Community and Leisure Facilities

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Introduction

11.1. A wide range of Community and Leisure facilities are an essential element in the life and vitality of the City. Their provision is one of the key aims supporting the social and economic fabric of communities and seeking to attain a sustainable City where health, well being and quality of life are enjoyed by all.

11.2. This chapter relates mainly to the land uses defined by Classes D1 and D2 of the Use Classes Order. Class D1 covers the broad category of ‘non-residential’ institutions, including day nurseries, education and health facilities, places of worship, libraries, museums and public halls. Class D2 covers uses under the category ‘Assembly and Leisure’ including cinemas, concert halls, sports halls and other leisure uses such as casinos and bingo halls. In addition the policies relate to theatres and there is a policy on the location of hotels (Class C1) and on noisy sports.

11.3. Policies relating to facilities which contribute to the Strategic Green Network of the City, such as playing fields and allotments, are included in Chapter Ten.

Community and Leisure Aims

11.4. The aims of the Plan are to:

•  improve and enhance the range of community and leisure facilities and attractions to meet the needs of City residents and visitors;

•  safeguard and make best use of existing facilities, and to overcome deficiencies in the provision of specific facilities; and

•  seek facilities in accessible locations where they are needed.

11.5. The chapter sets out policies in two sections. Section one relates to the provision of facilities and allocation of sites, and section two contains policies on accessibility and location.

National Policy Context

11.6.  PPS1 notes that Plan policies should address accessibility for all members of the community to health, education, leisure and community facilities, and take into account needs relating to religion and ethnic background. PPS12 requires local planning authorities to adopt an approach to plan making that delivers sustainable development objectives by addressing social, environmental and economic issues, and considers the needs and aspirations of communities.

11.7. PPS6 requires that a sequential approach be taken to the location of key town centre uses such as major leisure developments. This is supported by PPG13 which seeks to concentrate facilities in centres well served by public transport and a choice of other transport modes such as cycling and by foot. PPG17 covers the provision of mainstream and specialist sports facilities. It also requires local plans to take account of the recreational needs of tourists and to encourage the development of facilities that benefit visitors and residents.

Local Policy Context

11.8. The City Council plays a leading role in the provision of facilities, and enabling new needs to be met. There are also other agencies - statutory, public and private, voluntary and charitable which ensure a wide variety of opportunities for community and leisure activities in the City. In particular the Leicester Regeneration Company Masterplan addresses the provision of new cultural, community and  tourism facilities to meet regeneration objectives. There is an ongoing need to improve facilities, widen the choice of activities to overcome localised deficiencies, and to encourage provision in appropriate locations. Whilst the majority of facilities cater primarily for the needs of local residents, some also serve the needs of people living outside the City. Major leisure and tourism attractions can draw visitors from the region and beyond.

11.9. Improving opportunities and accessibility to facilities is also one of the key sustainability aims of the Plan.

COMMUNITY AND LEISURE FACILITIES

11.10. Libraries, health facilities, and community halls should be provided at  Ashton Green. Provision at Hamilton will serve the new population as well as the Humberstone and Thurnby Lodge areas which are deficient in sports facilities.

11.11. The City Council wishes to ensure that there is adequate provision of sites and buildings for community and leisure uses in the City. Although the Council may not directly provide new facilities, it will assist in finding sites for these facilities.

11.12. The Plan identifies sites on the Proposals Map for community use, and within Potential Development Areas in Policies PS09a and b where a range of mixed uses are encouraged, including the potential for community and leisure facilities.

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11.13. For the purpose of this policy buildings in ‘community use’ include community centres, meeting halls and rooms, places of worship, education facilities ( all uses under Class D1 of the Use Classes Order), but not other leisure and entertainment facilities (Class D2 uses)

Community and Leisure Facilities in New Developments

11.14. The Plan seeks to provide a range of sites and facilities. As highlighted in the Implementation chapter, it is increasingly difficult for the City Council to provide for the appropriate range of facilities, especially in new development. The Council as ‘enabler’ will through partnerships seek the necessary funding available in order to secure provision.

11.15. Where development adds to demand for social, community, leisure, indoor sport, education, health, or social care facilities, the Council in addition to requiring new provision may also seek improvement to existing facilities. New provision and the appropriate improvements will be sought through planning obligations. (see Policy IMP01).

