9. Recreation and Leisure

The availability of a good range and quality of recreation and leisure facilities is being increasingly recognised as an important influence in investment and relocation decisions thereby aiding economic regeneration. Sport and Recreation is a major section of the UK economy accounting for over £10 billion of consumer spending and just under half a million jobs. Unlike many other sectors it has shown sizable and steady growth in recent years. The development of recreation facilities can also help reduce social inequalities and contribute to environmental improvement and was highlighted in the Public Attitude Survey as one of the most important things the Borough Council could facilitate.

The Borough Council is a major provider of a wide range of recreation and leisure facilities including parks, sports pitches, children's playgrounds, allotments, sports halls, swimming pools, cultural/educational facilities, country parks, woodlands, and the Dome/Leisure Park and is variously involved in their promotion, financing, management and enhancement.

The UDP is largely concerned with land use issues and in particular with urban open space and countryside recreation; it is also primarily concerned with land as a recreation resource rather than its particular use at any one time; it assesses playing field provision generally for example rather than football or cricket pitches specifically and apart from children's playspace/local public open space it does not assess individual requirements of different sporting or leisure activities.

There is likely to be a continuing increase in demand for recreation facilities throughout the UDP period as the result of increasing leisure time, affluence and expectations. The amenity and environmental value of formal and informal open spaces within urban areas is widely recognised although such areas are subject to considerable development pressure. At the same time there is growing recognition of the desirability of encouraging increased participation in sport and active recreation, of improving access to the countryside and of ensuring that full opportunities are available for these activities through the provision, where necessary, of new and improved facilities.

In accordance with Strategic Guidance the UDP has had regard to the national and regional strategies of the Sports Council and Countryside Commission. Planning Policy Guidance Note PPG17 on sport and recreation indicates the importance of sport and recreational opportunities and facilities, including playing fields and other urban green spaces, to local communities and the need for Development Plans such as the UDP to consider and provide for them.

Recent legislative changes particularly those relating to the management of Local Authority facilities and education establishments, bus deregulation and agricultural policy are likely to affect recreation provision and access to facilities during the plan period. In particular the Borough Council's scope for influencing the nature, scale and management of formal recreation provision may well decline whilst there is likely to be an increase in provision by the commercial sector for example through proposals in the countryside as the result of farm diversification. The Borough Council remains committed however to the principle of access for all and will seek to maintain and improve the level of facilities on offer as far as it is able and to increase participation in a wide variety of sporting and other recreation activities.

Open space is an essential part of the urban heritage. It provides important opportunities for formal and informal recreation, fulfills important social, cultural and ecological roles and enhances the quality and image of the urban environment and thereby assists regeneration.

The importance of urban open space is perhaps greater than ever given increasing expectations and awareness of "green issues"; greater available leisure time; and growing recognition of the need to promote and provide for "sport for all".

There is now widespread concern about the availability and quality of urban open space, its general condition, and related issues such as children's safety, lack of security, vandalism, litter, dog fouling etc. and particularly the continuing loss of urban open space through development. Whilst some of these problems are largely beyond the remit of the UDP, the protection and provision of open space are major land use issues.

Open Space Policy Areas cover a wide range of existing recreation, amenity and other open space uses including playgrounds, kick-about areas, playing fields, parks, allotments, cemeteries and woodlands. Urban open space is primarily important however as a resource, often with potential for a range of open space uses and usually with a value to the community over and above that of its existing or primary use. Not all urban open spaces are designated as Open Space Policy Areas; School playing fields and sites of importance for nature conservation are covered by Policies CF3 and ENV39/40/41 respectively whilst Policy RL2 covers those urban open spaces too small to identify individually. Some open spaces (Sandall Beat for example) are covered by both Open Space and Nature Conservation policies reflecting the diversity of their value; in such cases proposals will need to satisfy the relevant nature conservation policy (ENV39, ENV40 or ENV41). The protection of the countryside and its informal recreation opportunities is dealt with through Green Belt or Countryside Policy Area designation. Open Space Policy Areas located on the edge of urban areas have also been washed over by Green Belt or Countryside Policy Area designations.

Open Spaces can fulfill a variety of important functions. In addition to recreational, amenity, social, cultural and ecological functions, open spaces can make an important contribution to the image of an area; they can help enhance the built environment, screen unattractive uses, separate incompatible uses, act as buffers between the urban edge and the countryside and so on. Open spaces which connect with other open spaces within the urban area forming open space networks or which link, or form part of a "green wedge" from the urban area into the countryside have a particularly important value to the urban fabric and the community. Where such networks include operational railway land it is not the intention that the Policy infers a right of access to such land.

