The Belfry Hotel
Planning Statement
July 2007 The Belfry Hotel
Planning Statement
July 2007
QUINN HOTELS
PROPOSED REDEVELOPMENT OF THE BELFRY HOTEL, NORTH WARWICKSHIRE
PLANNING STATEMENT
July 2007
CL10296/JG/rc
Nathaniel Lichfield & Partners Ltd 1st Floor 26 King Street Manchester M2 6AY Offices also in: T 0161 837 6130 Cardiff F 0161 833 3741 London E [email protected] Newcastle-upon-Tyne www.nlpplanning.com CONTENTS
1.0 INTRODUCTION………………………………………………………………… 1 2.0 PROPOSALS……………………………………………………………………..3 3.0 PLANNING HISTORY……………………………………………………………7 4.0 PLANNING POLICY……………………………………………………………. 11 5.0 PLANNING ISSUES……………………………………………………………. 35 6.0 LOCATIONAL CONSIDERATIONS………………………………………….. 36 7.0 CONFORMITY WITH GREEN BELT POLICY………………………………. 46 8.0 SPORTING BENEFITS………………………………………………………… 51 9.0 TOURISM OBJECTIVES………………………………………………………. 54 10.0 ECONOMIC BENEFITS……………………………………………………….. 58 11.0 ARCHITECTURE AND DESIGN……………………………………………… 60 12.0 SUSTAINABLE DEVELOPMENT…………………………………………….. 63 13.0 TRAFFIC AND TRANSPORT IMPLICATIONS……………………………… 66 14.0 COMPLIANCE WITH EMPLOYMENT LAND POLICIES………………….. 70 15.0 CONCLUSIONS………………………………………………………………… 71
APPENDIX 1 - LOCATION PLAN APPENDIX 2 – PLANNING HISTORY
MA2006\R.10296-002 (PLANNING STATEMENT) JULY 07
1.0 INTRODUCTION
1.1 This report is prepared by Nathaniel Lichfield & Partners Ltd (NLP) on behalf of Quinn Hotels. It accompanies a full planning application for the redevelopment of The Belfry, North Warwickshire for a new 5* hotel, world class golf club, new Professional Golfers Association (PGA) national training academy, new access and car parking arrangements, and associated facilities.
The Submission
1.2 The completed application forms, relevant certificates, plans and this Planning Statement are accompanied by the following reports, which together comprise the application submission:
Environmental Statement: This statement, prepared in accordance with the Town and Country Planning (Environmental Impact Assessment) (England and Wales) Regulations 1999, provides a full account of the environmental issues associated with the application proposals.
Transport Assessment: Prepared by Denis Wilson Partnership, this report assesses the capacity of the local highway network to accommodate the proposed redevelopment; and any transport impacts that arise from the proposals.
Travel Plan: The report assesses the accessibility of the site and proposes green travel measures to influence a modal shift away from the private car.
Design and Access Statement: Prepared by Reardon Smith Architects, this document provides a description of the approach that the scheme designer has taken to siting, building design and accessibility.
Sustainability Statement: Prepared by NDY, Nathaniel Lichfield and Partners, and Scott Hughes this Statement will outline how the development will deliver sustainable development objectives.
Statement of Community Involvement: This statement, prepared by PPS will provide a summary of the way in which the community have been involved in the development of the proposals.
Socio Economic Report: This report, prepared by Nathaniel Lichfield and Partners assessed the socio economic impacts of the proposed redevelopment.
Business Statement: Prepared by the Belfry, this document sets out the business rationale behind the proposed redevelopment.
Event Management Strategy: Prepared by Denis Wilson Partnership, this sets out a framework and methodology for managing future major events at the Belfry. 1
Landscape Masterplan: Prepared by HED, this assesses the visual impact of the proposal and establishes a landscape strategy as part of the redevelopment.
Purpose and Structure of the Report
1.3 The purpose of this report is to assess the proposal within the context of national, and local planning policy guidance.
1.4 The remainder of the Planning Statement is structured as follows:
Section 2.0 describes the proposed redevelopment in detail, providing information on the Quinn Group and their portfolio of quality hotels and leisure facilities in the UK and Europe. It continues with a description of the proposed development, with reference to the design approach, and a schedule of proposed facilities.
Section 3.0 outlines the planning history of the site, which demonstrates how the site has been developed incrementally over the last 45 years.
Section 4.0 sets out the prevailing planning policy context within which the proposals should be considered, with regard to policies at local, regional and national level.
Section 5.0 establishes the key planning issues that arise in this case.
Sections 6.0 – 14.0 provide an appraisal of the key planning issues.
Section 15.0 sets out the conclusions.
2
2.0 PROPOSALS
The Applicant
2.1 Quinn Hotels is part of the Quinn Group of companies based in Ireland which has grown and diversified rapidly over the past 30 years. Quinn own some of the finest four and five star hotels across the United Kingdom and Europe including:
The Slieve Russell Hotel and The Buswells Hotel Ireland;
The Crowne Plaza, Cambridge;
The Holiday Inn, Nottingham;
The Hilton, Prague;
The Hilton, Sofia, Bulgaria; and
The IBIS, Prague.
2.2 Quinn’s Hotels seek to provide a mix of top class accommodation, a range of modern business facilities and outstanding leisure facilities.
2.3 Quinn also operate the Iveagh Fitness Club, Christ Church, Dublin which is the cities’ largest top class fitness club, and a number of public houses across Dublin and one in Cambridge.
Site Description
2.4 The application site extends to approximately 203 hectares. Existing built development within the site is concentrated to the south and comprises the following:-
The Belfry Hotel complex which comprises a 324 bedroom hotel, a leisure club, function rooms and supporting facilities including a selection of restaurants, a Golf Centre including pro-shop, and changing facilities;
The PGA golf centre and national training academy;
A driving range located in front of the PGA centre to the south of the main hotel;
The Bel Air night club; and,
Surface car parking for approximately 1400 vehicles, located to the south and west of the main hotel buildings predominantly within the woodland areas
3
between the hotel and the Tamworth Road, to the east of the driving range; and,
The assistant managers dwelling, situated adjacent to Tamworth Road.
2.5 The existing group of buildings on site have evolved incrementally and display a poorly integrated mix of architectural styles. The buildings in general are not of any particular architectural merit and fail to project a sense of place. The most significant and recognisable building within the complex is the adapted former stable house, which now forms part of the hotel. However, this building has been adapted significantly over the years and is not considered to be of sufficient value to be retained.
2.6 In addition to the above, the wider complex provides three golf courses, including the world famous Brabazon course.
2.7 The main vehicular access to the site is currently achieved from Lichfield Road (A446). A secondary access is provided from the A4091.
2.8 A site location plan is attached to this report at Appendix 1
Surroundings
2.9 The Belfry is set in the North Warwickshire countryside, located to the north of Coleshill, approximately one kilometre from M42 Junction 9, which also provides access to the M6 Toll Road. The Belfry is located to the immediate north of the A446 and the A4091 at a roundabout that also provides southbound access via Junction T2 from the M6 Toll Road.
Background to the Proposal
2.10 The Belfry as it currently stands has evolved since the 1970’s as a hotel and golf resort. It has a strong reputation and image, partly as a result of hosting the Ryder Cup four times and accommodates one of the most famous championship golf courses in the world. It is also home to the PGA and their associated training academy.
2.11 Notwithstanding the reputation of the Belfry, it currently fails to fully maximise the potential of the venue as a high class hotel and leisure destination. In particular, the incremental extensions and alterations to buildings over the years have resulted in a sprawling development that projects a poor appearance and fails to function 4
effectively. The current layout makes it difficult for users to orientate themselves and it has no sense of place.
2.12 The current situation is that guests at the Belfry are often remarking that the experience did not meet with their expectations and the business performance of the complex is declining. The current size of the hotel is also a constraining factor that prevents potential business from being captured. Further details are provided in the Business Statement document, produced by the Belfry.
2.13 Prior to coming forward with these redevelopment proposals, the client considered a range of options for improving facilities. In particular, careful consideration was given to refurbishing the existing buildings. However, it was clear that such an approach would only ever deliver short term cosmetic improvements and would not address the fundamental problems associated with the poor layout of the existing buildings. The decision was consequently taken that the only way to significantly improve the standard of accommodation and deliver environmental improvements is through comprehensive redevelopment.
2.14 The objective of the proposals is to establish the Belfry as a world-class hotel and resort destination and enable it to offer sporting, business, leisure/spa and bedroom accommodation of an international standard, such that major sporting events including future Ryder Cup events can be secured and that the venue can retain its status as the hotel for such events.
2.15 Further details on the background to the proposals, and in particular the specific need for the type of development proposed are set out in the Planning Issues section of this document.
Planning Application Proposals
2.16 This application seeks planning permission for the redevelopment of the site to provide a new 5* hotel and golf resort comprising the following:-
A new contemporary 5 storey (plus sub ground floor and mezzanine accommodation) hotel building comprising 54,614 sq m of floorspace (gross), providing 500 bedrooms; leisure facilities, including a gym, studio and swimming pool; spa facilities including therapy and treatment rooms; 2 restaurants and 2 bars; meeting rooms; and, function and event facilities;
A new ‘Brabazon’ golf club building, providing 7373 sq m of floorspace (gross) 3 storeys (plus sub ground floor accommodation) including a viewing terrace at 3rd 5
floor level and providing a club house; 2 bars; pro golf shop; changing facilities; and, equipment and golf buggy storage. The new building will replicate the iconic elevation associated with the existing converted stable block and will align with the new hotel building and create a better relationship with the 18th hole of the Brabazon golf course.
A new 2 storey PGA National Academy building to the immediate north of the driving range, providing 2494 sq m of floorspace (gross) including a lecture hall and training academy accommodation, linked to a new single storey golf driving range building proving swing studios and teaching bays;
A new driving range;
1,600 car parking spaces, comprising 900 spaces at sub ground floor level (beneath the driving range) and 700 surface car parking spaces, provided in 2 distinct zones;
A new single storey energy centre comprising1000 sq m floorspace (gross) and providing chillers, cooling towers, biomass and gas fired boilers, and other plant.
The construction of a new entrance from the roundabout at the intersection of the Tamworth and Lichfield Road and rationalisation of existing accesses to form the main gateway entrance to the site. Staff and service vehicles will use the existing access on the A4091Tamworth Road. The current main entrance on Lichfield Road will be closed following completion of the redevelopment and is proposed to be configured for emergency vehicles only.
Associated landscaping;
2.17 All existing buildings on the site will be replaced through the redevelopment. The redevelopment will be phased in order to maintain hotel and golfing operations as far as possible during the construction period.
2.18 Full details of the design rationale for the proposed development are provided in the accompanying design and access statement.
6
3.0 PLANNING HISTORY
3.1 Since opening in the 1960s, as a restaurant in the converted Moxhull Hall stables, the application site has seen incremental extension and redevelopment. This is reflected in the site’s lengthy planning history, a copy of which is attached to this statement at Appendix 2.
3.2 A summary of the site’s development is as follows:
Planning permission was granted in1960 to convert the building from a dwelling to a hotel. Further to this, a series of alterations/additions were made to the hotel during the 1960s. These included: two restaurants, staff accommodation, converting the coach house to flats, a new office, new bedroom annexe and new bedroom wings, extension to a bedroom wing, new lounge, new kitchens and an extension to a kitchen, conversion of stables to living accommodation, a dwelling for the manager, additional bars and subsequent extension of bars, new gaming room, sauna, conservatory, converting and extending an existing lodge for use by staff, cloakrooms and lavatories.
In 1975 the Brabazon and Derby golf courses were granted planning permission and the developments were implemented shortly after.
A new 48-bedroom wing (The Jacklin Suite) was granted permission in 1982 and completed by 1984.
Other developments permitted during the 1970s and 1980s included a new 60- bedroom wing, two restaurants, new car parks and access arrangements, the Bell Air nightclub, a new health club including a swimming pool, squash courts, saunas and solaria, a new golf shop.
A 58-bedroom extension was permitted in 1987 and completed by 1989 (Floyd House).
Developments permitted during the early 1990s included alterations and extensions to restaurants and kitchens, new function hall, mounding and alterations to the Brabazon golf course, erection of a gymnasium, erection of a restaurant and erection of an accommodation training and conference complex,
3.3 Development at The Belfry since the late 1990s onwards has been guided by the ‘Ten Year Development Strategy’ which was agreed with North Warwickshire Borough Council following its submission in 1996 and which promoted thirteen development projects at the Belfry. Text from the Ten Year Strategy relating to these development projects is set out below alongside a brief description of planning applications subsequently submitted to enable their implementation.
7
3.4 It is believed that all major applications outlined below have been implemented apart from those related to the new access/roundabout approved in March 2000.
(1) Golf Club and Facilities
3.5 The Ten Year Plan proposed to refurbish the existing golf club which is located to the rear of the Hotel overlooking the Derby Golf Course to provide additional facilities with an improved golf shop, changing rooms, a reception area and an extension to the existing restaurant area.
3.6 An application was approved in August 1996 to extend the Golf Club with additional accommodation above to include 25 beds. This was followed in May 1997 by an approval for a machinery storage building and change of use of existing building to workshop, changing rooms, storage and office.
3.7 Alterations to Brabazon Golf Course were approved October 1996 and alterations to the existing Derby and PGA Golf Course were approved October 1998.
(2) Driving Range
3.8 The Ten Year Plan identified that a new two-tier driving range would be erected to replace the existing single-tier facility. An application to replace the golf driving facility with additional teaching rooms was approved in January 2002.
(3) Trevino Wing Extension
3.9 An accommodation block to the rear of the Hotel as an extension to the existing Trevino Wing was proposed by the Ten Year Plan. This was implemented following the approval of an application to extend the Trevino block providing 36 additional bedrooms in August 1996.
(4) Leisure Centre Complex
3.10 The Ten Year Plan identified that the proposed leisure complex would, to a large extent, be constructed within the existing built area of the hotel with existing facilities to be retained. Additional facilities were to be provided as an extension to the existing built area.
