SnowdoniaNationalParkAuthority SupplementaryPlanningGuidance: VisitorAccommodation October2012 8
SNOWDONIA NATIONAL PARK AUTHORITY SUPPLEMENTARY PLANNING GUIDANCE: 8 VISITOR ACCOMODATION
Contents 1 Introduction... 5 2 Status... 5 3 Tourism and the National Park... 5 4 National Planning Policy... 6 5 Sustainable Tourism... 6 6 Existing Serviced Accommodation... 7 7 Existing Self Serviced Accommodation and Conversions... 8 8 New Tourist Accommodation... 8 9 Improvements to existing chalet and static caravan sites... 9 10 New forms of static accommodation... 10 11 Pods... 10 12 Yurts and Tepees... 10 13 Touring and camping sites... 11 14 Application for season extensions on Touring Caravan Sites... 12 15 Touring Caravans - Winter Storage... 12 Appendix 1... 13 Appendix 2... 14
1 Introduction 1.1 This guidance is one of a series of Supplementary Planning Guidance (SPG) documents which provide detailed information on how policies contained in the Eryri Local Development Plan (ELDP) will be applied in practice by the National Park Authority. The contents of this SPG is a material planning consideration and is for planning officers, planning specialists and members of the public. The contents of this document aims to provide more detailed guidance on tourist accommodation within the National Park Authority Area. 1.2 Purpose of the Supplementary Planning Guidance Provide an overview of various types of tourist accommodation Provide more detailed guidance to users of the planning system on how the policies will be applied Give greater guidance on what is meant by environmental improvements on static and touring sites Outline under which policies within the LDP various new forms of tourist accommodation will be considered Provide guidance to assist officers and members in determining planning applications for tourist accommodation 2 Status 2.1 This SPG had been subject to public consultation and has been formally adopted by the Authority. It is now a material planning consideration when determining planning application and appeals. The most relevant policies in the ELDP are; Development Policy 9: Conversion and Change of Use of Rural Buildings Development Policy 21 Tourism and Recreation Development Policy 22 Chalet and Static Caravan Sites Development Policy 23: Touring and camping sites Strategic Policy I Tourism 2.2 The policies above can be seen in appendix 2 and a glossary of key terms used in this SPG is set out in appendix 1. 2.3 In addition to the above policies further information regarding landscape considerations for development can be found in the Landscapes of Eryri Supplementary Planning Guidance. 3 Tourism and the National Park 3.1 Through tourism it is possible to help to deliver one of the statutory purposes of the National Park that is to promote opportunities for the understanding and enjoyment of the special qualities of the National Park. It is therefore important, through the planning process, to encourage appropriate development opportunities for tourism related proposals.
4 National Planning Policy 4.1 The Welsh Government s objectives for tourism are set out in paragraph 11.1.2 of Planning Policy Wales (PPW) and are as follows: To encourage sustainable tourism in Wales, promoting local prosperity and supporting community well-being and involvement, while protecting and giving value to natural heritage and culture and To manage the tourism sector in ways which minimise environmental impact? 4.2 PPW (edition 4) paragraph 11.1.6 and 11.1.7 states that: Much of the existing provision of facilities and accommodation for tourism occurs in urban locations, including historic and coastal towns. In some places there may be a need to limit new development to avoid damage to the environment (for example in undeveloped coastal areas) or to the amenity of residents and visitors. In rural areas, tourism-related development is an essential element in providing for a healthy and diverse, local and national economy. It can contribute to the provision and maintenance of facilities for local communities. Here too development should be sympathetic in nature and scale to the local environment so as to help bring about regeneration, particularly of former industrial areas. 4.3 In addition to this PPW paragraph 11.3.1 states that in determining planning applications for tourism developments, local planning authorities need to consider the impact of proposals on the environment and local community. They may seek to reduce the impact of development using arrangements for traffic and visitor management. 4.4 The Authority will take into account all of the above when determining planning applications and in particular that development in rural areas should be sympathetic in nature and scale to the local environment. Further advice contained in Technical Advice Note 13 Tourism will also be considered. 4.5 The important role of tourism within the local economy is recognised by the Authority and polices within the LDP are supportive of sustainable tourism development, providing it is not at the expense of the landscape and the natural or historic environment. 5 Sustainable Tourism 5.1 Sustainable tourism as defined by the European Charter for Sustainable Tourism is any form of development, management or tourist activity which ensures the long-term protection and preservation of natural, cultural and social resources and contributes in a positive and equitable manner to the economic development and well-being of individuals living, working or staying in protected areas. 5.2 The Authority will support sustainable tourism proposals through Policies I and 21 of the ELDP provided all other policies in the Plan are satisfied. 5.3 It is difficult to define what a sustainable tourism proposal is but, as an example, it may share a combination of the following factors.