Open Space Policies apply to both public and private land. The Borough contains numerous private clubs and also sports grounds provided by firms for the benefit of their employees. They make a considerable contribution to meeting overall demand in the Borough and any loss would lead to increased pressure on public facilities. Consequently the UDP gives equal importance to the retention of private as well as public facilities. In the calculation of existing provision (see Policy RL3) private facilities and those owned by CISWO (Coal Industry Social Welfare Organisation) are included.

There is no widely recognised quantitative standard for the provision of open space and the Borough Council has not adopted one. The National Playing Fields Association (NPFA)'s Six Acre Standard relates to playspace only - see Policy RL3. Policy RL1 recognises the wider environmental, social and recreational value that urban open space (including play space) has to the Community, a value that cannot easily be quantified.

The Borough Council does not propose that all the existing undeveloped land within urban areas should be protected and has sought to balance open space objectives with development requirements. The UDP makes ample provision within the urban areas and elsewhere for housing, industry and other built development. Only in exceptional circumstances therefore will the development of Open Space Policy Areas, other than for the open space uses listed in the Policy, be acceptable. It is important that the development of these listed uses retains and where possible enhances the character of the open space. The development of ancillary facilities such as a sports pavilion or changing rooms is acceptable provided the facilities are ancillary (i.e. they do not exceed those which are reasonable and sufficient for the users of the main facilities) and meet the conditions set out under Policy RL1.

Where, in exceptional circumstances, the overall benefits to the community of development of part or all of an Open Space Policy Area for some other use outweigh the benefits of its retention for open space, the Borough Council may make an exception to the Policy provided an alternative acceptable provision is made elsewhere. Urban open space is however a finite resource and opportunities for creating new open space within the urban areas are limited. Proposals for replacement open space outside urban areas will not normally be accepted

Urban Areas contain numerous open space uses which are too small or which it would be inappropriate to identify individually but which make a vital contribution to the urban fabric. These areas usually take the form of small or irregular shaped areas of grass and/or landscaping and may be categorised as informal amenity areas or casual play areas.

Informal amenity areas include grass verges, the space around buildings, incidental areas of open space within residential areas and other areas of landscaping. Because of their size, physical characteristics or location (adjoining busy roads for example) such spaces have little potential for recreation. They do however make a considerable contribution to the environmental quality of the area. Casual or informal children's playspace within residential areas (or "Doorstep Play") fulfills a vital playspace requirement particularly for children in the 4-6+ age groups. The importance of casual playspace is dealt with more fully under Policy RL4.

The Policy is not intended to apply to areas of undeveloped land allocated for development in the UDP even though they may have an existing amenity or casual playspace value. In the case of spaces around buildings (particularly industrial/business premises) the benefits of allowing appropriate expansion and extension will need to be balanced against the loss of open space and any value it may have under one or more of the five categories listed in the Policy. On the other hand the presumption against development will apply to new areas of open space which may come forward in the plan period (as part of new developments for example) and which cannot be identified now.

Existing outdoor playspace will be protected by Policies RL1 and RL2, as a sub element of open space. Protection is by itself not enough however. Outdoor playspace is an essential element of a healthy life and it is vitally important that further provision is made in accordance with the needs of the population.

The National Playing Fields Association's (NPFA) 6 Acres (2.43 ha) per 1000 population standard for minimum provision of "outdoor playing space" has gained wide acceptance as a national standard since it was first put forward in the 1920's. The NPFA reconfirmed its six acre standard in its 1989 Review which included a detailed breakdown between youth/adult facilities such as pitches, greens and courts (including those in private ownership) and children's facilities. The children's use element is dealt with under Policy RL4. The Youth and Adult use element comprises a minimum of 4 acres (1.6 ha) per 1000 population. The NPFA defines outdoor playing space as "space which is available for sport, active recreation and/or children's play, which is of suitable size and nature for its intended purpose, and safely accessible and available to the general public. Outdoor playing space is not open space, land specifically intended for passive or informal recreation for adults (or) concerned with water based sport and recreation". Appendix 9.1 provides further information on the NPFA standard.

Existing provision of outdoor playspace for youths/adults has been calculated using the NPFA methodology as 945 acres (382 ha) The estimated 1991 population of the Borough is 290,400 which would give a 4 acre (1.6 ha) per 1000 requirement of 1162 acres (470 ha). There is therefore a current shortfall of 217 acres (88 ha) which is reflected in the full use made of existing facilities.