8
3.11 As a result, the leisure complex has been extended, which has been enabled by two applications for extensions to the leisure complex: one approved in September 1994 and the other in September 1998.
(5) Tennis Courts
3.12 The Ten Year Plan identified that the existing single tennis court would be replaced with four new tennis courts.
3.13 Three new tennis courts have been erected following the granting of permission in September 1996.
(6) Staff and Belfry Support Centre
3.14 The Ten Year Plan provided that a purpose built training facility with associated accommodation and new service, distribution and maintenance facility would be built. However, no planning applications were submitted for this element.
(7) PGA Headquarters
3.15 The PGA administrative offices were identified by the Ten Year Plan as inadequate for the PGA’s needs. The Ten Year Plan proposed the relocation of the PGA to new, purpose-built Headquarters.
3.16 An application to extend the PGA Academy to provide PGA Headquarters was approved in March 1998 and an application to further extend the PGA Headquarters was approved in July 2000.
(8) Extension to Bel Air Night Club
3.17 The Ten Year Plan identified that minor amendments to and extensions of The Belfry’s Bel Air Night club was proposed. This has been implemented following approval of an application for alterations and extensions to provide new entrance, improved kitchen facilities, staff area, extended dance floor and barbeque stand in September 1998.
(9) Conference Complex
9
3.18 In order to attract the valuable conference market, the Ten Year Plan proposed that a new conference complex would be erected as an extension to the existing Hotel.
3.19 An application was approved in September 1998 for the following development which has since largely been implemented: extension to the Warwick Suite (to enhance conferencing), extension of the Stafford Room (to improve servicing), extension of the Apollo Suite, lounge and enhanced conferencing facilities, extension of kitchen area and new entrance/lobby area.
(13) Infrastructure
3.20 The main infrastructure proposal of the Ten-year Plan was for the new access/roundabout which was approved in March 2000. However, this permission was never implemented and has now lapsed.
3.21 Other applications relating to infrastructure include applications for provision of sewage extension capacity, water tanks and a pump house, electricity sub-stations, amendments to an internal access road, replacement of a generator.
Other Applications
3.22 There has also been applications approved for the replacement of the Managers House (approved March 1999), for a helicopter landing pad (approved July 2004) and for an entrance feature of a bell/dock tower (approved September 1999).
3.23 There have been a number of temporary applications at The Belfry, most of which are associated with temporary structures to enable services to continue during construction of enhanced facilities. For example, temporary accommodation for the golf centre, temporary car parks, temporary marquees and a temporary television compound.
Conclusion
3.24 The substantial amount of planning history reflects the incremental growth of the Belfry over a number of years. The ad-hoc approach has resulted in a sprawling development displaying a variety of architectural styles, which relate poorly to each other. The development lacks any sense of overall cohesion and is poorly integrated.
10
4.0 PLANNING POLICY
Introduction
4.1 This section of the report assesses the planning policy context for the application proposals. Consideration is given to both national and local planning policy guidance. Other material considerations that need to be considered include guidance documents on tourism and economic development.
National Planning Policy Guidance
4.2 The following summarises the national planning policy guidance that is relevant to the consideration of this development proposal.
Planning Policy Statement 1: Delivering Sustainable Development (February 2005)
4.3 This PPS provides guidance on the operation of the plan-led system and plays a key role in supporting the Government’s wider social, environmental and economic objectives to achieve sustainable development. Paragraph 8 reiterates that where the development plan contains relevant policies, applications for planning permission should be determined in accordance with the plan, unless material considerations indicate otherwise.
4.4 PPS1 also promotes the bringing forward of sufficient land of a suitable quality in the right locations to meet expected needs for commercial development to provide growth for consumer choice.
4.5 Paragraph 29 of PPS1 acknowledges that in some circumstances, a planning authority may decide in reaching a decision to give different weight to social, environmental, resource or economic considerations. Where this is the case, the reasons for doing so should be explicit and the consequences considered. Adverse environmental, social and economic impacts should be avoided, mitigated, or compensated for.
11
PPG2: Green Belts (1995)
4.6 The site is located in the statutory Green Belt, where PPG2 restricts development to that which is necessary and appropriate. Paragraph 1.5 notes that there are five purposes of including land in Green Belts:
To check the unrestricted sprawl of large built-up areas;
To prevent neighbouring towns from merging into one another;
To assist in safeguarding the countryside from encroachment;
To preserve the setting and special character of historic towns; and
To assist in urban regeneration, by encouraging the recycling of derelict and other urban land.
4.7 Paragraph 2.1 states that:
‘the essential characteristic of Green Belts is their permanence. Their protection must be maintained as far can be seen ahead’.
4.8 Paragraph 3.1 states that there is a general presumption against inappropriate development in the Green Belt and that such development should not be approved, except in very special circumstances. Inappropriate development is, by definition, harmful to the Green Belt. Very special circumstances to justify inappropriate development will not exist unless the harm is clearly outweighed by other considerations (paragraph 3.2).
4.9 Paragraph 3.4 explains that the construction of new buildings inside a Green Belt is inappropriate unless it is for the following purposes:
agriculture and forestry;
essential facilities for outdoor sport and outdoor recreation, for cemeteries, and for other uses of land which preserve the openness of the Green Belt and which do not conflict with the purposes of including land in it;
limited extension, alteration or replacement of existing dwellings;
limited infilling in existing villages and limited affordable housing for local community needs under development plan policies according with PPG3; or
limited infilling or redevelopment of major existing developed sites identified in adopted local plans, which meet certain criteria.
12
4.10 Annex C provides guidance on the future of major developed sites in the Green Belt. It notes that such sites remain subject to development control policies for Green Belts (paragraph C1). Paragraph C2 states that:
“If a major developed site is specifically identified for the purposes of this Annex in an adopted Local Plan or UDP, infilling or redevelopment which meets the criteria in paragraph C3 or C4 is not inappropriate development”
4.11 It is recognised at paragraph C4 that the complete or partial redevelopment of major developed sites may offer the opportunity for environmental improvement without adding to their impact on the openness of the Green Belt and the purposes of including land within it. Where this is the case, local planning authorities may in their development plans identify the site, setting out a policy for its future redevelopment.
4.12 Redevelopment should:
a) Have no greater impact than the existing development on the openness of the Green Belt and the purposes of including land in it;
b) Contribute to the achievement of the objectives for the use of land in Green Belts;
c) Not exceed the height of existing buildings; and
d) Not occupy a larger area of the site than the existing buildings (unless this would achieve a reduction in height which would benefit visual amenity) (paragraph C4).
4.13 The character and dispersal of the proposed redevelopment will need to be considered as well as its footprint. The location of the new buildings should be decided having regard to the openness of the Green Belt and the purposes of including land in it, the objectives for the use of land in Green Belt, the main features of the landscape, and the need to integrate the new development with its surroundings (paragraph C6).
4.14 Para 3.13 specifies that when any large scale development or redevelopment of land occurs in the Green Belt, and should so far as possible contribute to the achievement of the objectives for the use of Green Belts.
4.15 The visual amenities of the Green Belt should not be injured by proposals for development within or conspicuous from the Green Belt.
13
PPS6: Planning for Town Centres (March 2005)
4.16 PPS6 places emphasis on town centre locations as the focus of new development. In determining the location of new retail and leisure development, existing centres should be considered before edge of centre locations and finally out of centre sites.
4.17 Paragraph 1.8 of PPS6 clearly defines the town centres uses to which this document applies. These uses include:
Retail;
Leisure and entertainment facilities and the more intensive sport and recreation uses (such as cinemas, restaurants, drive through restaurants, bars and pubs, night clubs, casinos, health and fitness centres, bowling alleys and bingo halls);
Offices, both commercial and those of public bodies;
Arts, culture and tourism (theatres, museums, galleries and concert halls, hotels and conference facilities); and
Small scale community facilities (including health centres, pharmacies, post offices, libraries and job centres)
4.18 Paragraph 3.4 states that when assessing proposed developments for ‘town centre uses’, which do not fall within an existing centre and are not consistent with the relevant up-to-date development plan, applicants are required to demonstrate:
a) The need for development;
b) That the development is of an appropriate scale;
c) That there are no more central sites for the development;
d) That there are no unacceptable impacts on existing centres; and
e) That locations are accessible.
4.19 As a general rule, the development should satisfy all these considerations. However, there may be exceptions, where the overall weight of evidence justifies favourable treatment even if the development performs poorly against one or more of the considerations. In making their decision, local planning authorities should also consider relevant local issues and other material considerations (paragraph 3.5).
4.20 The policy tests apply to all proposals which are located beyond the town centre and not in accordance with an up to date development plan. The amount and nature of
14
information and analysis required should be proportionate to the scale and nature of the proposal and in relation to the size and role of the centre (paragraph 3.7).
4.21 In assessing the need and capacity for additional retail and leisure development, local planning authorities should place greater weight on quantitative need for additional floorspace. However, Local planning authorities should also take account of qualitative considerations (paragraph 2.33).
4.22 PPS6 notes at paragraph 3.19 that if applicants do not consider that there are sequentially preferable sites, appropriate evidence should be provided on:
Availability;
Sustainability; and
Viability.
4.23 Significantly, however, at paragraph 3.28, PPS6 states that other material considerations to be taken into account in assessing planning applications may include physical regeneration, employment opportunities, economic growth and social inclusion.
PPS7 Sustainable Development in the Countryside (July 2004)
4.24 PPS7 applies to rural areas, including country towns and villages and the wider, largely undeveloped countryside.
4.25 Paragraph 5 is clear that “planning authorities should support a wide range of economic activity in rural areas”.
4.26 Paragraph 19 outlines the circumstances in which the government support the replacement of buildings in the countryside:
“the Government is supportive of the replacement of suitably located, existing buildings of permanent design and construction in the countryside for economic development purposes. The replacement of buildings should be favoured where this would result in a more acceptable and sustainable development then might be achieved through conversion, for example, where the replacement building would bring about an environmental improvement in terms of the impact of the development on its surroundings and the landscape”.
15
4.27 Paragraph 34 recognises that tourism and leisure activities are vital to many rural economies. The specific importance of providing facilities for tourist visitors is recognises by paragraph 35, which notes that:
“The provision of essential tourist facilities is vital for the development of the tourism industry in rural areas. Local planning authorities should:…
(ii) allow appropriate facilities needed to enhance visitor’s enjoyment, and/or improve the financial viability, of a particular countryside feature, or the surrounding countryside”.
4.28 Paragraph 36 specifies that wherever possible, tourist and visitor facilities should be housed in existing or replacement buildings, particularly where they are located outside existing settlements.
4.29 Paragraph 38 seeks to ensure that Local Planning Authorities adopt a positive approach to proposed extensions to existing tourist accommodation where the scale of the extension is appropriate to its location and where the extension may help to ensure the future viability of such businesses.
PPG13 Transport (March 2001)
4.30 PPG13 seeks the development of integrated transport policy and considers land use planning to have a significant role to play in shaping development patterns and influencing the location, scale, density, design and mix of land uses. In addition, planning can help to reduce the need to travel, reduce length of journeys and make it easier to access employment opportunities, retail and leisure facilities and those developments served by public transport and pedestrians/cyclists.
4.31 PPG13 reaffirms the adoption of the sequential approach to site selection, stating that retail and leisure development should promote the vitality and viability of existing town centres as preferred locations (paragraph 35). However, where there is a need for development which cannot be accommodated in or on the edge of existing centres, it may be appropriate to combine the proposal with existing facilities which are (or are capable of being) well served by public transport, subject to improvements being negotiated by the planning system.
4.32 PPG13 advocates that leisure development should offer a realistic choice of access by public transport. With specific reference to “leisure, tourism and recreation”,
16
paragraph 37 states that for development in locations which may not be well served by public transport, Local Authorities should:
“….consider the extent to which the proposal needs to be in the proposed location, including whether the development has a meaningful link with the particular location or attraction;
pay particular attention to the scale, layout, parking and access arrangements; and
seek measures to increase access to the site by sustainable transport modes, and the use of traffic management and appropriate parking policies near to the site” (paragraph 37).
PPG 17: Sport and Recreation (July 2002)
4.33 PPG 17 provides guidance in respect of sport and leisure proposals, relevant to the leisure element of the application. The guidance states that “open spaces, sport and recreation all underpin people’s quality of life” (planning objectives) and that Local Authorities must “ensure effective planning for open space, sport and recreation” (paragraph 1).
4.34 PPG17 recognises the value that recreational facilities can have in an area and that they are fundamental to delivering the following broader Government objectives:
supporting an urban renaissance;
supporting a rural renewal;
promotion of social inclusion and community cohesion;
health and well being; and
promoting more sustainable developments.
4.35 It is recognised that the provision of new open space, sports and recreational facilities may provide an opportunity to remedy deficiencies in provision (paragraph 12). Paragraph 13 provides further guidance on the opportunities presented by development to exchange the use of one site for another to substitute for any loss of open space, or sports or recreational facility, stating that:
“The new land and facility should be at least as accessible to current and potential new users, and at least equivalent in terms of size, usefulness, attractiveness and quality. Wherever possible, the aim should be to achieve qualitative improvements to open spaces, sports and recreational facilities”.
17
4.36 The Guidance recognises that the countryside around towns provides a valuable resource for the provision of sport and recreation. Local authorities are urged to encourage the creation of sports facilities in such areas and to ensure that such facilities are accessible by walking, cycling and public transport as alternatives to the use of the car (paragraph 25).
4.37 Paragraph 30 states that planning permission should be granted in Green Belts for proposals to establish or to modernise essential facilities for outdoor golf and recreation where the openness of the Green Belt is maintained.
4.38 Local authorities are encouraged by paragraph 18 to seek opportunities to improve the value of existing recreational land and sport facilities.