Serve visitors and residents alike and generate benefits for the local economy and services Be in a sustainable location within or close to existing settlements or within an existing tourism attraction with existing facilities and infrastructure Be accessible to different modes of transport e.g. train, bus, cycle tracks and walking routes Have good connections with the existing main road network Provide access to all in particular disabled people? Makes appropriate use of existing buildings and developed land Does not have an adverse impact on the landscape, any or any designated sites of landscape, heritage or biodiversity importance including listed buildings, scheduled ancient monuments and register historic parks and gardens. Avoids adverse impacts on undesignated features of the historic environment or implements appropriate measures to mitigate against any such impacts. Respects the setting of existing building(s) in terms of scale, design and materials. Gives people the opportunity to understand and enjoy the special qualities of the National Park such as its outstanding beauty, tranquillity, historic environment and culture Is energy efficient and makes use of renewable resources without harming the environment Conforms with all other policies of the ELDP 6 Existing Serviced Accommodation 6.1 The benefits of hotels and guest houses to local communities are recognised by TAN 13 (Tourism) as is the impact the loss of hotels to alternative uses. TAN 13 states that: The conversion of hotel stock to alternative uses can weaken a seaside town s ability to retain its resort status, and this issue should be addressed in development plans for such areas. Care should be taken not to use the planning system to perpetuate outdated accommodation for which there is no longer a market demand. 6.2 Through the Local Development Plan the Authority aims to support proposals to improve the quality of existing serviced accommodation (including hotels and guest houses), in preference to new build tourist accommodation. The main policies that will be considered when determining proposals for the upgrading of existing serviced accommodation and proposals for new serviced accommodation will be Strategic Policy I and Development Policy 21. 6.3 In recent years there has be a loss of guest houses and hotels within the National Park especially in more coastal regions. This loss has been as a result of the change of use from guest houses to self catering units and other non-tourist uses. Whilst the
Authority recognises that accommodation needs within the National Park changes over time, there is still a market for hotels and guest houses and they are an important part of the range of accommodation offered to visitors to the park. In addition to this, serviced accommodation can make a greater contribution to the National Park economy. The coastal areas are particularly dependant on the availability of serviced accommodation as it provides jobs and ensures that visitor spend is within the local area. The Authority will seek to maintain the serviced accommodation sector by supporting the improvement of facilities and services provided by this sector and the upgrading of existing accommodation. Due to the importance of hotels and guest houses as outlined above, and in accordance with Policy 21 : Tourism and Recreation, proposals to convert serviced accommodation to other uses, particularly if those uses will mean that the conversion back to serviced accommodation in the future will not be possible will be resisted.. 7 Existing Self Serviced Accommodation and Conversions 7.1 The number of self serviced units within the National Park is significant, with a large percentage of these units located along the coastal areas. Evidence collected and presented in the Tourism Background Paper as part of preparing the ELDP, indicated that there is an over provision of self catering accommodation within the National Park. Such accommodation includes caravans, chalets and also holiday houses, cottages and flats. Visitors staying in these types of accommodation do not make such a contribution to the local economy as they bring provisions with them from their own homes. Many of the larger caravan parks offer a range of facilities on site thus reducing the need to spend in the wider surrounding economy. 7.2 Also, in the case of existing self catering cottages and houses, an extension to the holiday season will be considered subject to a condition placed on it that the occupancy is for short term lets only (normally not exceeding 28 days). This condition would be to ensure that the house remained for holiday use rather than as a permanent dwelling. As part of this condition the Authority will request that a list of occupants is kept for the property and the Authority will make a request to see a copy of this list annually to ensure that the property is being occupied in line with the conditions of the planning permission. 