Community Infrastructure, Leisure and Tourism

(10) Introduction

It is vital that new development is accompanied with appropriate infrastructure to make the District sustainable.

The term 'infrastructure' encompasses a wide range of issues, from roads and sewers to education and healthcare.

Infrastructure is provided by a range of groups, including both private and public organisations. It is imperative that we work with such organisations in order to ensure the requisite infrastructure is delivered when required.

(3) Planning Obligations and the Standard Charges

The planning system has, for a number of years, enabled councils to require developers to make payments or undertake additional works to mitigate the impacts of new development, using a system known as planning obligations involving a legal agreement between developers and local authorities. Government guidance on planning obligations is set out in Circular 05/2005 and we have used this to secure the provision of infrastructure improvements, such as highway improvements, and to ensure affordable housing is delivered.

There are concerns that planning obligations cannot address all the infrastructure deficiencies that will be caused by new development, particularly the incremental impact of smaller developments which individually do not warrant the provision of planning obligations, but have a significant cumulative impact.

The government is introducing an additional mechanism for securing necessary infrastructure known as the Community Infrastructure Levy (CIL). This will enable councils to apply a levy on all new developments in their areas to support infrastructure delivery. The CIL will be a standard charge levied on each new development that has an impact on infrastructure. It cannot be used to address existing infrastructure deficiencies, but it can be used to address such issues where the new development will aggravate problems. The CIL is intended to operate alongside, rather than replace, the current system of planning obligations.

We will produce a document setting out standard charges to be imposed on developers to contribute towards infrastructure provision. This document will be subject to consultation and independent examination before adoption. The document will detail what infrastructure is needed, how much this will cost, and detail how much contribution each development will be required to make based on a simple formula which relates to the size and impact of the development on infrastructure. It will ensure that standard charges are used to deliver the requisite infrastructure in a manner which is fair and provides clarity for developers.

It is important that the requirements set by standard charges do not reduce the viability of development coming forward, i.e. it should not be set at such a high rate as to prevent development. As such, when drawing up the details of how the standard charges will be applied in Rochford District through the production of an Infrastructure and Standard Charges Document, we will engage with key stakeholders within the development industry in particular.

(19) CLT1 Planning Obligations and Standard Charges - Preferred Option

We will ensure, through the use of planning contributions, that all new development meets the necessary on and off-site infrastructure requirements which are required in order to ensure the development meets the needs of future communities and that the impact on existing communities is mitigated. We will continue to require developers to enter into legal agreements in order to secure planning obligations to address specific issues relating to developments, including the provision of on-site affordable housing, as per Circular 05/2005. In addition, we will impose standard charges on development for financial contributions towards required off-site and strategic infrastructure in order to ensure all development make a reasonable and appropriate contribution towards the cost of such provision. The contribution required will be based on a standard formula which will be determined in conjunction with key stakeholders, including developers and service providers, having regard to the size of the impact of developments. The details of the standard charges will be stated in a separate Infrastructure and Standard Charges Document, which will be subject to consultation and independent examination. It will cover the following general areas: highways; public transport; cycle paths and greenways; education; healthcare; leisure; open space; youth and community facilities; recycling facilities. This list may be expanded following consultation with service providers. CLT Appendix 1 provides further details at the end of this chapter as to what infrastructure residential and employment development will be required to contribute to through Standard Charges. The requirement to pay the standard charges may be reassessed and modified in cases where actual provision of infrastructure or facilities normally covered by standards charges are provided as part of the development.

CLT1 - Alternative Options
Option	Why is it not preferred?
Cost all infrastructure on a District wide basis and require all developments anywhere within the District to make a contribution to the District's overall infrastructure needs.	The settlements within the District are functionally separate and development within one part will not have the same impact on infrastructure in other parts. A District wide approach would involve developments in, for example Rayleigh, having to make a contribution to infrastructure required in Rochford. Such an approach is not considered reasonable.
To continue to require planning obligations from developers, but not to impose standard charges.	This approach would not deliver the requisite infrastructure, to the detriment of existing and future communities.

