1 Introduction - A Strategic Approach

1.1 A strategy for open space has been defined as ‘a means to matching the availability of open space to changing demands for its leisure use, whilst also recognising its environmental and economic roles.’ A strategy should provide a policy framework for more detailed, site-based management plans or for individual subject strategies. The adoption of a strategic approach to the planning and management of open space means that an objective assessment of the benefits of open space can be made, which can then be evaluated against possible alternative uses.

1.2 The current layout of open space in most areas tends to be the result of opportunistic provision, rather than a planned approach, and will often not reflect current population densities nor provide an equitable distribution of facilities. The preparation of a strategy can help to identify where demand and supply can be brought into better balance and ensure that all functions of open space - environmental, recreational, amenity, cultural, economic, educational and social - are given due consideration. The provision, design, management and protection of a network of public open spaces in our cities, towns and villages are issues right at the heart of sustainability.

Reasons for the Strategy

1.3 The current Strategy was commissioned by the Planning Policy, Parks and Amenities and Sport and Recreation Units of North Devon District Council. The main impetus was provided by the Inspector’s Report into the North Devon Local Plan Inquiry in 1997 which recommended that local standards of open space provision should be provided. However, the Parks and Amenities and Sport and Recreation Departments had also identified the need to record and evaluate the provision of parks, sports facilities and other open space within the district, and an integrated approach was adopted. Since the project commenced, the revised draft PPG 17(2001) advocates the development and use of local standards of open space and recreation provision rather than using national standards as supplied, for example, by the NPFA.

1.4 The purpose of the project was defined at the outset as:

"To produce an Open Space Strategy for North Devon which provides clear direction to the District Council, Town Councils, Parish Councils and other statutory bodies and voluntary and community groups on an overall approach to the provision of sports pitches and adequate open spaces to meet the current and future needs of the community. This will include the preparation of draft standards for inclusion within the North Devon Local Plan"

1.5 It is a long standing and well accepted principle that new residential development – and, increasingly, employment-related development also - should include the provision of appropriate areas of public open space. Moreover, all such development should actually contribute to the provision of open space (and other facilities) which is required to meet the needs generated by the development and prevent deficiencies and shortfalls increasing.

Definitions of ‘open space’

1.6 The subject of open space is complex; the term itself tends to be applied loosely to all land used for purposes which do not involve a substantial proportion of the site being covered with buildings; and in this respect a definition could include derelict and waste or vacant land. It is defined in the Town and Country Planning Act 1990 as land laid out as a public garden, or used for the purposes of public recreation, or land which is a disused burial ground, but there are other types of public and private open space of public value.

1.7 Planning for open space needs to deal with its complex typology. The predominant public perception of open space is often municipal parks and gardens, but it also encompasses heaths and commons, playing fields and recreation grounds, allotments, agricultural land, cemeteries, golf courses, and near-natural heaths and ancient woodlands.

1.8 Open space is put to many different uses, often within a single site. The public park, which had its origins in crowded 19th century cities, was always seen as multi-purpose, providing opportunities for organised sport (football pitches, tennis courts, bowling greens etc), informal leisure (pleasure gardens and boating lakes etc), and simply getting away from it all (for the growing urban multitudes having no private gardens and limited access to the countryside). Some open spaces are single use, such as playing fields, golf courses, allotments and cemeteries. More recent times have seen nature conservation as an increasing use of open space.

Scope of the Study

1.9 The detailed scope of the project has embraced the following:

a. an update of the 2000 Playing Pitch Strategy for North Devon, which used the Sport England/NPFA methodology to produce a detailed assessment of the number of sports pitches required to meet identified demand

b. a review of other outdoor sports facilities and an assessment of demand through consultation with local clubs and governing bodies.

c. identification, evaluation and mapping of data supplied by the Parks and Amenities unit to produce a review of children’s play space

d. identification of recreation grounds, public open space and informal open space within settlements on the basis of their size, location and function

e. a brief review of other areas of open space which form part of the overall stock of open space in North Devon (woodlands, long distance routeways, beaches, nature reserves).

1.10 The study area was defined as the North Devon District Council area, with a population in 2000 of 91,838 (Devon County Council figures; population normally resident). Apart from the major urban areas of Barnstaple, Braunton, Ilfracombe and South Molton, it is predominantly a rural area. Out of 62 parishes, just eight have populations of more than 2000 people, with Barnstaple Town, by far the most populated with 20,731 inhabitants. The next four largest parishes are Ilfracombe (11,062), Fremington (10,288), Braunton (7371) and South Molton (4278). The parishes of Landkey, Combe Martin and Tawstock each have between 2000 and 3000, whilst the remaining 55 parishes have less than 2000 inhabitants (see Table 1).

1.11 Based on parish population projections adjusted to the Registrar-General’s data, the district’s population has increased by some 8% between 1991 and 2000, with especially marked increases demonstrated by the parishes of Tawstock (up by 38%), Fremington (up by 27%), Combe Martin (up by 12%) and Instow (up by 11%). Most recently available figures indicate that the district has already exceeded projections based on the 1991 Census for the population in 2005.