4.39 Local authorities are urged to assess the range of existing and future sporting/recreational needs of areas, including an establishment of the quantity, quality and accessibility of the existing provision (paragraph 1). To assess further needs, guidance is contained within ‘Assessing needs and opportunities: A companion guide to PPG17’.
Good Practice Guide on Planning for Tourism (May 2006)
4.40 The Good Practice Guide on Planning for Tourism replaced Planning Policy Guidance for Tourism (PPG21), with effect from September 2006.
4.41 The Good Practice Guide recognises that tourism is of crucial importance, through generating significant revenues, providing millions of jobs, supporting communities and helping maintain and improve important national assets (paragraph 2.1). The Guide places a particular focus on the contribution of tourism to the national and regional economy (paragraph 2.2) and on the local value of tourism. The broader benefits which tourism can bring to local communities are identified as including:
Being the focus of regeneration of urban and rural areas;
Providing a catalyst for growth in an area, raising its profile and stabilising out- migration;
Providing opportunities for retraining for the resident workforce and helping diversify over-specialised economies; and
Helping maintain and expand underused sports and recreation facilities in urban areas (paragraph 2.4).
18
4.42 Paragraph 2.7 specifies that the planning system must take a pro-active role in facilitating and promoting the implementation of good quality development. The planning framework for tourism states at paragraph 3.2 that development should:
Provide well designed, safe and accessible development, and create new opportunities that will improve the well being of individuals and the regeneration of communities;
Result in the more efficient use of land and bring forward sufficient land to meet a wide range of expected needs;
Provide a supportive framework for economic growth and successful business;
Create vibrant, vital and viable town centres;
Reduce the need to travel; and
Protect and enhance the natural and built environment and safeguard natural resources.
4.43 Chapter 5 examines some of the key planning issues which arise in considering proposals for individual tourism developments and the need to maximise access by sustainable modes of transport, minimise any congestion that development might give rise to, and ensure that particular sectors of the population are not discouraged from using the attraction when it is completed. It is recognised that some tourist developments are car dependent. However, wherever possible and feasible, proposals should seek to:
Locate the development close to public transport interchanges and bus routes;
Produce green transport plans; and
Establish a visitor management programme (paragraph 5.3).
4.44 Paragraph 5.4 recognises that there will be some occasions where development for tourism is sought at a location where it will be difficult to meet the objective of access by sustainable modes of transport and that in such circumstances, the choice of location may have been determined by a functional need. It states that: “developers and planners may find that in such cases there will be limited opportunities to make the development accessible by sustainable modes of transport or to reduce the number or proportion of visits made by car.”
4.45 Paragraph 5.5 states that “in all cases, planners will need to weigh up the other benefits of a tourism proposal against any disadvantages arising from its location”. It identifies that some of the key considerations are the extent to which the proposal: 19
Helps to protect or improve a specific site or general location. For example, by offering opportunities for landscape enhancement or to improve an unattractive site.
Contributes to tourism in the locality.
Provides a new facility for the local community as well as well as visitors;
Assists more generally with diversification of rural economies; and, where appropriate,
Impacts on the vitality and viability of town centres.
4.46 Annex A of the Good Practice Guide “Tourist Accommodation” acknowledges that tourist accommodation takes many different forms and recognises that the particular market being met by the accommodation may influence the nature of the location chosen. It states at paragraph 4 that:
“Proposed locations for other types of hotel and serviced accommodation should also be considered through the plan process wherever possible. The emphasis, whatever the type of accommodation, should be on identifying the most sustainable locations, having regard to national planning policies. But in allocating sites in plans, or considering planning applications that come forward outside the plan process, developers and planning authorities need to recognise that the particular market being met by the accommodation may influence the nature of the location chosen. So for example, accommodation catering for those who seek to enjoy the natural environment through walking and outdoor recreation maybe better located in a rural area, in or at the edge of the centre of a village or small town, rather than in a major town centre some distance away from the attractions it serves” (NLP emphasis)
4.47 Furthermore, Annex A: Modernisation and Extensions paragraph 12 provides a supportive framework for the economic growth and success of hotel businesses and recognises the role of extensions in satisfying local and tourist need:
“Moderate-sized extensions to an existing hotel or public house, including the addition of bedroom accommodation, can help to ensure the future viability of such businesses. This may satisfy a local need as well as a tourism one, by fully utilising the potential of the site but without any disproportionate increase in scale. In all cases, careful consideration should be given to ensure that the size of the extension proposed is not disproportionate for the location concerned”.
PPS 22: Renewable Energy
4.48 The policies within PPS22 may be material to decisions on planning applications. Increased development of renewable energy resources is recognised as vital to
20
facilitating the delivery of the Government’s commitments on climate change and renewable energy (The Government’s Objectives).
4.49 Paragraph 1 viii states that development proposals should demonstrate environmental, economic and social benefits, as well as how environmental and social impacts have been minimised.
4.50 Paragraph 8 states that local planning authorities may include policies in their Local Development Framework that require a percentage of the energy to be used in new residential, commercial or industrial developments to come from on-site renewable energy developments. Such policies are required to ensure that this requirement is only applied where viable and should not be framed in such a away as to place an undue burden on developers.
4.51 The opportunities for incorporating small scale renewable energy projects in all new developments are set out by paragraph 18:
“local planning authorities and developers should consider the opportunity for incorporating renewable energy projects in all new developments. Small scale renewable energy schemes utilising technologies such as solar panels, Biomass heatings, small scale wind turbines, photovoltaic cells and combined heat and power schemes can be incorporated into new developments and some existing buildings. Local planning authorities should specifically encourage such schemes through positively expressed policies in local development documents”.
Planning for a Sustainable Future White Paper
4.52 The White Paper sets out our detailed proposals for reform of the planning system, building on Kate Barker’s recommendations for improving the speed, responsiveness and efficiency in land use planning, and taking forward Kate Barker’s and Rod Eddington’s proposals for reform of major infrastructure planning. It proposes reforms on how we take decisions on nationally significant infrastructure projects. It also proposes further reforms to the Town and Country Planning system, building on the recent improvements to make it more efficient and more responsive. The document was published in May 2007 and is currently subject to consultation.
4.53 Paragraph 7.63 of the White Paper states that once designated, inappropriate development should only take place in Green Belts in very special circumstances. Where development has the potential to enhance the surrounding area by improving community access to open green space, providing additional recreational facilities, or 21
enhancing biodiversity and wildlife, these are material factors that should be weighed into the balance by decision makers when planning applications are determined.
Development Plan and Other Material Considerations
4.54 Section 38 of the Planning and Compulsory Purchase Act 2004 states:
“If regard is to be had to the development plan for the purpose of any determination to be made under the planning Acts the determination must be made in accordance with the plan unless material considerations indicate otherwise”.
4.55 For the Belfry, the development plan comprises:
The Regional Spatial Strategy (formerly Regional Planning Guidance), which has formed part of the statutory development plan since the 28th September 2004.
The Warwickshire Structure Plan (1996-2011) will be saved for a period of three years from the commencement of the Act (until September 2007).
The North Warwickshire Local Plan adopted 4 July 2006.
Regional Spatial Strategy for the West Midlands, June 2004
4.56 The Regional Spatial Strategy for the West Midlands (RSS11) became the Regional Spatial Strategy (RSS) for the West Midlands following the 2004 Planning and Compulsory Purchase Act. A partial review of RSS11 is underway, which commenced in 2005. This has three parts:
Part 1 specifically covers the City of Wolverhampton and the Boroughs of Walsall, Sandwell and Dudley. A Draft Revision was submitted to the Secretary of State in May 2006 with a Public Examination scheduled for January 2007.
Part 2 will review issues to include housing figures, employment land and transport: a consultation on the Options for future development is anticipated January 2007.
Part 3 will examine rural services, recreational provision, environmental issues and gypsy and traveller sites. It is due to commence in 2007.
4.57 Policy PA10: Tourism and Culture (Part A) of the adopted RSS seeks to encourage both the improvement of existing tourist provision as well as the creation of new facilities, subject to the capacity of infrastructure and the environment to accommodate the new facilities and visitors associated with them. Development Plans are encouraged to include policies that support the further development and 22
success of key regional tourism and sports venues of all types. Paragraph 7.49 identifies that:
“Local authorities, Advantage West Midlands, the regional tourism consortium, tourism bodies and other organisations should encourage the future development of tourism and culture including media and sport, as a key element in the diversification of the regional economy. In doing so recognition will be given to the important contribution that tourism and culture can make to employment generation, to local business development, environmental quality, educational opportunities and regeneration.”
4.58 Policy PA10: Tourism and Culture (Part B) states that:
“Where large-scale, innovative projects can contribute to the overall offer of the Region, these should also be encouraged in suitable locations well served by public transport and where this can make an appropriate contribution to urban or rural regeneration”.
4.59 Policy PA10: Tourism and Culture (Part C) seeks to encourage sustainable tourism by requiring local authorities to identify those areas where the development of sustainable tourism can be encouraged to the benefit of the local economy without damaging local environment or character. In doing so, local authorities should assess the cumulative impact of tourism on the environmental assets (including biodiversity), character, infrastructure, and local economy of each area, and on the needs of local residents.
4.60 Para 7.52 specifies that proposals for large-scale tourism developments will need to demonstrate they are compatible with the environment and character of the Countryside and other criteria in Policy PA10 (Part C).
4.61 Policy PA14: Economic Development and the Rural Economy part (Part A) seeks to ensure that development plans and strategies support the sustainable diversification and development of the rural economy through the growth of existing businesses and the creation of new enterprise. Policy PA14 part (Part C) specifies that priority should be given to economic activity with strong links to the rural area, including tourism and leisure.
4.62 Policy PR1: Rural Renaissance (Part C ii) specifies that for rural areas which may be remote from the Main Urban Areas (MUAs), the main priorities should be factors to include economic diversification and improved public transport.
23
4.63 Policy QE1: Conserving and Enhancing the Environment seeks to ensure that the environment is preserved and enhanced. However, paragraph 8.7 of the supporting text recognises that where there are overriding social or economic reasons for development, some reduction of less sensitive assets may be justified, providing wherever appropriate measures are taken to mitigate and/or compensate for the loss.
4.64 Policy QE3: Creating a high quality built environment for all, asserts that development plans should promote the creation of a high quality built environment. For example, it refers to the need to incorporate sustainability considerations such as energy and water efficiency, use of renewable energy, sustainable construction and drainage, building orientation, use of recycled materials, minimisation of waste, construction materials, and prolonging the lifespan of buildings.
Warwickshire Structure Plan, August 2001
4.65 Warwickshire Structure Plan (known as WASP), was adopted in August 2001 for the period 1996-2011.
4.66 Policy GD.4 (Strategic Constraints) of the WASP identifies the West Midlands Green Belt as a key strategic constraint which local plans must take into account in their allocation of land for development.
4.67 Policy GD.6 (Green Belt) confirms the broad extent of land in Warwickshire that will continue to be subject to Green Belt policy. The supporting text for this policy reiterates PPG2 by setting out a presumption against inappropriate development in the Green Belt (paragraph 2.6.2).
4.68 Policy RA.1 (Development in Rural Areas) and its supporting text seeks to prevent development in rural areas other than that which specifically meets the needs of the rural population, rural businesses and agriculture.
4.69 Policy GD7 (Previously Developed sites) states that:
“The redevelopment of very large unallocated areas of previously- developed land and buildings for a strategically significant purpose, will only be acceptable where:
(a) the development does not provide for needs accommodated elsewhere in the plan or prejudice the redevelopment or regeneration of urban areas, subject to provisions laid out in Policy i.8 or the RA Policies; and
24
(b) there is no adverse impact on the Cotswolds area of Outstanding Natural Beauty (AONB) or any other feature with national or international statutory protection; and
(c) the travel demands for the development are, or can be made to be, satisfactorily accommodated by existing transport infrastructure taking into account the mix of development; and
(d) it can be demonstrated that the benefits of the development have been thoroughly assessed and clearly outweigh the benefits of developing other sites; and
(e) a development brief is agreed by the County Council and the District Councils”
4.70 Policy I.8 (Tourism, leisure and recreation) supports new tourist, leisure and recreation development where:
the facility will create new jobs meeting local needs for employment and provide community benefits;
there is easy access to the main transport routes and urban areas;
there is the opportunity to maximise the use of alternatives to the private car; and,
the development would not undermine the intrinsic value of natural or cultural assets.
4.71 Policy I.8 also supports the expansion of existing attractions and facilities where this would result in the retention or creation of jobs and environmental improvements.
4.72 The supporting text for Policy I.8 recognises at paragraph 5.8.1 that tourism for leisure and business purposes plays a significant part in the County’s economy, bringing £4.9m to the County in overnight stays and associated expenditure in 1999 and employing 10% of the County’s workforce. Hotels, restaurants and associated conference facilities are identified as prime examples of developments catering for leisure and business tourism that are associated with the County’s cultural and natural assets. The south of the County is highlighted as particularly important for tourism because it is close to the Cotswolds and includes Stratford-upon-Avon and Warwick, two of the Region’s four most historic towns. The common element, in both the well established and emerging tourist areas, is the quality of the attractions and the environment in which they are set.
4.73 Policy TC.2 (Hierarchy of town centres), directs all new major shopping, entertainment and leisure developments to town centres.
25
North Warwickshire Local Plan (2006)
4.74 The North Warwickshire Local Plan was adopted 4th July 2006. However, a challenge to the validity of the plan has been made to the High Court. This challenge specifically relates to the timing of the Housing Development Plan Document. The remainder of the Local Plan is unaffected by this challenge and is continuing to be used for Development Control purposes.
4.75 The site is within the North Warwickshire Green Belt as defined by the proposals map of the North Warwickshire Local Plan (2006). Policy ENV2 (Green Belt) confirms that PPG2 applies within the area designated as Green Belt.
4.76 Core Policy 1 (Social and economic regeneration) sets out the over-riding aims of the Council regarding social and economic regeneration. It is emphasised that the Local Plan will support the economic and social regeneration of the area, primarily by seeking to ensure local people have access to a range of high quality employment, housing, shopping, leisure, education and other community facilities.