Many of the Borough's school playing fields are often available for public use but not always or as "a matter of practice and policy" (NPFA Standard refers). Their availability is a matter for individual school governing bodies and cannot be guaranteed. This element therefore, whilst very valuable, is not regarded as contributing towards the minimum standard.

Given the magnitude of the shortfall and financial constraints on public expenditure it is unlikely that the shortfall will be made good by the end of the plan period. The allocation of 30.32 acres (12.27 ha) of land for playing fields (see Policy RL5) will reduce the current shortfall. The Borough Council will work towards achieving the minimum standard within the plan period and beyond by maximising use of existing facilities and the provision of new facilities and in particular by:-

• extending the community use of educational and private leisure of facilities - see Policy RL25
• requiring provision as part of major new residential developments
• reclaiming derelict land for this purpose where appropriate
• promoting greater use of floodlit and all weather facilities, upgrading existing surfaces and providing associated facilities
• allowing provision of new facilities within the Green Belt and Countryside Policy Area in accordance with Policies ENV3 / ENV4 and ENV7.
• making full use of European and Government programme monies and grants from outside bodies concerned with sport and generally capitalising on opportunities as and when they arise.

Youth/adult playspace facilities are not evenly distributed across the Borough for a number of reasons both physical and historical. Some local areas have a provision which is greater than the minimum standard but some fall well below the Borough average. However participants in team games are usually able to travel by bus or car and it is often more practical and economic to group facilities together. Areas which are particularly deficient will be treated as priorities when opportunities for further provision arise. The Armthorpe, Bessacarr, South East and Mexborough wards each have deficiencies of more than 15 ha. The Southern Parks, Central and Bentley North wards have deficiencies of between 10 and 15 ha; the Thorne, Rossington, Conisbrough and Edlington/Warmsworth wards have deficiencies of between 5 and 10 ha. Of the remaining 10 wards, 5 have deficiencies of up to 5 ha.

Local Public Open Space within or adjoining residential areas is the most regularly and intensively used type of open space particularly by young children and old people and includes amenity areas; casual/informal playspace or "doorstep play" areas; equipped playgrounds and kickabout areas.

With the exception of amenity areas the above elements comprise the children's playspace element of the NPFA's standard, i.e. two acres per thousand. Whilst the Borough Council endorses this as a standard for minimum provision within existing residential areas as part of the overall Six Acre Standard (See Policy RL3) the accessibility and quality of children's playspace is more important than the exact amount (although certain standards for the size and quality of each local open space are of course important - see below). A distance of 400 metres can represent a 5-10 minute walk for a child or elderly person and has become widely accepted as a catchment for the provision of local public open space. Other groups apart from the young and old also benefit from open space which is truly local and provides an opportunity to meet and relax.

The assessment of existing provision has therefore been based on 400m catchments (amended as necessary to take into account barriers to safe and convenient access such as busy roads) drawn around existing local public open spaces (where these comprise at least a reasonably level, regularly maintained grassed area of 1 acre (0.4 ha), or more i.e. suitable for children's kick-about games. The space may or may not contain play equipment and may form part of a larger park or recreation ground but must be available to the general public at all times. It is not accepted that suburban areas or areas in close proximity to the countryside have less need of local Public Open Space. Gardens are not usually large enough for many children's games and do not fulfill the wider social and environmental functions whilst access to the countryside is often restricted.

Many of the deficiencies in local public open space identified as a result of this assessment will be removed by the development for public open space of a large number of sites proposed in the UDP - see Policy RL 5. There remains however, a number of deficiencies. These are shown in Appendix 9.2. The Borough Council will seek to make good these deficiencies for example by using underused land and will give priority to these areas of deficiency wherever opportunities arise.

With regard to new residential developments it is essential that these include sufficient well planned and designed local public open space to meet the requirements of the new residents in terms of the provision of gardens, landscaping, amenity areas, doorstep play areas, playgrounds and kick-about areas as appropriate. The Borough Council will produce revised supplementary planning guidance setting down the detailed requirements for each, together with the procedure for securing provision and adoption of areas of public open space and provision of commuted sums.

The basic open space requirement for new developments of over 20 family dwellings is to be within a range of 10-15%, the exact amount to be determined according to particular circumstances. However new developments within or adjoining areas of local public open space deficiency as defined in Appendix 9.2 will be required to provide the full 15% and the nature and location of the open space(s) should also reflect the existing deficiency.