(7) Education

It is crucial that planning addresses accessibility to education.

Essex County Council is the education authority for Rochford District and produces an annual plan on how education is to be provided within the area. The report includes an analysis of supply and demand for school places within Rochford District which is examined in greater depth within Evidence Base Summary Document - School Places. In short, recent data has demonstrated there is no direct correlation between estimated total population increase and the numbers of pupils in schools (the overall population increase has been largely due to an increase in the numbers of elderly people, with the youth population shrinking).

In determining the likely impact on school place supply and demand from future housing allocations it will be necessary to take a more sophisticated approach than purely looking at population projections. It will be more appropriate to look at developments on a case-by-case basis to determine their likely impact upon school place provision.

Notwithstanding this, the distribution of housing proposed in the Housing section of the Core Strategy makes it clear that new single-form entry primary schools will be required in Rayleigh and Rochford as a minimum. At least 1.1 hectares of land within areas allocated for residential development will be required for a primary school in Rayleigh and Rochford. In addition, the existing secondary school in Rochford - King Edmund School - will be allocated the necessary 3 hectares to allow the required expansion to meet additional need. Residential development in Hockley is not considered to generate a requirement for any additional significant educational development, but we will continue to monitor the situation and demand contributions from developers when required.

New schools will be developed within new residential areas, delivered through a combination of planning obligations and funding obtained through standard charges on development.

As set out in the Transportation section of the Core Strategy, new schools will be required to produce a travel plan that demonstrates how use of the private car will be minimised.

(9) CLT2 Primary Education, Early Years and Childcare Facilities - Preferred Option

We will ensure that at least 1.1 hectares of land within the new residential areas of both Rayleigh and East Rochford, arising from the allocation of land in the general areas indicated in Preferred Option H2, is reserved for new single-form entry primary schools with commensurate early years and childcare facilities. We will work with Essex County Council and developers to ensure that new primary schools with early years and childcare facilities are developed in a timely manner and well related to residential development. The new schools will be of a flexible design that allows it to adapt to future supply / demand issues. In conjunction with Essex County Council, we will carefully monitor the supply and demand of primary school places. Developer contributions will be sought to increase the capacities of existing primary schools where required. Standard charges will be applied as part of the remit of CLT1.

CLT2 - Alternative Options
Option	Why is it not preferred?
Not to set aside land within residential areas for additional primary schools, but to use financial contributions from developers to assist in the construction of new primary schools elsewhere within existing settlements.	Such an approach would be less likely to deliver the requisite primary school provision, as sites within existing built-up areas may not be available.
Alternative area for new Rochford primary school.	A new primary school is needed to support proposed development in west Rochford, with access from the proposed development location to other existing schools problematic.

(4) CLT3 Secondary Education - Preferred Option

As part of new development coming forward in Ashingdon, we will require that 3 hectares of land be reserved for the expansion of King Edmund School. In addition, new development in East Ashingdon will incorporate a new, improved access to King Edmund School. We will work with Essex County Council and the individual schools themselves to achieve the necessary expansion of Fitzwimarc and Sweyne Park schools. Developer contributions will be required for this purpose where appropriate. Standard Charges will be applied as per CLT1. In conjunction with Essex County Council, we will carefully monitor the supply and demand of secondary school places. Standard Charges will be applied as per CLT1 to increase the capacities of existing secondary schools where required. Standard Charges will be applied to mitigate the cost of transporting pupils from new residential developments in settlements without a secondary school to an appropriate secondary school, as per CLT1.

CLT3 - Alternative Options
Option	Why is it not preferred?
Not to focus on specific schools, but to require contributions from developers to be provided and used by Essex County Council for the provision of education services.	The Essex Schools Organisation Plan indicates that King Edmund, Fitzwimarc and Sweyne Park schools will require physical expansion in order to meet future need.

(4) Healthcare

Healthcare facilities are a crucial component of community infrastructure. Although we cannot provide healthcare facilities ourselves, it is crucial that we work with our partners - particularly the South East Essex Primary Care Trust - to ensure that adequate healthcare facilities are in place to meet the needs of the District's growing, and ageing, population.