4.77 Core Policy 2 (Development Distribution) states that outside the development boundaries and except where other policies of the Plan expressly provide, development will be limited to that requisite for agriculture, forestry or other uses that can be shown to require a rural location.
4.78 Under Core Policy 3 (Natural and historic environment), all development decisions will seek to protect or enhance biodiversity, natural habitats, the historic environment, and existing landscape and townscape character.
4.79 Core Policy 4 and Policy ENV2 (Green Belt) reflect PPG2 and sets out a general presumption against inappropriate development in the Green Belt.
4.80 Policy ENV7 (development of existing employment land outside defined development boundaries) states that the development of existing employment and outside the defined development boundaries of the Main Towns, the Green Belt Market Town and Local Service Centres will only be permitted if:
1. The site is to remain in its existing and continuing use and:
i) The proposal would not represent inappropriate development within the Green Belt; and
26
ii) The applicant firm occupies the land with the benefit of an extant planning permission for the use concerned, or the existing use is otherwise a lawful one in planning terms; and
iii) There would be no quantitative increase in employment floorspace; and
iv) The proposed development is necessary to secure existing jobs; and
v) Lasting environmental improvement of the site commensurate with the scale of the project would be secured; and
vi) The proposal includes measures to avoid giving rise to additional unsustainable patterns of travel and transport.
Or,
2. The site is redundant and:
vii) The proposal would not represent inappropriate development within the Green belt; and
viii) The site is or will be made accessible by sustainable modes of transport; and
ix) The proposed use is one that requires a rural location or is otherwise incompatible for environmental, traffic or amenity reasons with being located within a settlement having a defined settlement boundary; and
x) The proposal would result in a net reduction in the area of the site used for employment purposes and a net increase in the area of the site in open countryside use; and
xi) Lasting environmental improvement of the site commensurate with the scale of the project would be secured; and
xii) Local jobs and/or local services would be provided.
4.81 Under Policy ENV1 (Protection and enhancement of natural landscape), development that would neither protect nor enhance the intrinsic qualities of the existing landscape will not be permitted. Only where protection or enhancement is incompatible with proposed development might mitigation be considered as an alternative to protection or enhancement. Paragraph 3.26 of the supporting text emphasises that the siting, layout, design and landscaping of proposals will be expected to protect, complement or enhance identified characteristics of the landscape.
4.82 Policy ENV10 (Energy generation and energy conservation) requires non-residential developments of more than 1,000 sq.m to produce 10% of their predicted energy requirements on site from renewable energy resources. The siting, design and layout
27
of new development is also required to avoid the unnecessary waste of renewable and non-renewable energy resources and make economic use of raw materials.
4.83 Policy ENV12 (urban design) asserts that development will only be permitted if:
i) All the elements of the proposal are well related to each other and harmonise with both the immediate setting and wider surroundings to present a visually attractive environment.
ii) Existing natural features are treated as an integral part of the developments.
iii) Spaces that make a positive contribution to the public realm are provided and/or improved.
iv) The design and layout reduces opportunities for crime.
4.84 Policy ENV13 (Building Design) requires the scale, massing, height and appearance of proposals to positively integrate into their surroundings and for the materials and detailing used to respect and enhance local distinctiveness.
4.85 Paragraph 5.5 recognises the important role of tourism for the local economy, stating that in 1995/6 one million visitors came into the Borough and 1,400 jobs in the Borough were supported by tourism.
4.86 Policy ECON5: Facilities Relating to the Settlement Hierarchy, seeks to focus additional shopping, office, entertainment and leisure floorspace within existing centres. This policy aims to direct facilities, particularly retailing to the appropriate location depending on the size of settlement.
4.87 Policy Econ11 (hotels and guest houses) states that new hotels in town centres and extensions to existing hotels inside development boundaries will be permitted subject to certain, specified criteria.
4.88 Policy TPT1 (transport considerations in new development) requires applicants for major traffic generating proposals to submit transportation assessments and travel plans to consider and mitigate the impacts of their schemes. Proposals for major developments are required to demonstrate safe and convenient access by a range of means of travel and transport. Planning permission will be refused where the transportation impacts of these developments are significant and cannot be mitigated by: measures to reduce the impacts to acceptable levels; the delivery of approved 28
travel plans; or developer contributions towards public services and facilities, cycling and pedestrian provision.
4.89 Policy TPT3 (access and sustainable travel and transport) states that:
“Development will not be permitted unless its siting, layout and design makes provision for safe and convenient pedestrian and vehicular access and circulation, and maximises practicable opportunities for the use of sustainable means of travel and transport including walking, cycling, bus and train”.
4.90 Policy ENV14 (Access design) requires:
The design of access to and within developments to demonstrate that priority has been given to pedestrians, cyclists and those using public transport.
Vehicular access for new development to be safe and the local road network able to accommodate traffic to and from the development without problems of congestion, danger or intimidation and without adversely affecting the character of the surrounding environment.
Development will not be permitted if its layout and design does not provide safe and easy access for all potential users including those with particular access requirements.
4.91 Policy TPT6 (Vehicle Parking) requires on-site car parking provision not to exceed the maximum local standards unless a transport assessment demonstrates that a greater amount of car parking is needed and that measures will be put in place to minimise the need for parking or the parking is intended to serve the needs of a town centre as a whole.
4.92 Relevant car parking standards include the following (source: Appendix 4 of the Local Plan):
Pubs and restaurants: 1 per 5 sq.m
Hotels: 1 per 2 guest bedroom, 1 per 2 staff flat, 1 per 10 employees.
Places of Assembly (D1) 1 per 22 sq.m
Conference facilities 1 per 5 seats.
29
Other material considerations
4.93 There are a number of documents, which whilst not forming part of planning policy, are considered to be material to the consideration of this application. These include the following documents:
Economic Development Strategies
Delivering Change: The West Midlands Economic Strategy and Action Plan 2004- 2010
4.94 The current Regional Economic Strategy relates to the period 2004-2010. Paragraph 1.6 (Visit West Midlands) outlines the following vision for tourism:
“By 2010, tourism will be recognised as one of the region’s major economic drivers, seen as adding real value to the regional economy. We will have developed our tourism products and services, and involved our unique multi-cultural society, to provide high quality tourism, leisure and cultural facilities and services. Nationally and internationally the region will be seen as culturally distinctive and ‘tourist friendly’. Our accommodation will be of high quality, our retail outlets excellent and the region will be perceived as an exciting, safe, sophisticated place to visit. Investment in our internationally recognised destination brands, such as: Stratford-upon-Avon and Warwick; the World Heritage Site at Ironbridge; Alton Towers in Staffordshire; the Cotswolds; and the international city of Birmingham with its vibrant night life, regenerated canals, conference and sporting facilities, will attract tens of thousands of additional leisure visitors from across the globe. We will benefit from investment in, and the marketing of: new leading brands; the leisure value of our cities (Birmingham, Wolverhampton, Worcester, Hereford, Coventry, Stoke- on-Trent and others); and our countryside, industrial and market towns and villages in the Shires…. Visitor numbers will be up as more and more business people extend their stay or return for leisure trips, and family and friends visit frequently to enjoy our facilities..”
4.95 Paragraph 2.2 outlines the ‘Visitor Economy Challenge’ facing the region. It emphasizes that the region has a robust, diverse visitor economy which has been growing strongly with a net growth of 23,000 jobs from 1995 to 2002 and which provides a valuable springboard for growth. The challenge for the region’s visitor economy is identified as being to improve the quality of their product and to meet sophisticated market needs. Development of the visitor economy is identified as having a powerful force for economic development and regeneration.
4.96 Paragraph 4.8 (Developing the Visitor Economy) outlines the steps to be taken to develop the visitor economy in the West Midlands. It explains that a new strategic 30
tourism body, the West Midlands Strategic Tourism Body, was to be established to oversee the development of a new seven-year West Midlands Visitor Economy Strategy.
North Warwickshire Economic Strategy 2003-2008
4.97 This economic strategy was developed by North Warwickshire Borough Council and a range of partners. It contains four themes, one of which relates to tourism - ‘Tourism will be developed and promoted throughout the borough using an enlarging partnership’. The related objectives under this theme are:
“to ensure that providers of leisure and tourism activities are encouraged to develop their full potential;
to promote North Warwickshire as a destination for business and leisure tourism;
to support accommodation providers in being promoted on a wider scale and competing effectively in the marketplace;
to link with others in the joint promotion and enhancement of facilities; and
to work with various funding agencies, in securing money to support heritage, leisure and tourism opportunities the borough.” (paragraphs 3.4-3.8)
Tourism Strategies
West Midlands Visitor Economy Strategy (2004)
4.98 The West Midlands Visitor Economy Strategy is a framework for partnership to drive growth in the sector across the region. Its preparation was led by Advantage West Midlands. The Strategy’s Vision is that:
“The West Midlands visitor economy will be recognised for its continuing growth, and for the excellence of a number of sophisticated, world-class urban and authentic rural destinations for business and leisure visitors, which showcase the region’s creativity and its heritage, celebrate its diversity, and set new standards for quality and sustainability”
4.99 A key feature of the strategy is the need to create successful, sustainable destinations. A focus is placed on the need for each destination to have a critical mass of high quality attractors, services, infrastructure, and a coherent brand (p9).
31
4.100 The strategy has a key target for employment in the West Midlands visitor economy to increase by 9% in the period from 2002 to 2010 (p21).
On target for growth: Visitor economy strategy for Coventry and Warwickshire 2005- 2009
4.101 This sub-regional strategy for developing the visitor economy has been adopted by the local authorities across Coventry and Warwickshire.
4.102 The strategy acknowledges the critical importance of business tourism in the sub- region. It recognises that there is a substantial hotel and conference infrastructure in Coventry and Warwickshire including famous venues such as the Belfry (paragraph 3.2) and that the Belfry (HQ of the European PGA) offers the opportunity for the further development of sports tourism.
4.103 Paragraph 5.1 emphasises that to keep pace with competitors, tourism in Coventry and Warwickshire must keep increasing the quality of the offer and focusing help on those operators who aspire to that.
North Warwickshire – Tourism Action Plan 2005-2007
4.104 This dedicated tourism action plan for North Warwickshire seeks to drive tourism activity at a local level. It acknowledges the value of tourism as providing a significant contribution to the local economy. The Action Plan has four key objectives, one of which is to raise the quality of visitor facilities and services on offer in North Warwickshire and ensure that customer expectations are exceeded.
Sporting strategies
A Sporting Future for All (Department for Culture, Media and Sport, 2000)
4.105 This document sets out the Government’s national vision for sport. It states that the Government has high aspirations for sport in this country, with the aim of more people of all ages and social groups taking part in sport, and more success for our top competitors and teams in international competition. In relation to professional sport, the document states that: “we will continue to work with national and international bodies to try to attract more major events to the UK” (paragraph 10.5)
32
Game Plan: Strategy for Delivering the Government’s Sport and Physical Activity Objectives (2002)
4.106 This document was published jointly by the DCMS and the Government’s Strategy Unit. It sets out two overarching aims of the Government’s vision and strategy for sport up to 2020:
a major increase in participation in sport and physical activity, primarily because of the significant health benefits and to reduce the growing costs of inactivity; and
a sustainable improvement in success in international competition, particularly in the sports which matter most to the public, primarily because of the ‘feel good factor’ associated with winning.
Sign up for Sport: A Regional Plan for Sport in the West Midlands 2004 -2008 (Sport England, 2004)
4.107 This Regional Plan for sport recognises that sport is an important part of our regional economy. It notes that sports events attract 600,000 people a year and generate £19 million and that there are 4,000 sports businesses in the West Midlands, employing 60,000 people” (p38). The Strategy also states that:
“The contribution that sport makes to the economy of the West Midlands has grown each year since 2004…. Sport is now recognised as a significant contributor to the success of the West Midlands Visitor Economy Strategy and we are attracting more major events to the West Midlands.” (p39)
4.108 The vision for English sport is ‘to make England the most active and successful sporting nation in the world’, whilst the specific aim for the West Midlands is:
“to significantly increase participation in sport within all age groups, leading to improvements in health and other social and economic benefits and providing the basis for progression into higher levels of performance, for those with the talent and the desire to progress” (page 3)
4.109 The strategy specifically identifies the Belfry as a ‘world class golf course and academy’ (p5).
The Framework for Sport in England: Making England an active and successful sporting nation: a vision for 2020 (2004)
4.110 This Framework by Sport England sets out a strategy to achieve the aims of its vision for sport in England – “to be the most active and the most successful sporting nation in the world”. 33
4.111 The framework identifies 20 priority sports, for which plans are to be developed to provide a co-ordinated platform for delivery, establishing a framework for sport. Golf is one of the ten priority sports for England (figure 2).
A Vision for English Golf to the Year 2020 (England Golf Partnership, 2004)
4.112 The English Golf Union, the England Ladies Golf Association and the Professional Golfers Association (PGA) have come together as the England Golf Partnership to develop a vision for the sport of golf to the year 2020. This vision is for England ’to be the leading golfing nation in the world’ by providing more opportunities for participants to ‘start, stay and succeed’ in the game.
4.113 This strategy aims to raise participation in the sport, enable players to stay in the game for life, with the aim of having more players ranked in the top ten in the world delivering international success. A related aim is to increase the provision of quality training facilities and tournament venues.
The Value of the Sports Economy in the Regions: The case of the West Midlands (Sport England, 2003)
4.114 This report, which was prepared for Sport England, forms part of a study that has developed a methodology for valuing the sports economies of each of the nine English regions.
4.115 The report highlights the importance of sport to the West Midlands, for example;
43,600 people are employed in sports-related activities, some 2% of all employment, which is higher than the English average.
15,800 of these jobs are identified as being in commercial sport.
Sport generates £3bn in annual turnover and £1bn in annual value-added in the region. This accounts for about 1.5% of the region’s economy.