7.3 Development Policy 9: Conversion and Change of Use of Rural Buildings of the ELDP supports the conversion of rural buildings for use as short term (normally not exceeding 28 days) as self catering properties. Converting rural buildings will encourage the reuse of underused or redundant buildings which may enable traditional buildings to be brought back into use and preventing further decay. The sympathetic reuse and refurbishment of traditional buildings will make a positive contribution to the built environment of the National Park. 7.4 Permission will only be granted providing the conversion is appropriate within the landscape and conforms to policies within the LDP. As outlined above a condition will be placed on the property requesting that a list of occupants staying at the property is kept in order to ensure the property does not become a permanent residence. The Authority will make a request to see the information annually to ensure that the condition is being adhered to. 8 New Tourist Accommodation
8.1 The provision of high quality serviced accommodation is more likely to be sustainable as part of an existing tourist attraction and therefore to conform to the principles of sustainable tourism (as outlined on page 2) and with Strategic Policy I: Tourism and Development Policy 21: Tourism and Recreation. In the context of this policy, tourism development can mean both tourist attractions and accommodation. There will generally be a presumption to improve existing attractions and accommodation as part of this policy. New build self catering accommodation will only be considered exceptionally by the Authority, if it can be proven that there is a need for it to support the viability of an existing established tourism attraction and it conforms to other polices in the LDP. New build self catering accommodation proposals, unrelated to existing tourism facilities or attractions, within or outside housing settlement boundaries, are unlikely to receive support as they would be contrary to Housing Policy G which seeks to promote permanent affordable dwellings for local people. 8.2 Some large tourism proposals could be classified as major development and therefore would have to be considered against Strategic Policy B Major Development. Any new development that is associated with tourism should support the principles of sustainable tourism and development and conform to the relevant policies within the LDP. The proposal should be compatible with the character and capacity of the site especially in terms of scale and siting within the landscape and conform to Development Policy 1. 9 Improvements to existing chalet and static caravan sites 9.1 TAN 13 (Tourism) states that: New and extended sites should be effectively screened, and planned so as not to be visually intrusive. And in some cases to facilitate improvement or relocation, local planning authorities may need to consider some expansion of the area covered by a site, so that improved layouts and better landscaping can be implemented. Local Authorities may also need to consider dividing large sites into smaller units to reduce the overall environmental impact. 9.2 In line with TAN 13 Tourism, Policy 22: Chalet and Static Caravan Sites within the ELDP supports the environmental improvement and upgrading of facilities on static caravan and chalets sites to reduce their impact on the landscape of the National Park. There are however some areas of the National Park where large static caravan sites have a huge impact on views within, into and out of the National Park. The caravan units are set in regimented rows with little or no screening to soften their impact on the landscape. They also have little or no internal landscaping in order to break up their visual monotony within the landscape. 9.3 The openness of coastal areas are not suited to caravan development, as the landscape has few natural landforms or areas of woodland which would offer screening. They are also overlooked by higher ground. The majority of the large sites are located along the Ardudwy Coast and have a significant effect on the landscape. For this reason the aims of the policies within the LDP are to reduce the impact of the existing sites by not allowing any addition to the number of existing pitches or new sites. The Authority will however support the upgrading of facilities within sites. Exceptionally, site extensions could be permitted, if this is s part of an overall environmental improvement to the site and results in reducing the overall impact of the site on the surrounding environment.. 9.4 Development Policy 22: Chalet and Static Caravan Sites is the controlling policy. If a site extension is proposed, the applicant will need to clearly show how the development benefits the site and is a genuine proposal to reduce environmental