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Multi-Purpose Uses

11.16. The Council will seek to promote and maximise the potential for new and existing buildings to facilitate a range of suitable uses, and will investigate opportunities for multi - purpose use to ensure that communities are best served without duplication of effort. It is important that the widest possible use is made of buildings which can provide community and leisure facilities close to the areas where they are needed. This meets with a number of the sustainable objectives of the Plan, where best use of resources is achieved, accessibility to facilities is improved, and the need for travel is reduced. Schools and their grounds for example are frequently used for a variety of community and leisure activities.

Libraries

11.17. In addition to the allocation of a site for library facilities at Ashton Green Local Centre, the City Council is investigating opportunities in the City Centre for a single site for the Central Library which will provide a consolidated and improved library service. In order to maximise accessibility the new Central library should be located within the central shopping core. Appropriate uses will be sought for the three current Central library sites in accordance with the policies of the Plan.

Hospitals

11.18. The City’s three acute services hospitals are the Leicester General, Infirmary, and Glenfield. The three sites are expected to be able to accommodate the long term provision of services in Leicester. The Council will expect expansion on the sites to provide adequate provision for transport needs. The City Council will require travel plans for each site as part of any future re-organisation. Outline planning consent has been granted for the redevelopment of the three hospital sites. The planning permission for the Glenfield Hospital Site sets out  improvements to mitigate the impact of the additional traffic from the development and to allow Public Transport priority and cycle crossings at appropriate locations. These include general improvements to cycleways, footways and Public Transport to achieve a modal split of no more than 80% of trips by private car and improvements to the Outer District Distributor Road at the Anstey Lane and Groby Road roundabouts and the Aikman Avenue junction. Some improvements will be outside the City Boundary on the A50 corridor but the City Council will work with County Council to ensure that the improvements are provided in a way that does not impede the operation of the main roads during and after the construction of the new hospital developments.

Burial Grounds

11.19. This policy seeks to ensure that there is adequate provision to cover the needs of the City during the Plan period. Other sites suitable for use as burial grounds will be sought. There is also demand for a site for a crematorium to cater for the City’s Asian population and the Council will evaluate the potential of sites for this use.

11.20. Additional space has been provided at Gilroes within the Anstey Lane Green Wedge, at Saffron Hill Cemetery, and at Belgrave on the allotments to the east of the existing cemetery. Policy CL04 sets out the proposals for the area adjoining the Belgrave Cemetery. The vehicular and pedestrian access to the extension to the Saffron Hill Cemetery will be from Stonesby Avenue via the existing cemetery. The access from Dorset Avenue will be restricted to occasional use by maintenance vehicles only.

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Tourism

11.21. Tourism plays an important part in the economic success and prosperity of Leicester. However most of the features which contribute to the enjoyment of visitors to Leicester are those which also serve the city residents. Theatres, museums, shops and restaurants and sporting events all add to the quality of life in the City. Visitors will also be encouraged by attractions which are particular features of the city such as the range of multi-cultural activities or its environmental credentials. Business tourism will depend on the scale and quality of conference facilities and hotel accommodation.

11.22. To maximise the potential benefit of the National Space Centre to the City a Tourism Development Action Zone has been proposed as a focus for visitor development initiatives. There is a need for a venue to support and expand the facilities on offer at De Montfort Hall and Leicester’s profile could be further enhanced by the development of an arena. The potential of the Riverside as an attraction for tourism is recognised in Policy SPA09.

11.23. There is scope on land at the Red Hill Allotment site to accommodate a small leisure attraction, building on the close proximity of the Great Central (Steam) Railway. However careful attention will need to be given to the ecological importance of the area and its location within a Green Wedge.

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11.24. This area is within the Thurcaston Green Wedge and has a range of potential land use opportunities. A major part of the site has been identified as a Site of Importance for Nature Conservation whilst the remainder is a Biodiversity Enhancement Area (see Policies GE02 and GE03). It includes the terminus of the Great Central Steam Railway where the City Council would welcome small scale leisure facilities to enhance the attractiveness of the railway as a tourist attraction. The Redhill Allotments are identified in the Allotments Strategy as requiring de-commissioning and designating for alternate uses. Part of the former allotment site is designated as an extension to the Belgrave Cemetery. Development should be in accordance with the provisions of policy GE06.

