstanding Policy EN10 in the BSP and ENV.14 in this plan , a specific policy on the future of recreation development on the Thames is needed;

POLICY RL.5A The Council recognise the recreational value of the Thames and the need to protect the particular environment and setting of the river within West Berkshire. It will permit proposals for recreational schemes only where it is not located in an area or proposed in a form which would:

i. harm the character or landscape setting of the river

ii. significantly increase use of the river by boats

iii. harm the amenity and informal recreational value of the river, or

iv. reduce or inhibit public access to the riverside or prejudice the Thames path

Permanent moorings will only be granted in appropriate off river locations specifically provided to replace existing permanent moorings in the main river channel.

7.13.1 Thatcham Moors is an area of some 280 hectares, lying to the south west of Thatcham. The need is to reconcile the potential conflict between recreation and the important nature conservation interests found within the area. This was initially examined in a report entitled: Thatcham Moors - Nature Conservation and Recreation Area, published by the then Newbury Council in conjunction with the then Nature Conservancy Council and the former Berkshire County Council in 1979.

7.13.2 Since 1979 mineral extraction has ceased in the area to the east of Princehold Road. A footpath has been constructed from Pound Lane to Muddy Lane to complete the circular walk north of the railway. In addition tipping has ceased on the land west of Muddy Lane and landscaping on this area undertaken by Berkshire County Council is now well established. Despite the presence of the Thatcham Sewage Works further to the west, this land has potential for informal recreation use. There is also further potential for the recreational use of land between the Lower Way Sports Field and Muddy Lane to the west.

7.13.3 The existing lakes, with one exception, are owned by angling societies, which with predominantly local membership provide and maintain a leisure facility of considerable benefit. Public access to these areas is however limited and these lakes are not available or suitable for more active forms of water based recreation.

7.13.4 The lake and lake side margins to the east of Muddy Lane are in the ownership of the Council. This area of some 10 hectares (approximately two thirds water area) is used for recreational provision including family picnic areas. On the north side of the lake close to the nature reserve is a specialist 'Nature Discovery Centre' developed in partnership with the RSPB and English Nature. A management strategy has also been prepared for the Thatcham Reed Bed area.

7.13.5 In line with the Berkshire Structure Plan the Council in considering the suitability of different recreational uses in this area, will draw a distinction between informal and formal recreation activities and their respective impacts on the nature conservation value and character of the area. There is also the potential for wildlife enhancement and public enjoyment of wildlife.

POLICY RL.6 The Council will permit and encourage the recreational use, including new footpaths, of land at Thatcham Moors (as identified on inset map 1) provided that it does not harm the present area of the reed beds, put at risk the established natural habitat, flora and fauna, reduce the scientific value of Thatcham Moors, or significantly harm the amenities of nearby residents. The Council will also seek future wildlife enhancement and the public enjoyment of wildlife on the moors.

7.13.6 The Council recognises the combined importance of Thatcham Moors and adjoining land to the east and south including Chamberhouse farmland, and the SSSI for nature conservation and appropriate recreational

pursuits. The Council would wish to be involved with the production of a management plan for the entire area including the restoration of the Chamberhouse Farm mineral extraction site. Such a project will need the commitment of the council together with other funding agencies. Much work is required to establish the extent of such an area and to ensure a balance of uses and measures which will respect and enhance the nature conservation importance of the area and public enjoyment of wildlife.

7.14.1 The Lower Kennet Water Park is an area of some 500 hectares of land and water bounded to the north by the River Kennet and the Kennet and Avon Canal. It contains a series of wet gravel pits some of which are still being excavated. The size, location and suitability of the lakes for water based recreation and nature conservation means that the area has further potential to develop as a major leisure resource.

7.14.2 Structure Plan paragraph 12.14 identifies the need for a range of water based activities at each of the larger concentrations of water areas which includes the Kennet Valley. There is also a need for such activities to respect the character of the water areas concerned.

7.14.3 This policy is concerned with water based recreation and associated facilities plus the improvement of informal access for the public through the provision of appropriate access arrangements. In this respect Structure Plan policies R2 and R3 will be appropriate plus the distinction to be made between 'formal' and 'informal' recreation provision. The Council will also take into account the conservation policies within Reading Borough which apply to the land adjoining this park to the north.

POLICY RL.7 The Council will permit proposals for the recreational use of land and water areas within the Lower Kennet Water Park (inset map 3) subject to provision of satisfactory access and parking facilities and where such development would not be materially detrimental to the rural character and landscape quality of the area, nature conservation interests, highway safety, or the amenities of nearby residents or other users of the area.