impacts and not an attempt to simply extend boundaries to create more space for development within the site. As an example a physical extension could be supported if this helps to reduce densities within a caravan park and creates more space for landscaping leading to an improved overall layout. 9.5 When submitting a planning application, the Authority will expect developers to provide sufficient evidence to support the need for extending the area of the site. This evidence should include the following: The reason for wishing to extend. The significant and permanent environmental improvements proposed these could include: more effective landscaping, improved layout, improved facilities such as play areas and overall reduced densities which will not subsequently be increased. As part of the planning application, applicants will be expected to produce a master plan of the site including any landscaping proposals clearly showing existing facilities and layout and the proposals for change. 10 New forms of static accommodation 10.1 In recent years there has been an increase in the types of self catering mobile accommodation on the market. Due to their relatively recent development, these new forms of temporary accommodation are not covered by the Caravans and Development Control Act 1960. Given that they are not defined in the Act and therefore have no standard definition within planning, the Authority has used the existing definitions in the Act to define the various types of accommodation now available. The various types of accommodation are defined below and under which policies in the ELDP they will be considered. 11 Pods 11.1 These are units constructed usually out of timber and have a floor and a roof. They can be accessorised with beds and oil heaters. They are usually constructed off site and are transported on to site as a completed unit. For this reason the Authority considers that Pods fall under the latter part of the static caravan definition in the Caravan Act as they can be transported on the back of a motor vehicle or trailer. Pods are also unlikely to be moved off the site when not in use (unlike a touring caravan or tent) and are therefore likely to have a greater impact on the surrounding landscape due to their permanence. 11.2 For the avoidance of doubt therefore, pods will be treated in planning policy terms the same as static caravans and therefore considered in accordance with Policy 22: Chalet and Static Caravan sites of the ELDP. Under this policy the Authority would give favourable consideration to the replacement of static units with pods as part of an overall site improvement plan. 12 Yurts and Tepees 12.1 Yurts are more often than not large tent like structures with wooden frames and solid front doors. They often have beds and wood burning stoves within them. They can be
considered more like semi permanent structures take time to erect and are far larger than traditional canvas tents. 12.2 Tepees are conical shaped structures with wooden poles which provide a stable frame. They often contain beds, wooden floors and wood burning stoves or open fires which again make the structures more permanent than more traditional canvas tents. 12.3 These types of accommodation have arisen in recent years with the rise of alternative camping accommodation and holiday experience known as glamping (glamorous camping). Such accommodation has potentially more impact on the environment. 12.4 Such structures are not considered to be static caravans or tents as they are more permanent than traditional tents. They are large and complex to erect and for this reason are likely once erected to remain on the site throughout the holiday season. This means that they have a greater impact on the surrounding landscape than a more traditional tent which more often than not is on the site for a few days or a week at most and is considerable smaller. In this sense they are more like touring caravans and will be considered by the Authority under Development Policy 23 Touring and Camping Sites. 12.5 It is important however to note that any decking or other works associated with the tepee s or yurts that fall into the category of development would need planning permission. Any works such as this would be unlikely to receive planning permission due to the potential increase in permanency of the structure and therefore its impact on the surrounding landscape. Due to their degree of permanency the Authority will consider any planning application for Yurts and Tepee s under Development Policy 22 Chalets and Static Caravans. 