Where a housing site is of insufficient size to generate an area of public open space of 0.4 ha (1 acre) the Borough Council may require a commuted sum in lieu of an area of open space. Areas of open space which are significantly smaller than 0.4 ha (1 acre) are often unsuitable for kick-about games and other functions and create maintenance problems. On the other hand there are advantages of accessibility in requiring all developments, of 20+ dwellings to provide some open space. The Borough Council will weigh the relative merits of accessibility and usability in each case. Where a commuted sum is required this will be used to enhance existing or to create (or contribute to the creation of) a new area of public open space in the vicinity of the development site. Where adjoining small development sites afford the opportunity to provide for the open space requirements of the area as a whole, for example through the central location of an area of open space, the Borough Council will plan for this.

In the case of developments of 10 - 20 family dwellings the commuted sum will normally be used to enhance an area of existing local public open space in the vicinity.

Most of these sites are existing commitments which will be developed as and when resources allow or as integral elements of other developments such as housing developments. Development of these sites will help achieve progress towards the minimum playspace standard (see Policy RL3); help reduce identified deficiencies in local open space provision; meet requirements on new developments and/or capitalise on specific opportunities for the creation of new recreation open space.

All the above sites will be safeguarded for these purposes; most are designated as Open Space Policy Areas. Within the life of the UDP additional areas of open space will be identified, designated and safeguarded as part of new developments or as opportunities arise.

Most new developments will require some level of amenity landscaping in order to enhance the quality of the development and in the interests of local amenity. Policy ENV 60 applies. Certain developments may however also offer opportunities for creating areas of open space, possibly with public access, as part of their landscape plans depending upon the size and nature of the development. Particular attention should be paid to opportunities for retaining open land with existing or potential landscape or nature conservation value or which can, for example, provide a setting for buildings or a visual enclosure around car parking, storage and plant areas. A requirement for the provision of public open space as part of non-housing schemes will generally be confined to the larger developments, town centre schemes (see Policy TC32) and/or sites with landscape or conservation value. The Borough Council will however need to be satisfied that the developers have taken full account of opportunities to provide open space.

Where the Borough Council considers it necessary to provide open space as an integral part of a non residential development, the developer will be required to submit a scheme for approval and may be required to enter into a legal agreement to help secure the future maintenance of such areas.

The majority of the Borough's 140 (approx) playgrounds are based on traditional items of equipment (a swing, a slide and a climbing frame) much of which is old and was erected prior to the introduction of British Standard Recommendations.

In January 1990 the Borough Council completed a survey of all sites in terms of equipment, surfaces, layout, and amenity value. A programme of improvement works has been approved which will bring existing sites up to current British Standards. Only new equipment which meets these or succeeding standards will be provided and/or maintained by the Borough Council. The provision of a range of more imaginative play equipment in a landscaped setting is the Borough Council's objective.

It is important that good townscape design and layout are employed to take advantage of the opportunities provided by open space settings. The use of sympathetic boundary treatments will be expected and the scale, layout and form of the development, particularly along the open space frontage, should make a positive contribution to the local townscape. Opportunities for opening up views and sunny aspects; reducing adjacent traffic; improving footpath access and entrances and for extending and improving the open space should be realised wherever possible.

School playing fields are a significant and very important component of the Borough's open space resource in visual, environmental, ecological and amenity terms. Whilst the public use of school fields is normally restricted to organised games rather than casual games or informal use by local residents, school playing fields (and their associated changing and shower facilities) do make a significant contribution to current playing fields provision and are often used by local teams. Consequently, their loss would result in increased pressure for the use of other Borough Council sports pitches.

Falling school rolls and related issues are likely to result in some school playing fields being declared surplus to requirements. The Borough Council will consider such facilities' existing and potential value in the context of this policy and Policy CF 4. In particular it will have regard to the level of existing public use, the availability of public playing fields and other open space in the vicinity and the proximity to areas of local public open space deficiency as defined in Appendix 9.2.

Policies contained elsewhere in the UDP have implications for the Borough's open space. Each of the mixed use Regeneration Projects and Housing/Community Benefit Sites for example will include significant new areas of open space and recreation facilities - see MURP and Housing chapters. The reclamation of derelict land and the environmental improvement of other waste and untidy sites can create important opportunities for the creation of new areas of open space - see Environment Chapter. The policy context for school playing fields and sites of importance for nature conservation is also contained - in the "Community Facilities" and "Environment" chapters respectively.

Going out into the countryside is one of Britain's most popular recreational activities. The Countryside Commission's National Countryside Recreation Survey 1985 revealed that the nation's most popular recreational activity is walking in the countryside and that over one third of people travel less than 5 miles to get to a suitable site. In fact all the most popular countryside recreation activities are felt most keenly in close proximity to urban areas. Furthermore only 30% of people visit managed recreation sites whilst 70% use the wider countryside where recreation is just one of many interests being pursued.