Hotels

11.25. As well as providing accommodation, hotels can play a part in the provision of recreational and leisure facilities especially if associated with conference facilities. There is a growing interest in hotel development in the City, either as individual projects or as part of a mixture of uses. A Hotel Demand study carried out in 1999 concluded that there is scope for more budget accommodation and for  developments such as the National Space Centre to create additional demand. Policies PS09a and PS09bidentify Potential Development Areas where hotels would be an appropriate land use. Policy E04 recognises that hotels may be considered a complementary use to a Business Park.

11.26. A sequential approach in accordance with PPS6 would take account of the particular characteristics of the location and the appropriateness of a hotel within the proposed mix of uses. Policies H16 and H17 also relate to hotels.

EDUCATION FACILITIES

11.27. The City Council has been successful in securing funding from the DfES to deliver a £236 million programme for rebuilding and refurbishment of 15 secondary schools in the City. The ‘Buiding Schools for the Future’ (BSF) programme will be delivered in four phases during the period 2006 to 2012. This major improvement programme will transform secondary education provision in the City.

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11.28. The Council needs to provide additional primary schools at Hamilton and Ashton Green to cater for population growth in these areas during the Plan period. The Council will expect provision or contribution from developers which may be the subject of a Planning Obligation. Policies CL02 and IMP01 set out the requirements for facilities and developer contributions.

The Universities

11.29. The City Council recognises the contribution of the De Montfort and Leicester Universities to the educational, social and economic needs of the City. ‘University Areas of Influence’ have been allocated on the Proposals Map which enhance the potential of both Universities to expand or extend their facilities, which by locating within the area of influence would be beneficial to the respective activities of the Universities. These activities include the development of research related technology. The ‘Areas of Influence’ for both Universities have been expanded from those shown in the previous Plan.

11.30.  Leicester University has produced a ‘Development Plan’ which seeks to expand and enhance the accommodation at the existing campus site. De Monfort University has produced a ‘Masterplan’ which incorporates the principles of regeneration and public realm improvements, linkages with the City Centre, and enhanced facilities for students.

11.31. The City Council will expect the appropriate levels of student housing to be provided in line with the expansion programmes of the Universities. Existing student housing will be expected to be retained or replaced. Paragraphs 6.33 –6.35, and Policy H08 set out the Plan’s policy on student housing. The Council will resist proposals which affect the special character of the New Walk and Castle Gardens Conservation Areas.

11.32. The City Council recognises the provision of private sector accommodation in meeting the Universities’ needs for student housing. There is a need to ensure that there are adequate management measures in place which can reduce the impact of student activity in houses let to students in Primarily Residential Areas.

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11.33. The University has been undergoing a major programme of change during the last Plan period with the objective of consolidating academic and support functions. The closure of the former Scraptoft Campus, has  presented the opportunity to establish a well defined and identifiable City centre campus. The De Montfort University Masterplan, which is complementary to the Leicester Regeneration Company Masterplan, and is covered by the Old Town (West) Area Strategy Guidance (2000) will seek improvements to the physical and visual environment, and to links with the City Centre. The University also acknowledges the importance of having an integrated transport strategy.

11.34. The majority of land located within the campus is owned by the University. There are a number of buildings which are, or will be, functionally obsolete during the Plan period, and comprehensive redevelopment or refurbishment of these properties may be required.

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11.35. The University would like to consolidate and expand its facilities on the current site, and has taken opportunities to seek to develop sites such as the Lancaster Road allotments for an extension to the medical school. The University has close links with the National Space Centre and there may be need to develop related teaching and research facilities. The University of Leicester Development Plan proposes a series of academic ‘quarters’ which will enhance the potential of the existing available space within the campus.  The Plan will develop a transport strategy which encourages public transport and reduces car usage.

11.36. The majority of land located within the campus is owned by the University. There are a number of buildings which are, or will be, functionally obsolete during the Plan period, and comprehensive redevelopment or refurbishment of these properties may be required.

