2 Definitions and Methodology - The value of open space

2.1 Open spaces within settlements make an important contribution to urban life. They enhance the built environment by contributing to the setting of buildings and the appearance of the area. They also enhance the character of special urban features such as conservation areas, listed buildings and historic landscapes. Such spaces also have a role in the urban regeneration process through attracting investment from business and tourism sectors of the economy. The open environment also plays a role in health and education, has environmental benefits, promotes biodiversity and is an important social and cultural resource. These roles supplement their important and more traditional role of providing a valuable resource for informal recreation, active sport and children’s play.

Data collection/Supply Assessment

2.2 Open spaces have been included in this study where they satisfy the following criteria:

a. the open space is of recreational or amenity value

b. the open space makes an important and readily identifiable contribution in terms of size and character to the settlement form

c. the open space is readily accessible to the general public

d. the open space is located within, or adjoining, the urban area or within defined village boundaries.

2.3 An audit was conducted of all known open space within North Devon District. Information was obtained from:

a. North Devon District Council Parks and Amenities Unit (database of sites owned and maintained by the Unit)

b. North Devon District Council: other sources and officer knowledge

c. Playing Pitch Strategy

d. Survey of parish councils (land identified by parish councils as having an open space use, including play areas, pitches, greens etc owned by the parish council and sometimes other parties)

e. Parish appraisals

f. North Devon Coast and Countryside Service.

g. Survey of statutory and other organisations with landholding interests (e.g. National Trust, Forestry Commission)

2.4 A considerable amount of information was collected for each site, including name, address, size, function, whether adjacent to public walkway etc (see Schedule 1).

2.5 Each site was then classified on the basis of its size, form and function into one of the following five general classifications:

a. District Park

b. Community Park

c. Mini Park

d. Open Space

e. Sports Areas

2.6 These were defined as follows:

District Park

These should be a minimum of 1.5 hectares and designed and maintained primarily to meet the needs of the main settlement and surrounding areas, although many neighbourhood needs may also be met. Functions will be varied and facilities can include children's playgrounds, sports areas, concert facilities, water areas, picnic facilities, natural/landscaped areas and multi use open fields. All district parks should have accessible toilet facilities and phones.

Community Park

These should be a minimum of 0.25 hectares and designed and maintained primarily to meet the needs of the local community/neighbourhood. Facilities may include a combination of children's playgrounds, picnic facilities, natural/landscaped areas and multi use open fields.

Mini Park

These are usually less than 0.5 hectares and are designed, managed and maintained to provide recreation and aesthetic benefit, primarily in areas of high population density or commercial areas with high pedestrian use. Facilities and amenities may include one or more of the following: children's playgrounds, plazas, turf, picnic areas, special features and informal kickabout areas.

Open Space

This is a general category that includes all undeveloped land with public access and which is set aside for passive recreation, habitat, buffering of areas of habitation and/or agriculture. This includes many small areas which may be used locally or just be buffer zones but which have no formal designation and very little maintenance. The size could vary from 10m2 up to areas of over 1000m2.

Sports Areas

These areas include school playing fields, grass pitches and dedicated sports provision such as tennis courts and bowling greens and are classified as ‘sports areas’ if they have not already been included within the other classifications above.

2.7 The distribution of the above categories of open space within the main towns and settlements has been mapped.

Data Collection/Demand Assessment

2.8 The approach to assessing the demand for open space in North Devon was carried out with due regard to the complexity of the task. It was agreed to use existing sources of information wherever possible, and to supplement this with new, targeted survey work where feasible and demographic analysis.

2.9 The following were undertaken:

Community Voice Survey: A balanced and representative cross-section of residents in North Devon was consulted, through the mechanism of the Community Voice survey database which holds the names of 1000 people throughout the district. A survey of views on countryside and open space had been undertaken late in 1999 and this was analysed with a specific emphasis on matters of relevance to this study.

Parish and Town Council Survey: all parish and town councils were contacted for information on the stock of open space in their areas and issues regarding open space provision

Sporting organisations: All known outdoor sports clubs were contacted with a questionnaire about their facilities and factors relevant to their needs for new provision

Community organisations: A wide cross section of community organisations were contacted with a questionnaire about the facilities they used and their views on aspects of sporting and open space provision in North Devon.