1.12 The age structure is shown in Table 2. Of those parishes with around 1000 or more inhabitants, Barnstaple, Ilfracombe and Landkey have above average (for the district) proportions of people aged less than 25 years. The parishes with above district-wide averages for people aged over 60 include Chulmleigh, Witheridge, Tawstock, Georgeham, Combe Martin, Braunton, Fremington and South Molton.

1.13 It is important to note that for the analysis of existing and proposed provision of open space those parishes within Exmoor National Park have been excluded. Open space land within these parishes is recorded in the database but is not included within the totals of open space land. Excluding the parishes wholly within Exmoor National Park (Countisbury and Brendon, Lynton and Lynmouth, Martinhoe, Parracombe and Trentishoe) gives a population for North Devon, in 2000, of 89,429.

1.14 The data for the strategy has been gathered on a parish and ward basis, as this is the smallest demographically cohesive area. For ease of handling the data, the district has been divided into four sub-areas, broadly corresponding with the Area Committees. However, parish boundaries do not always match settlement boundaries and adjustments have been made:

a. Barnstaple Area:

This includes all of Barnstaple Town (six wards) and Tawstock parishes, but Fremington and Landkey parishes have been split. The Barnstaple Area includes Roundswell and Bickington in Fremington parish and the Whiddon Valley area of Landkey parish.

b. Ilfracombe

c. Northern Rural Area: parishes of Arlington, Ashford, Atherington, Berrynarbor, Bishop’s Tawton, Bittadon, Bratton Fleming, Braunton, Challacombe (part Exmoor), Combe Martin (part Exmoor), East Down, Fremington (village), Georgeham, Goodleigh, Heanton Punchardon, Instow, Kentisbury (part Exmoor), Landkey (village), Loxhore, Marwood, Mortehoe, Newton Tracey, Shirwell, Stoke Rivers, Swimbridge, West Down, West Pilton, Westleigh. Also the following parishes wholly within Exmoor: Countisbury and Brendon, Lynton and Lynmouth, Martinhoe, Parracombe and Trentishoe)

d. South Molton Area: Bishop’s Nympton, Brayford (part Exmoor), Burrington, Chittlehamholt, Chittlehampton, Chulmleigh, East & West Buckland, East Anstey (part Exmoor), East Worlington, Filleigh, George Nympton, King’s Nympton, Knowstone, Mariansleigh, Meshaw, Molland (part Exmoor), North Molton (part Exmoor), Queen’s Nympton, Rackenford, Romansleigh, Rose Ash, Satterleigh and Warkleigh, South Molton, Twitchen (part Exmoor), West Anstey (part Exmoor) and Witheridge.

1.15 These four areas have been subdivided into a total of 15 areas for the purposes of Parish Profiles (see Map on inside back cover and Area Profiles – Section 9).

The Planning context

1.16 Any assessment of open space provision needs to be within the context of national and regional planning policy for open space. These are explored more fully in Appendix 1: National Planning Context but the key ones are:

a. The recently issued draft PPG17.

b. The National Playing Fields Association (NPFA) six-acre standard for playing fields and children's play spaces (currently in a revised draft format)

c. The Greater London Development Plan/London Planning Advisory Committee hierarchy of publicly accessible open spaces, used for some years in urban areas especially

d. Special open space designations, including Green Belt and Metropolitan Open Land.

e. Nature conservation policies overlapping with open space policies.

Issues and Problems Encountered

1.17 There were a number of difficulties encountered early in on the study, especially in relation to:

a. Defining the term ‘open space’ particularly in relation to its different functions and in the context of a predominantly rural area like North Devon Assessing the needs of the different sections of the community

b. How best to deal with issues such as accessibility and quality of provision

c. Establishing the most effective and efficient way of recording and analysing all existing recreational open space, particularly in the context of a large rural geographic area and the variety of ownerships.

Categories used in this study

1.18 The Strategy has recognised the different functions that open space plays. There are many ways of categorising open space, according to its form and function, and for the purpose of this strategy the following broad categories have been defined:

a. Open Space for Sport

b. Open Space for Children and Young People

c. Informal open space

e. Other recreational open space resources (including countryside)

This report

1.19 The following sections are set out in this Main Report:

a. The methodology, definitions and standards employed by the study (Section 2)

b. The main findings in respect of the provision of:

c. Open Space for Sport (Section 3)

d. Open Space for Children and Young People (Section 4)

e. Informal open space (Section 5)

f. Other open space resources (Section 6)

g. Overall conclusions on developing standards for provision (Section 7)

h. Recommendations for the key points in developing an open space strategy (Section 8)

Followed by Section 9: Area Profiles – 15 sub-areas, with key points presented on a parish basis

1.20 In the interests of clarity, some of the above Sections are very brief and reference should be made to the Technical Appendix where supporting information in the form of Tables and background text is presented in corresponding sections.