13 Touring and camping sites 13.1 The purpose of Development Policy 23: Touring and Camping Sites is to try to secure improvements to existing sites within the National Park, not to allow the creation of new sites. These improvements include both environmental and internal landscaping improvements to the site. The main aim of the policy is however not to allow for the increase in numbers of pitches on existing sites but to improve existing facilities and to minimise any impacts on the environment. However an increase in the number of pitches will only be permitted on appropriate sites where there are significant environmental improvements proposed and a reduction in impact on the surrounding landscape. The Authority will have to be satisfied however that the overall improvements to the site are significant enough to warrant the increase in pitch numbers. The Authority will not support the provision of new touring or camping sites within the National Park. 13.2 Sites which are seeking an extension already need to be well screened form main public viewpoints and the scale of any increase in pitches should be appropriate with its surroundings and in keeping with the size of the existing site. Improvements could include the moving of existing pitches to another part of the site that is better screened within the landscape setting or by providing additional new screening on the boundary and within the site. 13.3 The Authority will require a detailed plan of the proposed internal landscaping improvements as part of the extension or upgrading proposals. If the site extension
includes the addition of 10 or more pitches then the Authority will expect a Linguistic Impact assessment to be submitted along with the application. 13.4 Consideration will also be given by the Authority to the cumulative effect on the landscape of any increase in units on individual sites especially where there are a large number of sites close to each other. 14 Application for season extensions on Touring Caravan Sites 14.1 Consideration will be given to the extension of the season on touring sites for caravans that are on tour, providing the site is already well screened Screening by non deciduous will be a particularity important consideration in this instance to ensure that the site is well screened throughout the year. Where there would be an increase in the impact on the landscape as a result of winter storage the application would not be looked upon favourably. 15 Touring Caravans - Winter Storage 15.1 Applications for winter storage of touring caravans will be considered against the relevant policies in the Local Development Plan (as outlined previously) including Development Policy 2: Development and the Landscape and Development Policy 1: General Development Principles. Winter storage of touring caravans can have a negative impact on the landscape of the National Park, particularly if the proposed site is not well screened. The Authority will support storage within existing buildings (where suitable) to minimise the impact on the landscape, or on areas within the site that are well screened and hidden from public views. If the proposed winter storage site is not well screened, the Authority is unlikely to consider the scheme appropriate.
Appendix 1 Definition of a caravan in planning policy: Section 29 (1) of the Caravan Sites and Control of Development Act 1960 ( The 1960 Act ) a caravan is defined as any structure designed or adapted for human habitation which is capable of being moved from one place to another (whether by being towed, or by being transported on a motor vehicle or trailer) and any motor vehicle so designed or adapted but does not include: a) Any railway rolling stock which is for the time being on rails forming part of a railway system, or b) Any tent. Within the above definition the Authority has drawn a difference between touring and static caravans. Touring caravans fall within the former part of the definition that is a structure designed or adapted for human habitation which is capable of being moved from one place to another (whether being towed, and that static caravans fall within the latter or by being transported on a motor vehicle or trailer. Tents are not included within this definition. Second homes and holiday homes These are dwellings that are not the primary residence of the owner and are occupied usually for short periods of time during the year such as family holidays or weekends but are unoccupied more often than are occupied. Their contribution therefore to the local economy is far less than dwellings that are let out for paying visitors which are likely to be let out through the year and people who are staying will be spending in the local area.