Accessibility of healthcare services is vital and facilities must be well located in relation to the District's population, and accessible by a range of transport options to ensure that no one is excluded. We propose to take a two-pronged approach to ensuring this: firstly, new residential development will be located in areas from which healthcare facilities are accessible, or will be of a scale to ensure that new facilities are viable (see Housing chapter); secondly, we will support the Primary Care Trust in identifying appropriate sites for additional facilities in appropriate locations.

Health Impact Assessments (HIAs) can be utilised to ensure that developments have regard to healthcare provision needs. Health Impact Assessment (HIA) is an approach that ensures decision making at all levels considers the potential impacts of decisions on health and health inequalities. The assessments identify the actions that can enhance positive effects and reduce or eliminate negative effects on health and inequalities, including in relation to the provision of healthcare facilities.

(9) CLT4 Healthcare - Preferred Option

We will take the following actions to ensure that healthcare needs are met: Ensure that a new Primary Care Centre accompanies new residential development in Rayleigh, through the use of planning obligations where necessary. Require new developments to be accompanied by a Health Impact Assessment and an assessment of their impact on healthcare facilities. Where significant impacts are identified, developers will be required to address negative effects prior to the implementation of development. Assist the Primary Care Trust in identifying sites for additional healthcare facilities in the District where required. Take a positive approach towards proposals for healthcare facilities within accessible locations and to the renovation or replacement of those that become outdated.

CLT4 - Alternative Options
Option	Why is it not preferred?
Forgo the requirement for development to be accompanied by a Health Impact Assessment and rely on the Primary Care Trust to react to new developments.	Health Impact Assessments and assessments of the impact of development on healthcare facilities are a vital tool in ensuring that the health of the future and existing communities is not adversely affected by development, and that any potential negative impacts on health or inequalities are mitigated.

(1) Open Space

The District contains numerous open spaces within built up areas, both privately and publicly owned, formal and informal. These contribute towards the character of the District's settlements and form green links, as well as providing recreation and sports opportunities.

While the District contains large amounts of open green space, it is important that new development incorporates accessible public open space, designed in such a way that is integrated into the development and accessible to local people.

(15) CLT5 Open Space - Preferred Option

New public open space will be required to accompany additional residential development, having regard to local current and projected future need. Standard Charges may be applied to developments as necessary. In particular we will seek the incorporation of a significant amount of public open space to accompany new, and be integrated with existing, residential development in the west of Rayleigh. Furthermore, the following existing uses will be protected, whether in public or private ownership: Parks Amenity areas Allotments Playing pitches Any other form of open space that has a high townscape value or is intrinsic to the character of the area New forms of the above will be promoted.

CLT5 - Alternative Options
Option	Why is it not preferred?
To delete some of the above forms of open space from the list of those that will be protected.	We consider that all of the above perform important roles for the District's communities and are worthy of protection.

(1) Community Facilities

A comprehensive range of community facilities, including meeting halls, places of worship and social clubs exist throughout the District. These are well used and provide an important role for communities. We will seek to safeguard the use of community facilities, and to ensure they continue to provide a useful function to the communities they serve. Additional community facilities will also be encouraged where a need is shown.

The Local Strategic Partnership has, as articulated within the Sustainable Community Strategy, identified a need for a multi-agency centre within Great Wakering. A need for additional community facilities elsewhere within the District is likely to arise as a result of residential development and we will, in conjunction with our partners, need to ensure that community facilities meet changing needs.

(3) CLT6 Community Facilities - Preferred Option

Community facilities will be safeguarded from development that will undermine their important role within the community. New community facilities will be promoted in new and existing residential areas where a need is shown. We may require such facilities to be accommodated within new residential development schemes. In particular, we will seek the provision of a multi-agency centre within Great Wakering. Standard Charges may be applied as necessary in order to facilitate the delivery and enhancement of community facilities, as per CLT1.