LOCATION AND ACCESSIBILITY OF COMMUNITY AND LEISURE FACILITIES

11.37. The City Council will promote and encourage the provision of community, social, leisure and sports facilities in locations where they are accessible to and meet the needs of people in the City. These facilities can range from small places like meeting rooms, local community halls, indoor sports facilities and larger places of worship, up to major sports and entertainment venues.

11.38. Facilities should be accessible to the people who want to use them either by foot, or cycle, and in the case of larger traffic generating facilities, near public transport route nodes and interchanges. Some facilities such as meeting halls, places of worship and specific localised educational needs have both a local and wider catchment areas, but need to be located closer to their particular communities. Others such as indoor sports facilities, larger multi-purpose community buildings, specialist leisure uses, and multi-purpose education facilities may generate travel across the City and in the case of sports venues, cinemas or theatres will have a sub - regional catchment. The location of medical facilities and clinics is covered by Policy CL10.

Development of Major Facilities

11.39. Key city centre uses should be located in the City Centre in accordance with Policy SPA05. However schemes with a catchment area that is less than citywide may be more suited to town or district centres. Policies SPA05 for the City Centre , SPA08 - the two Town Centre Zones, and PS09 a & b relating to Potential Development Areas identify preferred locations for major leisure and community uses. Planning applications for the development of major sports, leisure and entertainment facilities will be subject to a sequential test in accordance with the provisions of PPS6.In applying the sequential approach to major community and leisure proposals the City Council will take into account the specific catchment area of the proposal, its scale of use, levels of activity and other policies of the Plan.

11.40. Major spectator sports facilities are those with 1,500 seats or more. Major higher and further education facilities are those with a gross floorspace exceeding 2,500m². This category also includes  cinemas and other Class D2 uses over 1,000 m². These are all considered to be Key City and Town Centre Uses where the sequential approach would apply. The category also includes community uses which serve a city or town wide catchment area such as central lending libraries.

Local CommunityFacilities

11.41. There is continuing demand for localised facilities to meet the needs of a variety of groups in all parts of the City. Groups will require different types of buildings according to their needs in terms of the location, size and accessibility. Uses which serve local communities should be located within the catchment area, normally within a local or district centre. The Council will give special regard to proposals which seek to meet an important unmet demand and which would provide a significant community benefit.

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11.42. The appropriate parking provision for any development will need to take into account the location and size of the proposal. Some buildings by nature of their location close to or in residential areas, although suitable in meeting a need, may not be able to meet the required parking provision. In considering planning applications, the Council will assess the levels of activity that are appropriate to specific locations in order to avoid over intensification.

11.43. Whilst recognising their important contribution to the overall level of recreation provision, the City Council is anxious to ensure that private sports clubs, leisure centres and neighbourhood centres do not cause increased disturbance to people living nearby. This is especially important following the trend of sports clubs to cater for social functions by staying open until late at night.

Places of Worship

11.44. The City Council has a long tradition of seeking to accommodate Places of Worship which cater for the various religions in the City. The diversity of the population of Leicester has led to an increase in the number and range of buildings needed for worship and associated activities. Places of Worship are often at the centre of the activities of different communities and groups, and cater for a variety of functions to meet different demands. Some groups will meet only to pray, some also seek to provide religious education, while others offer extensive social, welfare, educational and cultural activities in addition to worship.

11.45. Groups have sought to provide these functions where appropriate, within a single site or building, or have split them on different sites. For example a group may conduct its religious functions at the Place of Worship, and then hire school halls or other larger buildings to accommodate activities with large gatherings such as wedding celebrations or special events. There is therefore a need to provide for separate meeting places offering a wide variety of facilities.

11.46. The City Council recognises that Places of Worship need to be close to or within the catchment area of their respective communities in order to facilitate easy accessibility or to meet specific religious needs. Many places of worship are located within residential areas in the inner areas of Leicester. Proposals for extensions to existing places of worship will be examined closely to take account of the needs of the group and to seek to accommodate the provision of the facility close to its users. However as communities grow, along with demand for larger multi - purpose facilities, there has been a trend for larger multi-purpose buildings being sought away from residential areas.

11.47. In considering proposals for Places of Worship, the Council will take account of the scale of activities for which the place of worship is likely to be used, and the nature of the area around it. It will be especially difficult to grant planning permission where the proposal shares a party wall with a residential house or flat.