At section 2.2, the report highlights key features of sport in the region as including the PGA tour golf at The Belfry, noting that the Belfry has regularly hosted the Ryder Cup.
34
5.0 PLANNING ISSUES
Introduction
5.1 The subsequent sections of the report assess the proposals for the redevelopment of the Belfry against the policy context detailed in Section 4.0. From this policy review it is considered that the proposed development raises the following key issues:-
1. Locational considerations;
2. Conformity with PPG2: Green Belts;
3. Conformity with the tourism objectives;
4. Economic Benefits of the proposals;
5. The traffic and transport implications of the development;
6. Exceptional masterplanning and Design;
7. Promotion of the Government’s sustainability objectives; and,
8. Compliance with employment land policies.
35
6.0 LOCATIONAL CONSIDERATIONS
Introduction
6.1 The proposal is to redevelop the Belfry site and provide improved golf, hotel and associated facilities. It is acknowledged that the application site is located outwith the urban area, in a Green Belt location. This section justifies the location of the proposed redevelopment with reference to relevant planning policy guidance and other material considerations. The merits of the proposed development in the context of Green Belt policies and guidance are considered in detail in the following section.
6.2 It is noted that PPS6 seeks to guide new hotel and leisure development towards town centre locations. Notwithstanding this, the following demonstrates that the need for the proposed development is site specific and inherently linked to the established golfing facilities associated with the Belfry. Furthermore, it is demonstrated that the various elements of the proposal can not be disaggregated.
Need for Improved Facilities
6.3 The principle of need for the proposed development is both recognised and established by Sport England in their ‘Framework for Sport in England’, advice received by Quinn Hotels from The Heart of England Tourist Board, a survey undertaken by ‘Golf Today’ and a decline in visitor numbers at The Belfry, symptomatic of a steady decline in the reputation of the Hotel as a golf venue and business tourism destination.
6.4 The key message from these documents and from consultation feedback to Quinn Hotels, is that the opportunity exists to build on the internationally recognised brand of The Belfry to successfully achieve a resort hotel and golf venue to compete with the very best in the UK and abroad, for international tourists, footloose business tourism and major golf events. This opportunity arises because of the location of The Belfry Hotel as an integral element of the world famous golf courses and also derives from the location of the site close to international transport hubs of Birmingham Airport and Birmingham International Rail Station and close to the national strategic road network with the M6, M42 and M6 Toll Road all being within very close proximity to the site. The juxtaposition of The Belfry with these transport ‘gateways’ and the regional tourist attractions offered by central Birmingham, Stratford on Avon and Warwick as well as
36
a host of other significant tourist attractions in the locality, result in the location being ideal to capitalise on the opportunities for major tourism-related economic success.
6.5 The findings from the above mentioned documents and inputs from strategic tourism authorities are described briefly below.
Framework for Sport in England
6.6 The Belfry is an iconic destination with an international reputation and is therefore a very important tourist asset, not just for North Warwickshire but also for the region and the UK.
6.7 The important role of golf and the need to encourage the continuing growth of this sport is recognised by Sport England, in their ‘Framework for Sport in England’, which identifies golf as one of ten priority sports for England. The economic importance of golf to the region should also not be under-estimated, as emphasised by the ‘Value of The Sports Economy in The Regions: The case of The West Midlands’. The role of The Belfry as a key fixture in the golfing world is identified in the above report which highlighted The Belfry as a key feature of sport in the West Midlands. The Belfry is held in high esteem and has hosted the Ryder Cup four times.
Golf Today Survey
6.8 The need for continued investment in tourist facilities is underlined by the falling profile of the Belfry in recent years. Surveys undertaken for one of the sector’s leading publications, ‘Golf Today’, suggest that the Belfry’s decline in profile specifically relates to a perceived poor quality of accommodation. The Belfry was ranked 1st when golfers were asked which golf course they most aspired to play. However, in contrast, the same survey ranked the Belfry at number 97 when participants were asked which golf courses have the best overall standard of facilities. It is widely recognised that the poor quality of accommodation is the key factor which is letting the Belfry down in this respect. The implications of this are directly reflected by the PGA’s decision not to recommend the Belfry to host the Ryder Cup in 2022, unless it improves its facilities.
6.9 Potential visitors often have an expectation that the quality of the accommodation and associated facilities offered by the Belfry will compare favourably to that offered at other prestigious golf courses such as Turnbury, Glen Eagles, Celtic Manor and The
37
Grove. This includes an expectation of luxurious, spacious accommodation and an overall layout which flows easily and is easy to navigate around.
6.10 Advice from the Heart of England Tourist Board is that the perceived inadequacy of hotel accommodation at The Belfry compared to that expected to be associated with such prestigious golfing facilities is perhaps not surprising. The Belfry has been developed incrementally over a number of decades and consequently represents a sprawling hotchpotch development. There is a need for a comprehensive investment package at The Belfry which will involve the purpose designed changes in the layout required to enable the standards of accommodation and layout outlined above.
6.11 An investment of the scale proposed would also enable The Belfry to increase the region’s tourism profile. For example, the redevelopment would allow the star-rating of the Belfry hotel to increase from 4* equivalent to 5*. This would accord with the objectives of the Regional Tourism Strategy for the West Midlands to be an international visitor destination, which are currently undermined by the lack of any 5* hotels in the West Midlands.
The Belfry Business Case
6.12 A separate report is submitted with the panning application which outlines the business need for the redevelopment of The Belfry. This report concludes that the existing Belfry, based on an adapted former stable block, along with a number of aesthetically unsatisfactory additions made over a number of years in a variety of architectural styles, fails to fully maximise the potential of the site as an international high class leisure destination and sporting venue. The premises are dated and the ability to provide modern, efficient and low environmental impact service is limited by the inefficient layout of the premises, the age and condition of the buildings and associate infrastructure, for example, the 64 boilers, 12 kitchens and a high proportion of small bedrooms with no ability to install air conditioning.
6.13 The Belfry has declined in reputation as a leisure venue over recent years and is set to continue to do so unless radical steps are taken to reverse this. The quality of business customer has declined and the likelihood of major golf tournaments, particularly the Ryder Cup, being staged at the Belfry again has been confirmed as most unlikely without major enhancement to the hotel and support facilities offered.
38
6.14 Given all of the above, it can be seen that the location of the proposed development, at The Belfry site, is the only alternative to securing a standard of hotel and golf development of the quality to attract substantial domestic and international tourism as well as re-invigorate the business tourism capability of the area. The decline in the quality of the golf-related support facilities that has been experienced, needs to be reversed if the Midlands is not to lose it’s only internationally prestigious golfing venue.
6.15 Quinn Hotels proposes to address the decline of The Belfry by a comprehensive redevelopment of the site for a 5* world class luxury hotel, leisure and spa facility, an international standard golf venue and new PGA Headquarters and Academy. The new Hotel will attract UK and international visitors to North Warwickshire and ensure that the reputation of The Belfry is enhanced. It will result in a significant boost to the local and regional tourist economy and ensure that The Belfry is able to compete with other UK venues to restore confidence in a waning business tourism market and be considered to host major PGA golf tournaments including future Ryder Cup matches.
6.16 As outlined above, the Belfry site was chosen as the preferred option for redevelopment because it is the only site in North Warwickshire where the redevelopment of an 5* golfing hotel can be located, where an established international profile can secure visitor numbers required to support a 5* luxury resort hotel investment and can build on a existing international reputation. The Belfry site benefits from proximity to international transport hubs and good access to the strategic road network, is located on previously developed land where the lawful use of the land is for Use Class C1 (hotel). The three golf courses are also in existence and, consequently, redevelopment of this site would not introduce a new form of built development onto unspoilt Warwickshire countryside.
6.17 The redevelopment of any other site in North Warwickshire to include the type of facilities which exist at the Belfry would require an extremely large site to accommodate the scale of development proposed. Therefore, the redevelopment of the existing hotel buildings would result in less of an impact on the environment than having to develop a site to include 5* equivalent hotel comprising 500 bedrooms, leisure club, function rooms and ancillary facilities, three golf courses and the PGA National Academy.
6.18 Initially, Quinn Hotels considered two approaches: ‘Do nothing’ and ‘improve the existing Belfry’. These are discussed below: 39
Do Nothing
6.19 As set out above, Quinn Hotels is faced with declining visitor numbers at The Belfry and an hotel that is becoming increasingly outdated and unable to compete with other similar hotels in the UK. A ‘do nothing’ approach would mean that Quinn Hotels would fail to attract the Ryder Cup back to the Belfry unless the facilities at the hotel are substantially improved. Further, major business tourism opportunities would continue to be lost to other regions or overseas. Both of these scenarios are unacceptable business propositions to Quinn Hotels.
6.20 Refurbishment of the existing hotel was considered. However, this would not result in a sufficiently radical upgrade of the property to reverse the decline in business and it would fail to result in a 5* facility being introduced to the Midlands in line with the regional tourism strategy. As described above, the dated nature of the property and the dispersed supporting infrastructure (kitchens/boilers etc), is such that refurbishment could not solve these fundamental flaws.
6.21 In summary, the lost opportunity of not proceeding with the development in response to the needs of the tourism economy in North Warwickshire and the Midlands would be:
A lost opportunity to maximise the use of a large existing site, with an established reputation for the international promotion of golf;
A leakage of tourism and business tourism expenditure from North Warwickshire to other golf hotels in the Country or overseas; and
The Belfry will fail to secure major golf tournaments including the Ryder Cup with a consequent impact on the venue’s reputation which would further exacerbate the problems associated with business decline.
To Improve the Existing Belfry Hotel
6.22 Careful consideration of the existing hotel buildings has been undertaken during the evolution of the development proposals. Viable elements in terms of quality and location within the site have been identified. However, many of the current buildings are increasingly outdated for a modern hotel operators needs and would need renewal in any future event. Declining visitors to The Belfry and the reductions n income result from these inadequacies which are not capable of being resolved by superficial refurbishments.
40
6.23 The current buildings, either in a refurbished state, or extended, will not provide the critical mass, or quality of space that is necessary to improve the hotel and attract visitors back to the Belfry. Retention of the exiting building stock would reduce the positive impact of new higher quality development.
6.24 Based on the two alternatives above, the application proposals presented the only viable option for the redevelopment of the Belfry Hotel by Quinn Hotels that would enable them to fulfil the requirements and ensure that the Ryder Cup returned back to The Belfry. Therefore, for the reasons outlined above Quinn Hotels considered it necessary to redevelop the hotel.
Conformity with Planning Policy Guidance
6.25 The foregoing identifies a clear need for the proposed facilities and demonstrates that this need can only be realistically met through a comprehensive redevelopment on the existing Belfry site. The following assesses the need and locational considerations in the context of national planning guidance set out in PPS6 and local planning policy guidance.
6.26 The definition of ‘town centre uses’ as included within PPS6 (paragraph 1.8) includes restaurants, bars, health and fitness facilities and hotels i.e. types of development proposed at the Belfry. PPS6, Structure Plan Policy TC.2, and Local Plan Policy ECON5 all seek to direct town centre uses to existing centres. When assessing proposed developments for ‘town centre uses’, which do not fall within an existing centre and are not consistent with the relevant up-to-date development plan, the applicants are required by paragraph 3.4 of PPS6 to demonstrate:
a) The need for development;
b) That the development is of an appropriate scale;
c) That there are no more central sites for the development;
d) That there are no unacceptable impacts on existing centres; and
e) That locations are accessible.
6.27 Each of the above requirements assessed in turn below:-
41
Assessment of the need for development
6.28 A distinct need for this development has already been demonstrated above. In broad terms however, it is noted that there is a clearly identifiable gap in the market at present for a 5* golf-led resort in the Midlands.
Identification of the appropriate scale of development and impact of the development on existing centres
6.29 The proposed scale of development is required and appropriate to meet the identified need for the development and to capture the potential from the market. The hotel will operate within a very specific market in which it will compete at a regional and national level. It will therefore not have a material impact on existing centres in terms of trade diversion, because it will not be competing with facilities in these centres. Instead, the development is more likely to have a positive impact on local centres, given its role as a key attractor of visitors to the region, the potential for the dispersal of visitors to other facilities, and, the resultant economic benefits that arise from this.
Demonstration of a sequential approach to site selection
6.30 The proposal is not for a footloose hotel looking for an appropriate location, but relates to an existing hotel which requires redeveloping and is closely associated with an existing nationally significant sporting facility. This report has already described why this development must be located at the Belfry (due to its close association with the PGA and the golf facilities provided on site, including the iconic Brabazon course) and that its unique benefits would not be delivered by locating the development elsewhere. For this reason, the PPS6 requirement to demonstrate a sequential approach to site selection is irrelevant to this proposal; there are no alternative sites where this development could be located as the development could not be located elsewhere.
6.31 In any event, as has already been noted, to create a similar development from scratch anywhere else in North Warwickshire, to include the type of facilities proposed at the Belfry, would require an extremely large site, which could not be found in an urban area.
6.32 PPS6 advises that developers should adopt a flexible approach and assess whether specific parts of a development proposal could be disaggregated and operated from separate, sequentially preferable sites. This is not considered appropriate in this 42
case. The success of the Belfry as a complex depends upon maintaining and developing the intrinsic and symbiotic relationship between the golfing facilities, the hotel, and the PGA.
6.33 The unique selling point of the Belfry hotel is its location immediately adjacent to the golf course. The Belfry Golf course requires an on-site hotel to complete its functioning and compete in a competitive market place for staging world-class golfing events. Off-site provision would not have the same attraction or prestige and so would not deliver many of the benefits outlined by this report. Thus, it is considered that there are no alternative sites for development.
6.34 It is important to stress that the proposed development is not introducing new uses to the site. The need for improved facilities arises from the combined operation of the various elements that make up the wider tourism and leisure offer at the site. In addition, the disaggregation of the hotel from the site to a location within the urban area would not only fail to compete in the target market of the proposed facility, but it would result in increased vehicular movements generated by guests travelling from the hotel accommodation to the golf courses. Similarly, and notwithstanding fact that such an arrangement would be operationally impractical, if the PGA National Academy building were to be located on a sequentially preferable site, a similar scenario would arise as users of the academy travelled to use the facilities within the site.