CLT6 - Alternative Options
Option	Why is it not preferred?
Not to include a specific policy on protecting community facilities, and maintain a flexible approach to how spaces currently used are used in the future.	This would represent a failure to appreciate the importance of community facilities and may lead to their loss for alternative uses.

(1) Play Space

With higher densities of residential development being required in order to reduce the amount of greenfield land lost to housing, it has become increasingly difficult to ensure that dwellings are accompanied with large garden areas that can be utilised by children as play space. As such, communal play space will play an important function in new residential developments. Communal space can help foster a sense of community within new developments, providing a space where neighbours interact. Accessibility of play space is key, and it should be provided within new residential developments. It is crucial that parents and children feel safe within such space; therefore play space should be located in areas that are subject to natural surveillance - i.e. are overlooked and / or are subject to a number of passers-by.

There are a number of existing play spaces within the District which are well used and important to the local communities they serve. We will seek to protect and enhance such spaces, including through the provision of additional fixed play equipment funded by the Big Lottery Fund money we have received.

(5) CLT7 Play Space - Preferred Option

New residential developments will incorporate appropriate communal play space which is accessible and subject to natural surveillance. Play space within developments must be maintained in perpetuity by developers or an appropriate management company. We will seek to protect existing play spaces and enhance them through the provision of additional fixed play equipment. Standard Charges will be applied to secure play space enhancements as per CLT1.

CLT7 - Alternative Options
Option	Why is it not preferred?
Not to require developments to incorporate play spaces, but to ensure play spaces are provided off-site in locations accessible to residents.	This would create play spaces which are less well integrated with residential developments.

(2) Youth Facilities

Formal places where people can meet and interact with their peers have traditionally fallen into two categories: spaces for children (e.g. playgrounds); and spaces for adults (e.g. pubs). Within such spaces adolescents do not tend to be welcome and may find themselves excluded. This coupled with a lack of accessible, appropriate, informal meeting places for adolescents in the District has created a demand for additional youth facilities. The exact nature of such facilities will depend on the particular local need and the particular group such use is meant for, for example facilities for 12 year-olds are likely to differ considerably from those appropriate for older teenagers.

There have been efforts in recent years by various organisations to create facilities for young people, but concerns have been expressed that existing planning policies have hindered their development.

We believe a more positive approach is now required towards such facilities. In particular, we are looking at the provision of teen shelters in areas of the District where a need for spaces for youths is shown, and the provision of a skate park in Great Wakering.

(2) CLT8 Youth Facilities - Preferred Option

We will encourage the provision of additional facilities for young people within appropriate locations where a need has been identified and which are accessible by a range of transport options. Such facilities should be appropriate to the target age-group, should be well managed and flexible to meet changing needs. Any development of youth facilities will be required to show that the views of young people have been incorporated into the development. Standard Charges will be applied to aid the delivery of youth facilities, as per CLT1.

CLT8 - Alternative Options
Option	Why is it not preferred?
Allocate specific land for youth facilities.	This approach is considered too inflexible. Demand - quantity, type and location - of facilities is likely to fluctuate considerably within the plan period.

Leisure Facilities

Leisure activities have an important role to play in health, quality of life and the economy. The importance of having a good, accessible leisure centre is iterated in the East of England Plan.

The District contains an array of both private and public sports facilities. The two main leisure centres are Clements Hall, Hawkwell and Rayleigh Leisure Centre, but their offer is complemented by a variety of other facilities across the District.

A study carried out by Sport England in 2006 found that 74.7% of the District's adult population were satisfied or very satisfied with the level of sports provision in their area - the third highest satisfaction rating in Essex. However, only 6.95% of Rochford District residents live within 20 minutes of at least 3 different leisure facilities, of which at least one has received a quality mark. This is the 4^th lowest in the County and below the Essex average.

Accessibility of leisure and recreation facilities is an important issue and we will require future leisure developments to be in locations accessible by a range of transport options.

The demand for leisure facilities can be estimated using Sport England's Sports Facility Calculator. This calculates the demand for various leisure facilities in an area based on local population profiles together with a profile of usage. Sport England use data from National Halls and Pools Survey, Benchmarking Service, Indoor Bowls User Survey and General Household Survey¹.