Statutory organisations: Around thirty statutory organisations with an open space interest (The National Trust, South West Tourism, English Nature, for example) were contacted seeking information on sites which they own in North Devon and their views on open space provision (Appendix 10)

Schools and colleges: All six secondary schools and colleges and around 30 primary schools were contacted with questionnaires for completion by students (secondary schools) and classes (primary schools).

2.10 The following themes emerged from a combination of data collected:

a. The natural environment and countryside is highly prized.

b. The four most important issues in relation to open spaces are cleanliness, transport and accessibility, and safety. For women, community projects and safety score more highly; for men, sporting facilities.

c. What people perceive to be their main area of open space depends heavily on where people live. The predominance of Rock Park and Braunton Burrows emerged strongly.

d. Fouling of public open space by dogs is perceived to be a major problem

e. The majority of young people (60%) feel think there is enough open space in the area where they live. However, only around 20% thought there were enough sports facilities. Young people’s main reason for going to open spaces is to meet friends.

f. In rural areas, open space such as village greens are a focus for year round community activity

g. Skateparks or rollerblade area were requested by pupils from schools across the district in various locations

h. The main desire from sports clubs was for better/more pitch facilities and all weather training areas.

2.11 Appendix 2 gives a fuller summary of the survey results from Community Voice and the surveys of local organisations and schools. The findings from the surveys of sports clubs are presented in Appendix 3 and Appendix 4.

Open Space Standards

2.12 Standards are a widely used tool in planning for outdoor recreation. At their most basic, standards are a simple expression of the desired amount of open space/play space per capita. More sophisticated forms of standard can embrace a ‘spatial’ element, designed to reflect an ideal geographical distribution of open space within a given area. Although standards have become an important and valuable planning tool they also have significant drawbacks including their inflexibility in taking into account local circumstances.

2.13 Indeed, the inherent difficulties in developing a standard which takes into account the myriad uses and definitions of open space is probably one reason why, even today, there are no universally accepted standards for open space provision. What does exist is the NPFA standard and because it is so broadly used and is currently still the only widely accepted standard in connection with open space provision, it is worth considering in a little more detail.

2.14 The Six Acre Standard dates back to 1925 based on the observations that, for every 1,000 population, 500 were below the age of 40 and of these it was assumed that 150 would either not want to play sport or would be unable to because of infirmity. A further 150 would use school facilities. Thus 200 people in every 1,000 would need to be catered for. Given the size of teams and frequency of play it was estimated that their needs could be accommodated on:

a. 1 senior football pitch

b. junior football pitch

c. cricket pitch

d. 1 x 3 rink bowling green

e. 2 tennis courts

f. 1 children’s playground of 0.5 acre and

g. 1 pavilion.

2.15 These facilities would occupy 6 acres, hence the standard of 6 acres of open space per 1,000 population. The standard has been reviewed at intervals and has not fundamentally changed; a further review is currently being undertaken and is likely to include greater definition on requirements in rural areas.

2.16 With reference to North Devon, 47% are aged less than 40 years (as opposed to 50% within the NPFA standard), and of these, it is likely that between a quarter and a third would use school facilities (30% in the NPFA standard). It is not possible to make any more detailed comparisons, the school age having risen since the standard was introduced, more sports development work undertaken and probably a higher proportion of men and women generally wishing to take part in sport.

2.17 The Six Acre Standard is presented in detail in Schedule 1 but basically comprises 1.6 – 1.8 hectares per thousand population for youth and adult use, including 0.6 – 0.8 hectares for children’s play space.

Other Approaches

2.18 Other bodies and local authorities have from time to time attempted to produce guidelines or standards for provision, including:

a. English Nature considers that everyday contact with nature is important for quality of life, and recommends that people living in towns and cities should have a natural green space within walking distance of their homes

b. The Devon Playing Fields Association (DPFA) states that the provision of a football pitch sized ball game area should be the minimum that every parish strives for. Every settlement above a certain population should ideally aim to have an equipped children’s play area, with a minimum of at least five types of play equipment and seating for accompanying adults. No child should have to cross a busy main road to get to a play area.