Recreation in the countryside is based largely, although not entirely, on the natural resources of the landscape and watercourses and can therefore lead to potential conflict with competing recreational uses, and with the interests of agriculture, and nature conservation and with the interests of people who live and work in rural areas. Achieving an acceptable balance is therefore of paramount importance.

The wealth of countryside in the Borough, the dispersed nature of much of the population and the relatively low level of car ownership means that access to the countryside and the provision of facilities in the urban fringes and the countryside generally is very important. If the growing demand for countryside recreation is not effectively catered for there will be two main effects:-

• Some of the pressure will be directed outside the Borough with a resulting loss of opportunities for greater access to and enjoyment of the countryside by those people who live and/or work in the Borough together with a loss of potential benefits to the local economy from tourism, recreation and leisure.
• The remaining pressure will result in increasing conflict with other interests in the countryside because of its lack of focus on proper facilities.

The Borough Council will therefore seek to accommodate the increasing demand for a wide range of formal and informal countryside leisure and recreation activities in such a way that other countryside interests (agriculture, wildlife, amenity and so on) are not adversely affected.

Policies for the protection of the countryside and the conservation of the landscape provide these features with protection from development which would adversely affect them. This Policy indicates the Borough Council's commitment to, where necessary, pursue action on other fronts to safeguard the countryside recreation resource (and ensure its development is compatible with other UDP Policies including those for nature conservation) for example by purchasing woodlands, reaching agreements with landowners, and working with statutory undertakers and other organisations responsible for the management and development of the land and water. - See also Environment chapter - "Conserving the Landscape" section.

The pressure for informal countryside recreation is felt most keenly in the urban fringes. The environmental benefits of utilising marginal agricultural land, derelict and other waste sites on the urban fringe for outdoor recreation and leisure uses is dealt with under Policy ENV7. There are also social benefits. The provision of informal countryside recreation opportunities close to urban areas will particularly help the poor, the elderly, the immobile and other relatively disadvantaged groups to enjoy the countryside.

Although public access is often unfairly associated with vandalism, nuisance and trespass, unless the needs of both agriculture and informal recreation are considered together the productivity and amenity of those extensive areas of agricultural land adjacent to the urban areas will continue to be seriously compromised.

The Borough Council will work with farmers, landowners, statutory undertakers and all those responsible for the management and development of land and water, as well as with local communities themselves, to ensure that the local countryside is productive, attractive and accessible to local populations.

The Borough Council already holds land suitable for informal countryside recreation in many areas. Where suitable land is not available, acquisition of such land will be pursued. The sites owned by the Borough Council and designated as countryside sites, form a hierarchy, with Country parks providing the widest range of opportunities for visitors, picnic sites offering more limited resources and other smaller areas providing simply an area of semi-natural land across which access is free - see Policy RL 15. Some sites, such as Council owned nature reserves, will be more sensitive to public access than other areas but public access can be managed on all sites and will form part of the management of all publicly owned countryside sites. Through development control and through its proposed Nature Conservation Strategy the Borough council will seek to improve the accessibility of nature conservation sites throughout the Borough through management for nature conservation value of its own countryside and urban open space sites and through encouragement for habitat creation and enhancement elsewhere.

In some instances, it might be inappropriate or impossible for the Borough Council to purchase land in the necessary locations to allow easy public access. In these cases, and to supplement the provision of public sites, use will be made of privately owned sites. This can be arranged with land owners through formal or informal access and management agreements under the relevant sections of the National Parks and Access to the Countryside Act 1949 or the Wildlife and Countryside Act 1981.

The Borough Council is already committed to, or is in the process of carrying out, a number of improvement works designed to upgrade its existing sites including landscape works and improvements to visitor facilities at Cusworth Park and the provision of a visitor centre, car parking, play equipment and interpreted walks and nature trails at Sandall Beat nature Reserve together with the development of a detailed management plan for the reserve.

The Borough Council would like to provide a range of sites catering for different levels of need. Whilst this will involve the development of some new sites and access arrangements as already referred to, the basis of the provision will be existing sites with upgrading as necessary. At present, only Cusworth Park can be regarded as a prime site i.e. one with a high standard of visitor facilities and a suitable venue for major events. The upgrading works to Sandall Beat will create a second prime site and there are other existing sites such as Hatfield Marina which could also be upgraded, with better and/or more diversified facilities, to prime sites. The development of the Trans Pennine Trail will also provide an extremely important countryside recreation facility - see Transport Chapter.