6.35 For the reasons stated above, the disaggregation of facilities would be contrary to sustainability principles and PPG13 by increasing travel between the various elements associated with the wider offer. Therefore, the proposed location represents a sustainable location for a destination hotel serving the Belfry Golf Course.
Accessibility of the development by a choice of means of transport
6.36 The proposed redevelopment will result in increased opportunities to access the site by a choice of modes of transport. Full details are provided in the accompanying Transport Assessment and Green Travel Plan.
Other material considerations
6.37 Paragraph 3.28 of PPS6 states that other material considerations should be taken into account in assessing planning applications. In this instance it is noted that there 43
significant benefits delivered through the redevelopment proposals that should be taken into account when considering the planning application. These are set out in them following sections of this statement.
6.38 The Good Practise Guide on Planning for Tourism recognises that there are some occasions where the location for tourism development has been determined by functional need. In such circumstances, the wider benefits of the proposal need to be balanced against any disadvantages arising from the location of development. The guidance also specifically indicates that new development serving a specific attraction or wider facilities maybe better located close to the attraction it serves rather than in an urban location.
Conclusion
6.39 In conclusion, it is acknowledged that proposed development is in an out-of-centre location. However, it is considered that that the Belfry site is the only location that support a 5* golf-led hotel resort, and where an established international profile can secure the visitor numbers required to support the redevelopment and enable the Belfry to compete in the world class luxury hotel market.
6.40 There is a clear need for the proposed facilities in order to capture trade and fulfil the potential of the site. There is also a need for a proposal of the scale anticipated in order to increase the Regions tourism profile and help realise the objectives of the Regional Tourism Strategy for the West Midland to be an international visitor destination. The proposed redevelopment package must be delivered as a whole in order to compete in the target market and fulfil its objectives. There is no scope to disaggregate elements of the proposal in this case.
6.41 It is concluded that the proposed development will not have any detrimental impact on existing centres as it will compete is a very specific market, with existing facilities outside of the local area and wider region. It is not expected to divert trade from surrounding centres or undermine the settlement hierarchy. In this respect the proposed redevelopment will not cause conflict with the key objectives of PPS6 or relevant development plan policies. Furthermore, it is considered that the development needs to be located in close proximity to the wider golfing attraction that it serves. In this context, the proposed location for development is supported by national guidance on planning for tourism.
44
7.0 CONFORMITY WITH GREEN BELT POLICY
Introduction
7.1 The location of the application site within the Green Belt is a fundamental factor for consideration in the determination of this planning application. It is recognised that the in policy terms, the proposed development comprises ‘inappropriate development’ in the Green Belt as it does not fall within the limited range of development identified as being acceptable by PPG2.
7.2 PPG2 sets out a general presumption against ‘inappropriate development’ in the Green Belt and emphasises that such development should not be approved, except where ‘very special circumstances’ can be demonstrated. This principle is re-enforced by Local Plan Core Policy 2 and ENV2. The ‘very special circumstances’ must be sufficient to offset any harm caused to the Green Belt as a result of the development.
7.3 In this case, the proposed redevelopment will make a positive contribution towards meeting the objectives of including land within the Green Belt. In particular, the significant reduction in the built footprint of buildings within the site will enhance the openness of the Green Belt. On this basis it is considered that any harm caused to the Green Belt as a result of the development is negligible. In any event, there are ‘very special circumstances’ that arise from the proposal, which outweigh any harm caused.
7.4 The following section first assesses the merits of the proposed development against the policy objectives of including land in the Green Belt and then identifies the ‘very special circumstances’ that arise from the redevelopment.
Purposes of Including Land in the Green Belt
7.5 With reference to paragraph 1.5 of PPG2, we do not consider that the proposed redevelopment causes conflict with or undermines the specified purposes of including land in Green Belts. In particular, it is noted that since the proposal is within the curtilage of the existing Belfry site and the majority of the wider site would continue to accommodate the three golf courses, the redevelopment would not lead to unrestricted urban sprawl; the merging of urban development; or, cause encroachment into the countryside.
45
7.6 In addition, the redevelopment would not undermine urban regeneration. Support for this is drawn from the findings of the Strategic Tourism Appraisal (prepared by the Heart of England Tourist Board) and the Socio Economic Assessment, which demonstrate that the proposed redevelopment will not compete directly or result in displacement of trade from existing hotel and leisure facilities in the surrounding urban areas. Furthermore, the proposal will not undermine the prospects of further investment in urban areas. Conversely, the economic benefits delivered through the redevelopment are likely to have a positive impact on the surrounding area.
Objectives of the Green Belt
7.7 Paragraph 1.6 of PPG2 sets out the objectives of the Green Belt. The proposals will not harm these objectives. In particularly, the proposals will provide increased opportunities for access to the open countryside; will provide improved opportunities for outdoor sport and outdoor recreation, in particular golf; will retain and enhance the landscape; and will protect and enhance nature conservation interest.
7.8 The benefits delivered by the proposed redevelopment are assessed in more detail below.
Impact of Development on ‘Openness’ of the Green Belt
7.9 "Openness" is identified by PPG2 as the most important attribute of the Green Belt (para. 1.4). Therefore, the design of the scheme has been driven by the need to minimise the impact of the development on openness.
7.10 It is noted that the proposed redevelopment does not materially alter the developed envelope of the complex, and the majority of the site remains in open use (as three golf courses). The redevelopment also presents an opportunity to significantly reduce the combined built footprint of the site and the amount of land ‘contained’ by the existing buildings.
7.11 The existing buildings within the site have a combined built footprint of 23,453 sq m. In addition, to the buildings, the developed envelope of the site is substantially hard surfaced to provide car parking and internal circulation. The existing hardstanding within the site extends to 28,282 sq m.
7.12 The combined footprint of the proposed development is 14,713 sq m. As such the redevelopment will lead to an 8740 sq m (48% reduction) in the built footprint of the
46
site. This will be achieved by providing the proposed accommodation within well conceived and specifically designed buildings, which make efficient use of land.
7.13 In addition, the extent of hardstanding within the site will be reduced by 2990 sq m to 25, 292 sq m (a reduction of approximately 11%) as a result of the proposed redevelopment, and in particular, the provision of 900 car parking spaces and servicing facilities for the buildings at lower ground floor level.
7.14 In the context of the above, the proposed development substantially reduces the developed area of the site and the amount of land that is contained by built development. In this respect, the proposed redevelopment enhances the openness of the site and the wider Green Belt.
7.15 Although the built footprint of the site is reduced as a result of the proposed redevelopment, the scheme will increase and improve the amount of floorspace provided. This is done by making more efficient use of the site and increasing the height of built development within the site. Notwithstanding this, the height and mass of buildings is kept to a minimum by providing both useable floorspace, as well as providing plant and storage accommodation, at lower ground floor level. Despite an increase in height, buildings will remain several metres below the tree canopy and therefore the impact of the development on visual impact will be minimal. The visual impact of the development on the Green Belt is examined in more detail below.
Visual Impact
7.16 Paragraph 3.15 of PPG2 states that the visual amenities of the Green Belt should not be injured by development proposals which might be visually detrimental by reason of their siting, materials or design.
7.17 In this context, there has been careful consideration of the effect of the proposed development on the visual amenity of an area, particularly taking into account views from public areas and how the location and design (including height) of new buildings would impact on the character and appearance of the Green Belt.
7.18 In order to minimise visual impacts, the mass, scale and positioning of buildings have been informed by the findings of the detailed landscape assessment so that the scheme will integrate successfully with existing landscape features. In particular, the new hotel and energy centre buildings have been designed to fit within the wooded areas within the site and building heights have been restricted so that they are below 47
the height of tree canopies. Optimum use has also been made of the existing grain and morphology of the site. In particular, the new PGA building has been carefully designed and sited within a natural fall in the site in order to minimise its visual impact.
7.19 In respect of the new ‘Brabazon’ golf club building, landscaped mounds will be used to screen the lower ground floor level and ensure that this building retains a domestic scale and appearance.
7.20 The wider redevelopment proposals include measures to strengthen existing tree belts, particularly to the Lichfield Road frontage and surrounding the hotel building to provide additional screening and minimise the impact of the proposals.
7.21 The landscape impacts of the proposed redevelopment on the Green Belt have been assessed in detail through the visual impact assessment (contained within the ES). The findings of this confirm that the proposed development will have no detrimental landscape or visual impacts. This is principally due to the reduction of the overall hotel footprint and consolidating its sporadic nature. The proposal to regenerate and enhance the existing planting, providing support and management to the remnant woodland improves the enclosure of the site and extends the life of natural screening.
7.22 In designing the proposed scheme, it is also noted that the effect of lighting on the surrounding area was assessed in detail. Careful consideration has been given to minimising light spillage from the site and the proposed redevelopment will have a reduced impact when compared with the current situation.
7.23 In conclusion, the proposed redevelopment delivers significant improvements to the Green Belt, particularly in terms of reducing the footprint and extent of hardstanding within the site. In this context, there is not considered to be any material harm caused to the Green Belt, or the purposes of including land within it as a result of the redevelopment. Notwithstanding this, there are ‘very special circumstances’ that arise from the redevelopment proposal, which enhance the planning merits of the scheme and justify the granting of planning permission. These are identified below and set out in detail in the following sections of this statement.
Very Special Circumstances
7.24 The special need for the proposed development in this location has been set out above. In summary, we have demonstrated that the standard of accommodation 48
offered by the Belfry hotel is not in line with expectations and a step change in facilities is required to reverse the slide in the profile of the Belfry, and to enable the site to make a more positive contribution towards achieving regional tourism and sporting objectives. In order to enable the increase in quality of provision required to keep up with the demands of the market, a comprehensive redevelopment is required.
7.25 In addition to need, there are a number of benefits delivered as a direct result of the proposed development. These benefits comprise ‘very special circumstances’, which must be taken into consideration in the determination of the planning application. Support for this approach is drawn from paragraph 7.63 of the Planning White Paper which provides that where development in the Green Belt has the potential to enhance the surrounding area by improving community access to open green space, providing additional recreational facilities, or enhancing biodiversity and wildlife, these are material factors that should be weighed into the balance by decision makers when planning applications are determined.
7.26 In addition to the need for the development, the ‘very special circumstances’ arising from this proposal are as follows:-
Sporting benefits;
Tourism benefits;
Economic benefits;
Increased architectural and design merit; and,
Improved sustainability.
7.27 These benefits are set out in detail in the following sections of this statement.
49
8.0 SPORTING BENEFITS
Introduction
8.1 Sections 4.0 of this report identifies a number of sport and recreational objectives which should be taken into account in the consideration of these proposals. The following section identifies how the proposed development will enhance opportunities for sport and activity.
8.2 The sporting benefits that arise for the proposed development are an important impact of the proposed development and must be taken into consideration as ‘very special circumstances’ to be weighed against any perceived conflict with Green Belt policy.
Benefits
8.3 The various Sporting Strategies referred to in Section 4.0 of this report emphasise the need to develop and improve the quality of sporting facilities. They also highlight the aims of Government and various sporting bodies to attract major international sporting events to the UK and promote sport generally. The proposals are in accordance with these government objectives by delivering the following, specific sporting benefits.
8.4 As well as a number of European Tour events, the Belfry has hosted the international golf tournament known as the Ryder Cup four times, in 1985, 1989, 1993 and 2002. In attracting major golfing events such as the Ryder Cup to a particular venue, both the quality and the capacity of the facilities, as well as the venue’s contribution to the sport of golf, are taken into consideration. This includes sponsorship fees paid to host other golf tournaments such as the British Masters tournament, which is already held at the Belfry.
8.5 These sponsorship fees can either be paid directly to the PGA by a venue such as the Belfry, or a corporate sponsor may pay the sponsorship fees but choose to host an event at a particular venue. In either case, the quality of the facilities must be of a suitably high standard for the PGA to allow the tournament to be held, and to make it an attractive venue for potential sponsors to choose to host the event there.
50
8.6 The proposed development, in addition to enhancing the size and quality of the hotel facilities, will result in both new golf club facilities and an enhanced facility for the PGA. Discussions with the PGA have indicated that the intention is to create a facility of national significance, where golfers can be trained, new products tested, and sporting injuries treated. The PGA considers that this redevelopment would enhance the Belfry’s location as a golfing venue and increase the sporting opportunities available.
8.7 As noted above, the Belfry has held the Ryder Cup four times previously and has a reputation as a high quality venue. If the redevelopment goes ahead, it is considered by the PGA that the Belfry would have a combination of factors, such as the very high quality of the facilities, the large capacity of an on-site hotel, the international reputation of the Belfry and its having held the Ryder Cup four times previously, that would put it well ahead of its competitors in any potential bid.
8.8 There are currently only a limited number of venues in England that have the required level of facilities to host major golfing events such as the Ryder Cup. With a 500 bed, 5 star hotel adjoining the course, the proposals would result in the Belfry having among the best facilities for hosting major golfing tournaments anywhere in Europe. This would increase the prospects of a location in the UK being chosen to host the Ryder Cup, as supposed to other locations in Europe. It would also help increase the frequency with which the Ryder Cup is held in the UK. This in turn would deliver associated economic benefits to the visitor economy of the country as a whole as people combine their visit to the Ryder Cup with holidays in other parts of the UK (examined separately within this statement).
8.9 The PGA also considers that the danger of the proposed development not going ahead is that the Belfry will fall behind the quality of facilities of its current and emerging competitors in the UK and across Europe, severely limiting its chances of staging major golfing events in the future. This would also reduce the prospects of this event being won by the UK as a whole.