11.48. Within the provisions of Policy CL08, the Council will take into account that major places of worship and associated community facilities (more than 1,000 sq.m.) may not be readily accessible or be able to accommodate the needs of their communities in locations away from their catchment areas such as within the City and Town Centres. Consideration of  proposals for  these facilities will take account of the suitability of the proposed site in respect of other policies of the Plan, the scale of use, and levels of activity. A range of measures may be required to minimise the impact of the proposal. Development of these facilities in employment areas will be subject to Policy E03.

Retention of Places of Worship

11.49. The City Council will seek to retain existing Places of Worship in order to ensure provision for a variety of religious groups. Existing Places of Worship should be preserved where possible. The City Council will have regard to the needs of groups vacating premises, and will consider the viability of the property for use by other religious groups., including whether the building is unsuitable for  continued use as a Place of Worship because of its relationship with adjacent property, its parking provision, or  where there is likely to be an unacceptable intensification in the scale of the use.

Allocation of Sites for Places of Worship

11.50. There is demand for sites and buildings for Places of Worship and the need to accommodate Places of Worship of different sizes. Where possible consideration will be given to provision in new housing areas.

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Health Centres, Surgeries and Clinics

11.51. It is important that health facilities are easily accessible to those who need them through a choice of means of transport. Clinics, surgeries and other “primary ” health and social care  facilities  will normally only be allowed to locate in or near to shopping centres. It may be necessary however for small scale practitioner clinics and surgeries to be located within residential areas where it is not possible to provide them elsewhere. Where possible provision should be made in self contained or detached property which retains living accommodation.

11.52. The local Primary Care Trusts are seeking to implement the Department of Health ‘LIFT’ ( Local Improvement Finance Trust ) schemes which will provide better health and social care in the City. The Leicester LIFT Plan includes the development of::

•  Health and Social Care centres for a neighbourhood of around 50,000 people including accommodation for doctors, community nurses and other health and social care staff to deliver a high level of local care which may have previously required a visit out of the neighbourhood, for example to hospital.

•  Primary Care Service Centres also providing a comprehensive range of primary care facilities

•  Primary Care practices to improve the environment in which family doctor services are provided.

11.53. The LIFT programme proposes that all premises are purpose built, or where this is not possible, that high quality conversions take place. Health and Social Care facilities will be of a large scale and suitable sites should be sought firstly within the district centres and larger local centres. Where this is not possible,they should be in locations near to existing centres which allow high levels of accessibility, where the need to travel is minimised, are easily accessible by public transport, and are a natural focus for the local catchment.

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Noisy Sports

11.54. There is increasing interest in a number of sporting and leisure activities which produce large volumes of noise and nuisance. These include all types of gun and pistol shooting, motorcycle sports, go karting, model aeronautics, microlight aircraft flying, power boating, water skiing and jet skiing. These are not generally considered suitable land uses within a densely developed urban area although provision has been made for motorcycle sports on land adjacent to the Outdoor Pursuits Centre on Loughborough Road. The development of purpose built indoor facilities for noisy sports would be considered separately and judged against the criteria set out in Policy CL08. This policy does not relate to issues of noise from spectators or ancillary entertainment facilities.

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Childcare

11.55. The City Council fully acknowledges the importance of day care provision for children under school age. It is also aware of the need to provide care for older children after school and during the school holidays. In addition to the following policy, guidance on planning considerations are included in the City Council document “Planning Policies for Day Nurseries 1995”.

11.56. In residential areas concern over the number of cars setting down children may require restrictions on the size of the nursery. This may apply particularly to sessional care when children will be entering or leaving the building at approximately the same time. Ideally buildings should be detached, otherwise activity rooms will be limited to the ground floor and should not abut habitable rooms of adjoining residential premises. Depending on the particular circumstances of the application the City Council may wish to see the building retain an element of residential use.

11.57. Where it is intended to receive more than 15 children, planning consent may restrict the area which can be used as a nursery. Outside play areas should be situated to produce as little noise disturbance as possible and restrictions placed on the number of children playing outside at any one time. Restrictions may also be applied to the hours and days of opening to ensure that the activities take place within a normal working day.

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