There are a number of sites which can be regarded as major sites i.e. suitable for half day visits, well interpreted with a programme of countryside events and a good standard of visitor facilities. Howell Wood and Campsall Country Parks and Sandall Beat, as it presently is, are examples. A number of local sites such as Highfields, Conisbrough Craggs and St. Mary's Road, Dunsville could be upgraded to major site status.

Local sites are approximately 10 acres plus and capable of meeting everyday informal recreational needs with some visitor facilities, suitable for local events. Examples include Shaw Wood (Armthorpe); Kings Wood (Bawtry); Cliff Wood (Cadeby); Kirk Moor Plantation (Bessacarr) and West Doncaster Linear Park. In accordance with Policy RL13 the Borough Council will endeavor to make available suitable local sites adjacent to all main centres of population.

The countryside sites, provided through public provision and access agreements will form a network of semi-natural sites open to the public for their enjoyment. In order that visitors to these sites might enjoy the wider countryside and that these individual sites might be linked together, linear routes will be developed which connect the countryside sites. The public right-of-way system will be invaluable in achieving this but further access can be encouraged by providing a system of linear routes such as the West Doncaster Linear Park, which was established along a former railway line and the Trans Pennine Trail (see Transport Chapter).

The Hatfield, Thorne, Fishlake and Sykehouse area is one such area with many protected sites and rights of way e.g. Moorends Drop Ponds and Bell's Ponds, Ashfield Bank, Historical Enclosure Landscape, Hatfield Marina, canals and green lanes. The development and linking together of such facilities can create a major countryside recreational resource for the benefits of the borough.

Access involves more than providing footpaths or bridleways upon which the public can walk or ride. There is a need to actively encourage people to use the countryside. Certain groups such as the unemployed or disabled are less likely to visit the countryside than others, because their circumstances make it more difficult for them to do so. In order to positively promote access to the countryside for these and other groups special efforts need to be made to make access easier. These will include events programmes, transport arrangements, interpretation or specialised path surfaces.

This was not saved in 2007.

The Borough Council's Policy Statement on the future of the countryside in the Borough - "A Breath of Fresh Air" contains a commitment to the preparation of educational and interpretive material, for the general public and the development of year round programmes of events and activities.

This was not saved in 2007.

The Borough's existing Country Parks (Campsall, Cusworth and Howell Wood) and the proposed Earth Centre are all in the west of the Borough. The eastern half of the Borough, with its generally lower agricultural values its opportunities for landscape enhancement and in particular for creating new woodlands and for water recreation areas based on former sand and gravel workings, has great potential for a major countryside recreation facility which is more locally accessible to people living in the eastern half of the Borough and, with excellent access via the M18 and M180, attractive to people living outside the Borough. Consideration of a suitable proposal for the parkland in the vicinity of Rossington Hall will be given.

A local community group-The Kirk Sandall Community Wildlife Group have produced a draft feasibility study which sets down many interesting and exciting ideas for the establishment of a country park on land at Old Kirk Sandall village. Whilst there are many issues which would need to be resolved, not least that of land ownership, before such a scheme could be a practicable possibility, the Borough Council supports in principle the development of this concept.

Replaced by Core Strategy Policy CS2 - Growth and Regeneration Strategy. To view this policy please click here.

The problem of unauthorised use of land by motorcycles is prevalent throughout the Borough, particularly in the countryside near to urban areas on open spaces and woodland sites and has resulted in numerous accidents including serious injuries to innocent members of the public. There is a strong association between this activity and motorcycle theft, and noise nuisance and intimidation have a serious effect on the amenity value of many otherwise attractive areas. Some public footpaths and bridleways have become almost impassable or unusable by other legitimate users and vandalism costing thousands of pounds has been caused by motorcyclists seeking to gain access to amenity areas such as the Linear Park, Cantley Park and Cusworth Hall.

Numerous efforts have been made by Council Officers to control the problem, including the creation of the Council's Bye-laws with Respect to Motorcycles, and the Council's rangers are working regularly with local Police Officers in certain areas. Motorcycle barriers are routinely installed when informal Public Open Spaces are upgraded and on Public Rights of Way when circumstances permit. The Borough Council is currently exploring the possible establishment of a programme of action in co-operation with Policy Officers from the Motorcycle Unit of the Road Traffic Section, South Yorkshire Police and Community Police Officers. It is considered that unauthorised motorcycle use will be reduced considerably by concerted firm and long term action.

The Borough Council is also however actively investigating the potential of a number of Council-owned sites to accommodate a planned authorised off road motorcycling facility. Where appropriate the Borough Council will take up opportunities to provide such facilities as part of development proposals.