Conclusion
8.10 The proposed redevelopment will deliver significant sporting benefits. In particular, the redevelopment will increase opportunities for people to take part in sport, leading to improvement in health; will promote and increase prospects of attracting major sporting events to the Region, delivering significant social and economic benefits;
51
and, will promote the growth of golf in the UK. As such the proposed redevelopment will contribute positively towards the achievement of regional and national sporting objectives and strategies. In addition, the proposed measures to improve the value of sporting facilities in the area are broadly supported by national guidance for sport and recreation as set out within PPG17.
52
9.0 TOURISM OBJECTIVES
Introduction
9.1 Sections 4.0 of this report identifies a number of tourism-related policy and strategy considerations which should be taken into account in the consideration of these proposals. The following section identifies how the proposed development, and the associated benefits that it will deliver to the tourism industry, is supported by national and local planning guidance; and how the benefits delivered will assist in local, regional and national tourism objectives being met.
9.2 The tourism benefits that arise for the proposed development are an important impact of the proposed development and must be taken into consideration as ‘very special circumstances’ to be weighed against any perceived conflict caused with Green Belt policy.
Tourism Benefits
9.3 The tourism related benefits associated with the proposed development are set out in the accompanying Socio Economic Assessment. The Strategic Tourism Appraisal, undertaken by the Heart of England Tourist Board and the Quinn Hotels Business Statement also highlight the benefits.
9.4 In broad terms, the Belfry is one of very few internationally recognised brands in the region and the site already plays a key role in the sub-regional tourist economy as an attractor of visitors. The development proposals will deliver improvements to golfing facilities and will significantly increase the quality of the hotel accommodation and associated facilities. This will in turn significantly raise the Belfry’s profile as an attraction for both leisure and business tourism.
9.5 In terms of supply, there are no 5 star rated hotels in the Midlands, and only a handful across the country operating in the golf-led luxury hotel market. A hallmark of these facilities’ offer is; a large site in a rural location; a coherent design and aesthetic ‘feel’; a high quality golfing offer; a brand name spa, multiple leisure options and significant business tourism facilities. The proposed development will enable the Belfry to satisfy these requirements and more effectively compete in this market place.
53
9.6 The 2002 Ryder Cup event held at the Belfry attracted in excess of 35,000 spectators per day (105,000 over the course of the tournament). Research has demonstrated that this scale of attraction delivers significant economic impact benefits in terms of direct expenditure and indirect spending in the local area.
9.7 Any further Ryder Cup Tournaments held at the Belfry are likely to attract over 100,000 spectators to the Belfry over several days result and injection and deliver significant benefits to the local and regional economy. Other tournaments attracted to this venue, such as the British Masters, would also be expected to attract several thousand spectators for each day’s play.
9.8 In addition to a larger number of staying guests visiting the Belfry hotel, the redevelopment should raise the profile of the Belfry as a venue for business tourism. Encouraging business tourism is considered vital to the area by regional and sub- regional tourism strategies. In this context, the Belfry management indicate that they have had to refuse a sizable amount of potential business events, with a common reason being insufficient meeting rooms or space to accommodate larger events.
9.9 The proposed redevelopment should enable the Belfry to attract a wider range of functions and events than it now does, and will widen the choice and quality of such venues within this part of the West Midlands. The location of sporting facilities on site should also help attract a larger number of joint leisure/business visits, with guests using the hotel, golfing, and event facilities. These factors should help attract more, higher spending visitors to the area, and give greater potential for more of this visitor spending to be captured locally.
9.10 The effect of an anticipated increase in visitors spending and the average length of stay will have wider implications for North Warwickshire’s economy in the form of spin-off benefits and linkages as a result of higher spending by the Belfry on goods and services.
Compliance with National and Local Planning Guidance
9.11 The Regional Spatial Strategy for the West Midlands (2004) encourages the improvement of existing tourism provision and creation of new facilities subject to the capacity of infrastructure and the environment to accommodate them. Policy PA10 provides support for large-scale, innovative tourism developments subject to a number of criteria which include requirements for the development to be well served
54
by public transport; make an appropriate contribution to urban or rural regeneration and be compatible with the environment and character of the Countryside. The proposed development is considered tom comply with these criteria in broad terms.
9.12 Policy I.8 of Warwickshire Structure Plan (2001) recognises the importance of tourism to the area and supports new tourist, leisure and recreation development subject to criteria which relate to job creation, accessibility, and impact on natural or cultural assets.
9.13 The North Warwickshire Local Plan (2006) also recognises the important role of tourism for the local economy. The proposals accord with the above strategic and local planning guidance; its economic, social and environmental impacts accord with the above strategic and local planning guidance; it accords with the various criteria by which tourism proposals will be judged.
Compliance with Tourism and Economic Development Strategies
9.14 The development will promote the image of North Warwickshire and act as a catalyst encouraging further growth in the local tourism sector. These are benefits which accord with the objectives of tourism and economic development strategies.
9.15 For example, in their Regional Economic Strategy (2004-2010), the Regional Development Agency sets out a vision for tourism which includes a focus on:
Providing high quality tourism, leisure and cultural services, including high quality accommodation;
Investment in the region’s internationally recognized brands; and
Visitor numbers being up (paragraph 1.6).
9.16 A key focus of the West Midlands Visitor Economy Strategy is the need to create successful, sustainable destinations which have a critical mass of high quality attractors, services, infrastructure, and a coherent brand (p9). The strategy has a key target for employment in the West Midlands visitor economy to increase by 9% in the period from 2002 to 2010 (p21).
9.17 At a sub-regional level, a Visitor Economy Strategy has been prepared for Coventry and Warwickshire which recognises the role of the Belfry as a famous hotel, conference and golfing venue. It argues that to keep pace with competitors, tourism
55
in Coventry and Warwickshire must keep increasing the quality of the offer (paragraph 5.1).
9.18 The North Warwickshire Tourism Action Plan seeks to drive tourism activity at a local level. It acknowledges the value of tourism as providing a significant contribution to the local economy and seeks to raise the quality of visitor facilities and services on offer in North Warwickshire and ensure that customer expectations are exceeded.
9.19 Heart of England Tourism (the regional tourist board), have also confirmed their support in principle for the proposals. Nigel Russell of Heart of England Tourism stated at a presentation to North Warwickshire Council members on the 8 August 2006 that North Warwickshire needs to invest in its tourism offer in order to compete; that the Belfry is an iconic destination and very important tourist asset for the region and that major development will be required at the Belfry to make it distinctive enough to successfully operate in this market.
9.20 Overall, the above tourism and economic development strategies recognise the crucial role of tourism and the importance of encouraging this sector to continue to grow, they therefore seek the improvement of tourist facilities and increases in tourist spend. The proposals would directly contribute to the achievement of these objectives.
Conclusion
9.21 In conclusion, the proposed redevelopment will deliver overwhelming benefits to the tourism industry and will make a positive contribution towards meeting local and regional tourism and economic development strategies.
56
10.0 ECONOMIC BENEFITS
Introduction
10.1 The following section identifies the economic benefits that will arise for the proposed redevelopment.
10.2 The economic benefits that arise for the proposal are an important impact of the development and must be taken into consideration as ‘very special circumstances’ to be weighed against any perceived conflict caused with Green Belt policy.
Impacts of Development
10.3 The economic benefits associated with the proposed development are set out in the accompanying Socio Economic Assessment. The Strategic Tourism Appraisal, undertaken by the Heart of England Tourist Board and the Quinn Hotels Business Statement also highlight the benefits.
10.4 Discussions with Quinn Hotels and the PGA indicate that the numbers employed at the site, relating to the hotel and golfing facilities, will increase as a result of the proposed redevelopment. It is anticipated that the total number of jobs within the site will increase by 80 and the number of full time equivalent jobs will increase by 175.
10.5 In addition to these new jobs, the step change in the quality of facilities associated with a 5 star facility will necessitate significant investment in staff, with additional training opportunities being provided, consequently improving the level of skills amongst employees. As noted in the Quinn Hotel Business Statement, there are a number of hotels within the industry that are considered to be an aspiration to work at. The Belfry was once considered to be one of these, although this is no longer the case and has led to the regions best employees moving out of the area. In order to service the proposed development Quinn Hotels are looking to work in partnership with the College of Food, Tourism and Creative Studies to develop the best staff in the industry and retain them in the region.
10.6 With regard to job displacement, since the proposed hotel will be located within a private golf club, and the redevelopment will enhance the quality of both the golfing and hotel facilities, it appears likely that the proposals will generate demand for hotel rooms from leisure visitors, golfers and business users from a largely different market
57
to that sought by other hotels in the area. The proposed hotel is also larger and of higher quality than many others in the area. Therefore the proposed facilities are unlikely to directly compete with other hotels and facilities in the area and are thus unlikely to result in any job displacement.
10.7 Since the Belfry’s departure from De Vere in April 2007, it has started sourcing local suppliers that can demonstrate local links and knowledge and has a genuine commitment to supporting local agriculture by trying to source local ingredients where cost and quality will permit. The proposed redevelopment will increase demand for local produce and will have a beneficial impact on the local economy.
10.8 The spending of wages from the employees on the site, and of the local firms supplying goods to the hotel will support induced employment in local shops, services and other firms.
10.9 In addition to this, the construction period will generate a significant amount of employment in its own right. The Socio Economic Assessment indicates that an average of between 285 to 350 job opportunities per year could be directly created during the construction programme. It is also likely that some businesses in the local area, as well as in the regional economy, would benefit from the trade linkages that would be established to construct the development. This means that further indirect jobs would be supported locally in suppliers of construction materials and equipment.
10.10 It is not uncommon for the economic benefits of a proposal to be accepted as very special circumstances justifying a development in PPG2 terms, particularly where the development will bring a large-scale or high proposal investment to an area.
Conclusion
10.11 Through the creation of new employment opportunities, increases in both day and overnight visitors to the area and the development of new high quality tourist accommodation and sporting facilities, the development will assist in promoting the economic well-being of the area and the growth of tourism sector in accordance with economic strategies.
58
11.0 ARCHITECTURE AND DESIGN
Introduction
11.1 The earlier sections of this statement have described how built development within the site has evolved in an incremental manner. As a result, the site has a sprawling appearance comprising a series of buildings that fail to relate positively to one another and project a poor outward appearance. The proposal presents an opportunity to secure the comprehensive redevelopment of the site that will significantly improve its architectural merit.
11.2 The following section of this report highlights the architectural and design improvements that will be delivered through the redevelopment and assesses the proposal against the design criteria established through relevant planning policies, in particular policies ENV12 and ENV13 of the Local Plan.
11.3 It is also considered that the significant improvements to the architectural merit of the Belfry development represent ‘very special circumstances’ that should be balanced against any perceived conflict with Green Belt policies.
Compliance with Design Policies
11.4 The proposed development is considered to comply with the requirements of Local Plan Policies ENV12 and ENV13. In particular, it is noted that the proposed redevelopment will deliver a series of high quality buildings and spaces that integrate well with each other and make a positive contribution to their surroundings. The relationship of the buildings to each other and their surroundings will create a distinctive sense of place and result in a visually attractive environment.
11.5 In terms of the relationship between the key buildings, the new redevelopment will be centred on the Brabazon building, which will re-instate the historic and iconic façade as a focal point and backdrop to the 18th hole. This sets the axis for the new, contemporary hotel building, set behind the Brabazon building, and centred within the retained tree arc. A formal setting of landscaped gardens is set out providing a positive interface between the two buildings. The curved glass façade of the hotel building reflects the Brabazon façade and creates a clear relationship between the two buildings.
59
11.6 The proposed PGA building will be sited to achieve a clear association and link with the driving range. It has also been positioned on an axis so that the main façade faces towards the proposed Brabazon and hotel building.
11.7 The new buildings have specifically been designed and sited to integrate within, and make optimum use of existing landscape features and the natural grain of the site. The proposed redevelopment includes detailed landscape proposals to enhance the character and visual attractiveness of the site. In particular, the landscape proposals have been designed to bring the landscaping into the building, linking the external spaces with internal accommodation. Furthermore, the proposal responds to opportunities to improve the character of the wider site by providing additional layers of landscaping.
11.8 The proposed redevelopment will secure a significant reduction in the existing built footprint (48% reduction) of the site and the extent of above ground car parking and hard surfacing, successfully enhancing the open characteristics of the area.
11.9 The buildings have been sited and designed to work with the grain of the site, with the new buildings positioned and integrated within existing landscape features. The need to protect views into the site has been a key consideration and significant reductions to the height of the proposed hotel building were made to ensure that it integrated well within the existing arc of trees and did not protrude above the tree canopy. The height of the new buildings has been restricted to ensure that no built elements exceed the prevailing height of the tree canopy. The replacement PGA building has also been carefully designed and sited within a natural fall in the site to minimise its visual impact.
11.10 In order to minimise the scale and massing of the new hotel building, key function facilities and all delivery and service accommodation will be provided at sub ground floor level. Changing and servicing facilities associated with the Brabazon building are also to be provided within a landscaped mound below the pavilion. This will retain the domestic scale and appearance of the existing iconic façade, protect views into and across the site, whilst meeting accommodation requirements.
11.11 The proposed redevelopment includes the construction of a new Brabazon pavilion building which re-instates the existing distinctive elevation. The proposed building will be constructed in proportions and materials to match the existing building, including the use of local stock brick and salvaged roof slates. The windows are proposed to
60
be painted timber in traditional proportions, including ground floor projecting bay windows and dormer details. Open eaves and splayed-hip roof details have been incorporated so that the building accurately resembles the historic façade.
11.12 The new hotel building is to be contemporary in style and design although the materials, detailing and choice of colours have been informed to some extent by the traditional Brabazon building. Cast stone, local stock brick and glazed elements are used within the elevations and a continuous roof treatment over a light-weight top storey helps reduce the visual height of the building. The buildings elevational treatment is interrupted at entrances by curved glass facades providing visual links into the building and connecting inside and outside spaces. The extensive use of glass reflects the surrounding natural environment and the detailing and choice of colours ensures that the building has a light and warm appearance.