The demand is an estimate and it should be noted that the District does not sit in a vacuum and that the development of leisure facilities outside of the District and the movement of people between districts will influence the demand for leisure services of a particular locality. The relationship with Southend in particular needs to be considered.

(6) CLT9 Leisure Facilities - Preferred Option

We will work with our partners to ensure that leisure facilities across the District are maintained and enhanced. In particular, we will seek to enhance recreational opportunities at Rayleigh Leisure Centre through the provision of mini and junior football pitches and to look at opportunities to further develop leisure uses at Great Wakering Leisure Centre. We will monitor the supply and demand of leisure facilities. Standard Charges will be applied to secure the enhancement of leisure facilities, as per CLT1.

CLT9 - Alternative Options
Option	Why is it not preferred?
Not to apply Standard Charges, but to seek contributions on an ad-hoc basis to secure the provision of leisure facilities.	This would be less likely to deliver requisite leisure development, and place an unfair burden on a minority of developers.

Playing Pitches

In addition to other leisure facilities as discussed above, playing pitches are considered worthy of specific mention within the Core Strategy. Playing pitches are areas of formal open space available to the public and used specifically for the playing of sports such as football, rugby, hockey and cricket.

The District has a role to play within the wider area with regards to playing pitch provision. Whilst the District relies, to a degree, on the more urban neighbouring centres for jobs, facilities and retail, there is a reciprocal reliance from these areas on Rochford to provide open space and recreational opportunities.

The District has the potential to accommodate playing pitches as they are considered an appropriate form of development within the Green Belt. However, playing pitches will not always be considered appropriate in all Green Belt locations. Playing pitches require maintenance and, in many cases, the provision of ancillary buildings and, as such, have a very different impact on the landscape to more informal open spaces. They are also subject to frequent visits. Issues such as accessibility, impact on biodiversity, character and openness of the Green Belt, and amenity of neighbouring residents.

Opportunities to accommodate playing pitches outside of the Green Belt are welcomed, as this will often provide facilities in more accessible locations, particularly if pitches are accompanying other visitor-generating activities. In this respect, we believe there is an opportunity to accommodate additional playing pitches to the rear of Rayleigh Leisure Centre. When considering proposals for playing pitches outside of the Green Belt, many of the same issues (e.g. accessibility, residential amenity etc) will still apply.

Sport England has published detailed guidance for the provision of essential built facilities to accompany playing pitches within Design Guidance Notes: Pavilions and Club Houses. Within the Green Belt, we will expect any accompanying facilities not to exceed the minimum size as recommended within such guidance.

We will produce a Supplementary Planning Document on playing pitch provision which will include an analysis of the supply and demand of pitches, together with a quantitative and qualitative assessment of future need.

(4) CLT10 Playing Pitches - Preferred Option

We will take a positive approach to the provision of playing pitches within the District. Green Belt locations for additional playing pitches will be considered appropriate in the following circumstances: There is a need for additional playing pitches in the area which cannot be met by available sites outside of the Green Belt. The site is in an accessible location on the edge of a settlement The impact on the openness of the Green Belt is minimised through the provision of pitches being on a small-scale and any essential accompanying facilities to be developed at the minimum necessary size having regard to guidance from Sport England. The finished site will be level, free-draining and of a sufficient size to accommodate the proposed uses, as stipulated in Sport England guidance. There is no undue impact on residential amenity or highway safety and efficiency. In addition, we will resist the loss of existing playing pitches unless the replacement of such pitches by an equal or better provision in an appropriate location can be secured, or it can be clearly demonstrated that the site is not viable for use as a playing pitch.

CLT10 - Alternative Options
Option	Why is it not preferred?
Allow playing pitches within Green Belt regardless of whether a need can be shown.	Although one of the purposes of the Green Belt is to provide opportunities for outdoor sport within proximity to residential areas, the over provision of pitches would be harmful to the character of the Green Belt.