Appendix 2 List of relevant policies Development Policy 9: Conversion and change of use of rural buildings (9) The conversion or change of use of redundant rural buildings outside any housing development boundary will be permitted for an employment use, short term self catering holiday accommodation or for affordable housing to meet local needs provided that the following criteria are met: i. The building is of permanent and substantial construction, of traditional form and character and has an architectural value worthy of preservation. ii. iii. iv. The building is capable of conversion without the need for significant rebuilding or extension which would harm its existing character. All external works including finishes and property boundaries are sympathetic to the character of the building, local building style and materials and do not harm the character of any surrounding building group. The proposal or any new ancillary structures do not harm the character of the landscape in which they are located. v. The proposal does not lead to the creation of new vehicular access or parking areas that would adversely affect the character or appearance of the building or that of the wider landscape. Where the proposal involves a listed building or a building of traditional form or design, the proposal conforms with Development Policy 7: Listed and Traditional Buildings. Proposals for new affordable dwellings will only be granted where the requirements of Strategic Policy G: Housing are met including the possibility of commuted sums. An independent structural survey will be required where there is any doubt over the structural stability of the building or it is considered that the proposed works would result in major or substantial reconstruction. Applicants must demonstrate that the proposed residential use would not displace an existing use which requires the construction of an alternative building to enable it to continue. Strategic Policy: I Tourism (I) In order to create and retain sustainable tourism within the National Park and extend the visitor period while protecting and enhancing the landscape of the National Park and its Special Qualities the Authority will: i. Support tourism and recreation development that is based on the principles of sustainable tourism. ii. Identify and promote areas of the National Park that attract visitors while ensuring that the Special Qualities of the National Park are not affected.
iii. iv. Promote sustainable modes of transport for visitors to and from the National Park. Support the accommodation industry by encouraging the improvement of the sustainability and quality of existing visitor accommodation. v. Encourage proposals which will promote the opportunity for the public understanding and enjoyment of the Special Qualities of the National Park including proposals that will assist disabled people. Development Policy 21 : Tourism and Recreation (21) Within the National Park the provision of existing tourist facilities will be protected and enhanced through adopting the principles of sustainable tourism. New tourism development and the enhancement of current facilities will be supported where: i. It can be accessed by various modes of transport, specifically sustainable modes of transport such as, walking, cycling and public transport. ii. iii. iv. It is located close to the main road network and does not cause an unacceptable increase in traffic in the vicinity. The development would not have an adverse impact on the Special Qualities of the National Park. It promotes opportunities for the understanding and enjoyment of the Special Qualities of the National Park, while not detracting from the quiet enjoyment, experience of visitors and the quality of life of the local residents. v. The facility is designed or modified to improve accessibility for all, in particular disabled people. vi. vii. viii. ix. It does not have an adverse impact on the views to and from the National Park and does not generate an increase in noise or light pollution. Current facilities will be improved or conversion of a vacant or underused building is proposed alongside efforts to improve its energy efficiency and/or provide a proportion of its energy requirements from appropriate renewable energy sources. There is sufficient land attached to the development or access to land through appropriate means for the proposed tourist facility. It would not affect the National Park s biodiversity resources including designated sites from an international through to a local level, as well as wider biodiversity resources e.g. habitats and species outside designated sites. The change of use of serviced accommodation to the non serviced sector, or its conversion to other non tourist uses which would prevent its subsequent re conversion back to serviced tourist accommodation, will not be permitted within the National Park unless to meet a recognised need for affordable housing.
Development Policy 22: Chalet and Static Caravan Sites (22) Within the National Park new static caravan or chalet sites, or extensions to existing sites, which involve an increase in the number of static units will not be permitted. The redevelopment of sites which may include improving or extending facilities within existing site boundaries, reducing densities or other beneficial environmental improvements will be supported, if there is an overall improvement to the site and its setting in the landscape. Exceptionally, static and chalet site areas may be enlarged, but without increasing pitches, where this would achieve clear overall environmental improvement, both to the site and its setting in the surrounding landscape. Proposals for the change of use of a static caravan or chalet from tourist use to residential use will not be permitted. Development Policy 23: Touring and Camping Sites (23) Within the National Park no new touring or camping sites will be permitted. The extension or upgrading of existing touring caravan and camping sites, will be permitted providing all of the following criteria are satisfied: i. The site is already well screened from public vantage points, and or there would be a reduction of its impact on the surrounding landscape. ii. iii. iv. The scale and layout of the extension or upgrading is appropriate within the landscape. The proposal protects and where appropriate enhances natural heritage interests. The proposal will significantly improve the internal landscaping of a site and increase the quality of the existing facilities, or develop new high quality facilities. v. The proposal is in keeping with the size of the existing site.