To be appropriate for such a facility a site must

• have good vehicular access and preferably be close to a bus route.
• be close to the urban core so as to be accessible to users.
• be sufficiently secure to prevent unauthorised motorcycle use
• not give rise to loss of residential amenity for local residents
• not significantly detract from the enjoyment of the area by other users
• be screened by existing trees vegetation/topography
• comply with the policies of the UDP particularly Policy ENV7

A new Country Park will be provided at Woodfield Plantation, Balby. The other Mixed Use Regeneration Projects will also provide significant areas of attractive, useable countryside. - see Chapter 16.

The Borough Council intends to develop its policies into specific proposals and programmes for action in more detail as part of its Recreation Strategy (see Policy RL24). The strategy will examine demands for, and opportunities for, countryside recreation in the Borough, assess sources of available finance and determine priorities for action. It will examine the public rights of way system and ways of enhancing and promoting it and assess the range, quality and distribution of countryside recreation sites, Council owned and private, existing and potential. It will look at specific recreation demands including those which can cause noise and disturbance and at ways of resolving potential or existing conflicts between recreation and other interests in the countryside. Finally it will look at ways of promoting the recreational use of the countryside and encouraging public access.

The consideration of planning applications for recreation and leisure developments in the countryside is dealt with under Policy ENV6. The Transport Chapter deals with public rights of way and the recreational use of the waterways.

The UDP does not contain a comprehensive set of recreation and leisure proposals particularly in respect of indoor facilities and other facilities aimed at specific types of recreation activity. In general terms however the Borough Council will continue to facilitate the provision of a wide range of recreation and leisure opportunities in accessible locations in recognition of the growing demand for, and importance attached to, such facilities and the contribution they can make to the regeneration of the Borough.

Built facility provision embraces a wide range of active and passive recreation and leisure, entertainment and cultural uses including traditional multi-purpose sports halls, one use sporting facilities such as swimming pools and bowling centres, cinemas and theatres, restaurants and public houses. Improvement to the level of facilities will be a major issue for the Recreation Strategy; the UDP as a 'land use' based plan can only play a supporting role to such a strategy.

National research shows that in an urban environment, the further away from a swimming pool people reside, the lower will be their level of usage, i.e. participation in swimming falls dramatically as the distance from a facility increases. This fall off in demand is particularly pronounced beyond one and a half miles. It also applies most significantly to those people without access to a car, e.g. children, many women and less well-off families.

As a long-term strategic goal the Borough Council will aim to maximise the number of people living within a mile and a half of a swimming pool. This would:

• maximise public access to swimming - thereby contributing towards health objectives
• discriminate in favour of those with low personal mobility - thereby contributing towards social/antipoverty objectives
• reduce people's need to travel - thereby contributing towards environmental objectives

However, this has to be balanced against the potential viability of a planned new pool. Given the continuing pressures on public sector spending and therefore the need to minimise subsidy levels, it is reasonable to argue that a new pool is unlikely to be built unless it will serve a potential catchment population of at least 20,000 people. This could be expected to produce a healthy level of demand and therefore income.

Participation in sports hall activities also falls as the distance from a facility increases. In the case of sports halls, the fall-off is particularly significant beyond two miles. Despite the fact that levels of participation for sports hall activities (e.g. badminton) are much lower than for swimming, such facilities are considerably cheaper than pools to operate. Consequently, a catchment population of 20,000 people is regarded as the minimum required to viably support a new sports hall development. Given the location of Doncaster's existing sports halls (including those on school sites) and the population of those areas beyond two miles from a facility there is only one proposal for a new Sports Hall - see Policy RL24.

Doncaster is the only town/city in South Yorkshire without a synthetic-surface athletics track. (It does have two existing cinder tracks at Eden Grove and Stainforth Welfare Ground). Given that the town's population is second only to Sheffield, there is little doubt about there being a viable population base to support a synthetic track.

The Regional Sports Council Strategy highlights the following hierarchy of facilities;

• Regional Stadium-Don Valley (Sheffield)
• Sub-Regional Stadia e.g. Woodbourn (Sheffield) and Quibell Park (Scunthorpe)
• District Facilities e.g. Herringthorpe (Rotherham) Thornes Park (Wakefield) Dorothy Hyman (Barnsley)

It is clear that a synthetic track in Doncaster would fit into the strategy at the 'district' level. Although desirable, however, it is recognised that an athletics facility would require considerable financial support and this would have to be resolved before any commitment to such a project was forthcoming.

Not withstanding the Borough Council's commitment to the Leisure Park, the maintenance and improvement of local indoor provision within or accessible to each of the main settlements remains a priority.