(2) Tourism

In recent years we have been exploring the possibility of enhancing the District's economy through the promotion of tourism. The District has been identified as the 'green' part of the Thames Gateway and as having the potential to be the arts and cultural opportunities area for the sub-region. We have begun to actively promote the area as a tourism destination, having produced and circulated a District tourism guide.

The District's tourism opportunities are focussed primarily on the themes of heritage, countryside and coastline. The latter raises a number of issues: impact on character and openness of the Green Belt; possible effect on biodiversity; sustainability. We feel that it will be possible to promote rural tourism in a sustainable manner which respects biodiversity and the character of the Green Belt (The issue of tourism in relation to the Green Belt specifically is discussed in Green Belt chapter of the Core Strategy).

Government guidance on this issue contained within Good Practice Guide on Planning Tourism (DCLG, 2007) notes the potential for tourism to deliver economic benefits. The guide states that transport and accessibility is inherent to tourism. However, it also notes that public transport is often limited within areas with rural tourism potential and that other factors, such as the need for rural regeneration, need to be given weight.

The RSPB's proposed Wallasea Island Wild Coast Project has potential tourism opportunities and is discussed within the Upper Roach Valley and Wallasea Island chapter of the Core Strategy.

(2) CLT11 Tourism - Preferred Option

We will promote the development of green tourism projects and the conversion of appropriate rural buildings to bed and breakfasts / hotels which do not adversely impact upon character of place or biodiversity. Whilst priority will be given to areas which are accessible by alternative means to the car, schemes that are in locations with limited public transport links will also be supported if such proposals are able to make a positive contribution to rural regeneration or the well-being of rural communities.

CLT11 - Alternative Options
Option	Why is it not preferred?
Resist tourism proposals unless they can be readily accessed by a variety of forms of transport other than the car.	This would severely restrict the potential to develop small-scale tourism within the District and is not considered sustainable as it fails to account for economic needs.

(3) CLT Appendix 1

Infrastructure required	Standard Charges to be used		Planning obligations to be used where appropriate	Other issues / comment
	Residential development	Employment development
Highway improvements	Yes	Yes	Yes
Public transport improvements	Yes	Yes	Yes
South Essex Rapid Transport	Yes	Yes	No
Cycle network	Yes	Yes	Yes
Greenways	Yes	No	Yes
Recycling facilities	Yes	No	Yes
Primary education, early years and childcare facilities general improvements	Yes	No	Yes
Secondary education general improvements	Yes	No	No	Land to be allocated within new residential areas, as appropriate.
New primary school, Rayleigh	Yes	No	Yes	Land to be allocated within new residential areas, as appropriate.
New primary school, West Rochford	Yes	No	Yes	Land to be allocated within new residential areas, as appropriate.
Expansion and improvement of access at King Edmund School	Yes	No	Yes	Land to be allocated within new residential areas, as appropriate.
Expansion of Fitzwimarc and Sweyne Park Schools	Yes	No	No
Flood Protection Measures	No	No	Yes
Sustainable drainage systems	No	No	Yes
Youth facilities	Yes	No	Yes	Standard charges applied to secure enhancements. Planning obligations applied to secure on-site provision where appropriate.
Community facilities	Yes	No	Yes	Standard charges applied to secure enhancements. Planning obligations applied to secure on-site provision where appropriate.
Leisure facilities	Yes	No	Yes	Standard charges applied to secure enhancements. Planning obligations applied to secure on-site provision where appropriate.
Healthcare improvements	Yes	No	Yes	Standard charges to secure delivery of new facilities. Planning obligations to require mitigation measures identified by healthcare impact assessment to be undertaken.
New healthcare centre, Rayleigh	Yes	No	Yes	Land to be allocated within new residential areas, as appropriate.
Open space	No	No	Yes	Open space to be provided alongside new residential development.
Play Space (new and enhancement of existing)	Yes	No	Yes	Standard charges applied to secure enhancements. Planning obligations applied to secure on-site provision where appropriate.

¹ Available to view online at www.sportengland.org/sportsfc