11.13 The replacement PGA building will be constructed from local stock bricks in a red colour to match the driving range buildings façade. Traditional detailing along with a slate tile roof with open eaves and dormer details will be used to match the Brabazon building. The Energy Centre will be screened by brick walls constructed of local stock bricks.
11.14 The exceptional design of the proposed redevelopment will be both an internationally iconic well-known building and carefully designed to be a sensitive development which has a minimum visual impact on its surroundings.
11.15 As outlined in the Design and Access Statement that accompanies the planning application, Quinn Hotels have demonstrated flexibility in the format of the proposed development, which has evolved in response to comments by planning officers and public consultation.
Conclusion
11.16 The proposed redevelopment creates an opportunity to significantly increase the architectural merit of built development at the Belfry. The proposal will result in the removal of buildings that have no architectural merit and relate poorly to one another and their replacement with a high quality and well conceived scheme.
11.17 The proposed development complies fully with national and local planning guidance on design and will also successfully deliver improvements to the openness of the Green Belt. 61
12.0 SUSTAINABLE DEVELOPMENT
Introduction
12.1 The proposed redevelopment will result in a more energy efficient and sustainable development than the existing situation.
12.2 The sustainability benefits that arise for the proposed redevelopment and the impacts that this will have on reducing energy consumption and CO2 emissions are an important impact of the proposal and must be taken into consideration as ‘very special circumstances’ to be weighed against any perceived conflict caused with Green Belt policy.
Benefits
12.3 The redevelopment will enable improvements to be made to the impact of the Belfry on the environment. In essence the redevelopment presents the opportunity for the Belfry to become an exemplar of Sustainable Development. Sustainable development objectives have been considered throughout the design of the proposals, enabling such considerations to be integral to the development. This approach is perhaps in contrast to many developments, where sustainability issues are ‘tagged’ on by only being considered during the later stages of design.
12.4 The Sustainability Statement and BREEAM Pre Assessment Report, which accompany this planning application detail how the proposals meet sustainability criteria. By way of a summary, it is emphasised that:-
a) The development will strive to meet BREEAM ‘vary good’ rating;
b) The buildings will be served by an extensive system of energy reclaim devices resulting in a significant reduction in CO2 emissions.
c) The Belfry Hotel design is such that it will substantially reduce its carbon emissions and energy consumption. There is a commitment to achieve a >15% improvement on the 2006 building regulation requirements with respect to CO2 emissions and provide 10% of the developments energy from low or zero carbon emissions technology.
62
d) A sustainable approach to water reuse will be taken to minimise the environmental effects of the development. In particular, a new sewage treatment plant will be provided and treated effluent will be reused for irrigation and as flush water to serve water closets within the hotel and Brabazon buildings. Rainwater from roofs and hardstanding areas will also be harvested for reuse.
e) A sustainable urban drainage system (SUDs) will also be incorporated into the development.
f) The development will reduce the risk of flooding since additional storage will be provided and the surface runoff rate will be attenuated.
g) The proposals involve the re-use of excavated materials and demolition waste in the landscaping and re-profiling of the golf course areas.
h) A Green Transport Plan will be implemented to reduce reliance and the number of trips made by private car.
12.5 This focus on sustainable development principles is fully supported by government objectives including those expressed by planning policy. In particular:-
As the document title suggests, a key focus of PPS1 (Delivering Sustainable Development, 2005) is achieving sustainable development.
PPS 22 (Renewable energy) includes some specific aims, which include encouraging developers to consider the opportunity for incorporating renewable energy projects into new developments (paragraph 18) and requiring proposals to demonstrate environmental, economic and social benefits (paragraph 1 viii).
Policy QE3 of RSS11 refers to the need to incorporate various sustainability considerations into the design of development, many of which have been incorporated into the Belfry proposals.
Policy ENV10 (Energy generation and conservation) of the Local Plan requires major developments to produce 10% of their energy requirements on site from renewable energy resources and for their siting, design and layout to avoid the unnecessary waste of energy resources and raw materials.
Conclusion 63
12.6 The proposed redevelopment will have a positive effect on the sustainability of the Belfry, resulting in more energy efficient buildings and reducing demands for energy. In addition, the proposal will meet 10% of the total building’s energy demand by on site renewable energy.
12.7 The proposed redevelopment will also result in the efficient use of water, incorporating water harvesting measures and sustainable urban drainage systems.
12.8 The proposed development complies with national and local planning guidance on energy generation and conservation.
64
13.0 TRAFFIC AND TRANSPORT IMPLICATIONS
Introduction
13.1 The following section assesses the traffic and transportation implications of the proposed redevelopment. Traffic and transportation issues are dealt with in detail in the accompanying Transportation Assessment. Reference should also be made to the Green Travel Plan and the Events Management Plan. The following highlights the salient points.
Site Location
13.2 PPG13 reaffirms the adoption of the sequential approach to site selection. We acknowledge that the site is not as accessible by all modes of transport as some town centre sites would be. However, as outlined above, the choice of location has been determined by a very specific need for the development which cannot be met elsewhere. In such circumstances, planning policy advises planning authorities to weigh up the other benefits of tourism proposals against any disadvantages arising from its location (paragraph 5.5 of the Good Practice Guide on Planning for Tourism, May 2006). In any event, a number of methods have been adopted to enable the proposed development to lead to more sustainable patterns of transport than at present.
Proposed Access and Traffic Impact
13.3 The Transport Assessment undertaken to accompany this planning application demonstrates that the effects of the proposed Belfry redevelopment on the wider traffic network are negligible and that the local road network is capable of accommodating traffic to and from the development without problems.
13.4 The proposals also involve improvements to vehicular access to the Belfry. The application includes alterations to the roundabout at the intersection of Lichfield at Tamworth Road, to facilitate direct access into the site. This will enable the Lichfield Road access to be closed (except for emergency access). As set out in the TA, this will deliver significant benefits to highway safety. This revision to access arrangements at the Belfry has been considered by the Council, when an application for similar changes to access was submitted and approved in 2000. The proposals
65
have also been discussed with the Highways Agency prior to the submission of this application.
Reducing overall trip generation
13.5 It is understood that the development will not lead to a substantive increase in traffic. Although the proposals involve an increase in the number of bedrooms at the hotel and improved facilities, any increases in traffic movement associated with this will be countered by the more sustainable patterns of movement enabled by the development. In particular :
The proposals are associated with an increase in the average length of stay. At present, the hotel experiences an extremely high turnover rate (one of the highest in the UK), with a high proportion of customers staying just one night. It is anticipated that the enhanced accommodation and associated facilities offered by the redevelopment will attract visitors to stay for longer and will attract more visitors from overseas, who in general stay a longer period than customers who have travelled a shorter distance.
The redeveloped site will enable changes to delivery regimes allowing there to be no material increase in delivery traffic. Quinn Hotels are committed to using local suppliers which means that smaller, individual deliveries may result. However, this is likely to result in a reduction in overall delivery miles. Furthermore, the redevelopment includes an in-house laundry obviating the need for laundry collection and delivery.
Quinn Hotels are committed to implementing a Green Travel Plan to ensure that staff and visitors use more environmentally friendly forms of travel than single occupancy private car use.
Promoting travel by public transport, cycling and walking
13.6 PPG13 identifies planning as helping to reduce the need to travel, reduce length of journeys and making it easier to access facilities by public transport and for pedestrians/cyclists. The proposed development seeks to promote these transport objectives. The Green Travel Plan prepared in association with the development proposals will help ensure that access by public transport is a realistic choice for visitors to the Belfry. For example:-
66
Potential opportunities for developing packages with train operators are being assessed to encourage use of the Coleshill Parkway Multi Modal Interchange (rail / bus / pedestrian / cycle / car interchange), which is due to open in October 2007. Shuttle services would be provided by Quinn Hotels to lin the facility with the site.
Staff bus services to be extended to tie in better with home locations and shift patterns. Consideration is also being given to regular courtesy shuttle buses picking visitors up from key rail terminals as well as Birmingham International Airport.
On site cycle facilities will be improved through the provision of cycle parking and the posting of details of external cycle routes. The setting up of a bike users group (BUG) will also be looked into. Showers and lockers will be provided to support staff that choose to cycle to work.
13.7 In addition, the development accords with Policy TPT3 of the Local Plan, which requires the siting and layout of new development to be designed in a way which makes provision for safe and convenient pedestrian access and circulation. For example well lit, traffic free routes will be incorporated into the design of the site. In addition servicing will take place in purpose designed areas to avoid conflicts between delivery vehicles and users of the site.
Car parking standards
13.8 The parking standards for North Warwickshire District Council do not adequately cover unique facilities such as The Belfry. Whilst it is important not to over provide for parking in this Green Belt location, it is essential to the type of business carried out at the site that there is adequate parking provision for ‘a very busy day’ in order to avoid cars parking on verges alongside the Tamworth or Lichfield Roads. The level of parking proposed (700 surface spaces and 900 below ground) match with predicted parking accumulations on site. It is specifically noted that there is only 200 spaces more than the current parking levels. This is equivalent to a 15% increase in parking for a 54% increase in hotel rooms.
Major Events
13.9 In addition to the preparation of a Transport Assessment and Green Travel Plan, an Event Management Strategy has been prepared, which sets out the proposed 67
procedures for dealing with major events and tournaments, including the Ryder Cup. It is recognised that the specific management of events will require joint working between the public and private sector and the formation of working groups in the run up to major events. Representatives will include the County Councils Traffic Manager, along with representatives from the police, fire, ambulance and local authority.
Conclusion
13.10 It is concluded that although the proposed development delivers a step change in the quality of facilities provided and increases the number of hotel rooms available, there will not be a material increase in the number of external traffic movements. In addition, a Travel Plan will be implemented at the site to encourage a modal shift away from sole occupancy private car journeys.
13.11 It is concluded that the proposed access arrangements will provide safe, efficient and convenient access into the site.
68
14.0 COMPLIANCE WITH EMPLOYMENT LAND POLICIES.
Introduction
14.1 Due to the relatively high number of people employed at the Belfry, it is considered appropriate to assess the impact of the proposals against planning policies, which seek to protect existing employment sites against inappropriate development. In particular, the proposals will be assessed against Local Plan Policy ENV7 (development of existing employment land outside defined development boundaries).
Assessment
14.2 Policy ENV7 requires existing employment land outside defined development boundaries which is not redundant to remain in its existing and continuing use. The proposed redevelopment of the Belfry complies with this objective in that it seeks to enhance the viability of the business and ensure increased support for local employment.
14.3 Policy ENV7 specifically requires proposals to accord with a number of criteria, which will now be considered in turn:
i) The proposal should not represent inappropriate development within the Green Belt. Earlier sections of this report have described the significant benefits to the Green Belt that are delivered through the proposed redevelopment and the very special circumstances that arise, which outweigh the presumption against development within such designations.
ii) The applicant should occupy the land with the benefit of an extant planning permission for the use concerned, or the existing use is otherwise a lawful one in planning terms. The existing use of a hotel at the Belfry is long-established and lawful. The proposed development does not introduce new uses to the site.
iii) There should be no quantitative increase in employment floorspace. The redevelopment will lead to an increase in potentially employment generating floorspace. However, as set out in the earlier section of this statement, the proposal will not compete with existing employment generating floorspace in surrounding urban areas and is thus not considered to cause any conflict with this policy criteria.
iv) The proposed development is necessary to secure existing jobs. The proposed development will safeguard the long-term future of the Belfry and will therefore secure existing jobs. The phased approach to redevelopment will ensure that staff are retained during the redevelopment process.
v) Lasting environmental improvement of the site commensurate with the scale of the project would be secured. The development will lead to significant 69
environmental improvements to the site compared to as present. The sustainability credentials of the buildings will be significantly enhanced and the improvements to the visual amenity of the site enabled by the redevelopment are also significant. The environmental benefits of the proposed redevelopment have been set out in detail in the earlier sections of this statement.
vi) The proposal includes measures to avoid giving rise to additional unsustainable patterns of travel and transport. The Green Travel Plan which has been submitted as part of the application sets out a number of measures intended to promote sustainable patterns of travel and transport and promote a modal shift away from travel by private car.
14.4 In conclusion, it is considered that the proposed redevelopment raises no material conflict with relevant employment land policies.
70
15.0 CONCLUSIONS
15.1 In conclusion, the proposed redevelopment of the Belfry to provide a world class, golf led hotel and leisure resort has significant merit in planning terms and broadly complies with national and local planning guidance.
15.2 The key planning issue that arises from the proposal relates to the location of the application site outside of the urban area and within the Green Belt. Notwithstanding the thrust of national and local planning policy guidance, which seeks to secure sustainable patterns of development and establishes a presumption against inappropriate development in the Green Belt, there are material planning benefits delivered through the redevelopment that outweigh any disadvantages that arise from the site location. In particular, the proposal will:-
Meet an identified need for the proposed facilities in the area;
Deliver significant sporting benefits through the provision of enhanced PGA accommodation and facilities; improved golf club facilities; and by significantly improving the prospects of the complex hosting major sporting events, including the Ryder Cup, in the future;
Provide a major boost to both leisure and business tourism sectors of the economy, in accordance with national, regional and local tourism and economic development strategies; and,
Deliver significant economic benefits to the area through increased tourist spend and increased support for local employment.
Result in the removal of outdated buildings that have no architectural merit and project a poor outward appearance, and their replacement with a high quality and well conceived scheme;
Reduce the built footprint of the site by 8740 sq m (48% reduction) and the extent of hardstanding within the site by 2990 sq m (11% reduction), resulting in material improvements to the openness of the Green Belt;
Significantly improve the energy efficiency and sustainability of the site; and,
Create an opportunity to improve the landscape and biodiversity value of the site.
15.3 For the above reasons, we request that positive and expeditious consideration is given to this planning application.
71
APPENDIX 1
72
APPENDIX 2
73 Nathaniel Lichfi eld and Partners: T: 0161 837 6130 E: [email protected] www.nlpplanning.com