Private sector provision is likely to increase but is dependent upon the commercial viability of the particular facility. There are a number of existing and planned private indoor facilities in the Borough notably at the Leisure Park (See Policy RL 23); proposals will be viewed positively subject to them meeting the usual requirements of the Borough Council.

Apart from the Leisure Park, the Borough Council has few current proposals for indoor facilities; the situation may change within the timescale of the UDP but is dependent upon future local government financing and other factors which are difficult to foresee at present. Apart from new provision which is likely to be largely confined to relatively low cost extensions to existing swimming pools/centres the Borough Council will seek to:

• extend dual use of educational facilities.
• encourage greater public use of private facilities.
• encourage and support new private sector provision.
• improve public awareness of and access to existing facilities.
• encourage the re-use of rural buildings for sport and recreation use subject to compliance with Policy ENV 10.

Phase 1 of the Doncaster Leisure Park is largely complete or committed consisting of the Dome, Hotel, Indoor Bowls, Indoor Cricket, multi screen cinema and restaurant/nightclub/dance halls. Phase 2 is currently being developed and will consist of a mixed use development (See also Chapter 16) within which recreation will form a major element developed around a large central lake which will offer opportunities for formal and informal recreation activities, lakeside walks, water sports and so on. A number of other built recreation facilities are also envisaged.

The Leisure Park represents a major facility of Borough and regional importance. It is close to large residential areas and readily accessible by car and public transport. It will continue to be developed and promoted as a high quality multi use facility serving the whole Borough and as one able to attract significant numbers of visitors from outside the Borough.

The Mexborough/Conisbrough District Plan (1982) identified the need for a Sports Centre to serve the Plan area, the nearest sports centres being at Adwick and Swinton, Rotherham. The lack of a suitable site at the time however prevented a formal proposal being included in the Plan. The need for a Sports Centre remains. A site has been identified at the Denaby railway crossing between Mexborough and Denaby Main.

The dual use of existing facilities and the joint provision and sharing of new facilities makes sound economic sense and provides an opportunity to expand the facilities available to the public in accessible locations. Educational facilities, such as sports halls, playing pitches and changing rooms, are particularly well located to serve the community and are often under-utilised outside school hours. There is scope for extending and promoting the dual use of these and other school facilities. The Borough Council will also look to opportunities for dual use of indoor sports facilities in the design of new, or the improvement of existing school buildings. The new school at Woodfield Plantation for example will be designed for dual use. The Local Management of Schools and attitude of school governors and head teachers will, however, influence opportunities for community use of educational buildings and facilities.

Agreement with the private sector for a degree of community access to private facilities may provide a mutually beneficial way to broaden opportunities for recreation and leisure, where buildings or facilities are under-utilised during particular times of the day or week, An arrangement exists between the Borough Council and British Railways Staff Association Plant Works Athletics Club at Eden Grove, Hexthorpe for the maintenance of the Athletics Track. Many similar arrangements exist with the Coal Industry Social Welfare Organisation (CISWO) Trust which has opened up its sports facilities to the general public in return for the Borough Council's agreement to maintain the grounds. The Borough Council will pursue other similar arrangements where opportunities arise.

With the increasing emphasis on provision of facilities by the private sector joint use schemes whereby two or more agencies combine resources to provide a facility may increase in importance. Partnership in leisure provision could be a significant means of implementing U.D.P. policies.

The strategy will be produced in conjunction with the Sports Council and other interested bodies including local clubs, local councils and so on and will need to:

1. assess existing provision in terms of type, quality and distribution of facilities. In particular it will need to examine the relationship between the Dome/Leisure Park and local indoor provision.
2. assess existing demand and likely future demand with reference to local population characteristics and trends in different activities. Particular attention will be paid to the needs of identified priority groups.
3. identify deficiencies with reference to local demand and national standards, particularly the new sports council playing pitch strategy for assessing provision of football, rugby, cricket and hockey pitches.
4. determine priorities and programmes for action with particular reference to specific opportunities for improving provision for example through extended dual use.

New developments such as residential developments and large scale non residential developments create demands for increased and enhanced recreation and leisure provision and put pressure on existing facilities. They can also result in the loss of provision for example through the removal of urban open space or countryside. A number of UDP policies make reference to various elements which often need to be included as a matter of course in many developments in order to make the development acceptable in itself (e.g. open space provision and landscaping). It is increasingly being recognised however that there are many circumstances in which development can contribute in a more positive way to public benefits (for example through the provision of built facilities for sport and recreation) and that a wider view needs to be taken of the true impact of a development upon the locality and its community. Policies IMR1 and IMR2 in the Implementation, Monitoring and Review Chapter refer.