Agenda item

Context:

To receive an updated review of tourism-related planning policies to enable consideration of the extent to which the Local Development Plan (LDP) supports the Council’s objectives for growing our tourism economy.

Key Issues:

To aid consideration of this topic, the report is divided into two sections. The first part of the report identifies tourism-related planning applications determined during the second LDP monitoring period to determine the effectiveness of the existing policy framework in enabling tourism-related development.  This section utilises details from the LDP Annual Monitoring Report (AMR) to investigate planning approvals and identify any refusals.

The second part of the report updates the findings previously reported to the Select Committee. It reviews how LDP policies should be interpreted in relation to sustainable forms of tourist accommodation and reconsiders the extent to which the policies support such development.

Development Management Decisions

The findings of the 2015-16 AMRdemonstrate that 10 applications were approved for tourism uses during the monitoring period, eight of which were for tourist accommodation facilities. These included six holiday lets (all conversions) in various settlements, an extension to an existing holiday lodge site at St Pierre Country Park for five lodges and a new build 60 bed hotel in Monmouth (Premier Inn). Collectively, these provide over 70 new bed spaces and will provide a further boost to the visitor accommodation available in Monmouthshire.  A further two applications were approved for other tourism related uses – a walkers’ café at Llanddewi Skirrid and new play area at Llandegfedd Visitor Centre.  The number of tourism facilities approved is comparable to those approved during the last monitoring period (10 applications) which indicates that the LDP tourism policy framework is operating effectively to enable tourism development in the County.

It is notable that there were no applications permitted which involved the loss of tourism facilities during the 2015-16 monitoring period. Similarly, no applications relating to tourism-related uses were refused. This compares favourably to the previous AMR when five applications were approved involving the loss of tourist facilities and two tourism-related applications were refused.   This, together with the number of tourist facilities approved over the 2015-16 monitoring period and cumulatively since the Plan’s adoption, indicates that the relevant Plan policies are operating effectively allowing such developments to take place in Monmouthshire.

LDP Tourism Policy Framework 

New forms of visitor accommodation have emerged in recent years including yurts, tepees and wooden pods i.e. ‘glamping’. Given that such forms of accommodation are a relatively recent innovation, they are not defined in legislation and not explicitly referred to in current LDP policies. Accordingly, there is a need to consider how such proposals should be assessed against the existing policy framework and to determine whether policy interpretation / implementation could be clarified through the production of Supplementary Planning Guidance (SPG). Although this matter was considered in the previous report to Select Committee, it was considered appropriate to review this work in light of an increasing number of enquiries regarding these new forms of visitor accommodation.

An Officer Working Group was established to review the interpretation of LDP policies in relation to new forms of visitor accommodation and to reconsider the extent to which the LDP is supporting this growing area of sustainable tourism.

Key policy considerations and relevant LDP policies are set out for each type of tourist accommodation. Within settlement boundaries, development is generally acceptable in principle subject to normal amenity considerations and policy matters such as flood risk.

In summary, the starting point is Policy S11 which supports sustainable forms of tourism, as does Policy S8.  Such proposals are acceptable in principle unless ruled out by Policies T1, T2 or T3.  Proposals would be assessed against other policies for example landscape harm (LC5) or highway safety objections etc.

T1 allows for touring caravans and tents.

T2 allows new build self-catering accommodation in specific circumstances:

-           Ancillary to establish medium or large hotels.

-           Re-use or conversion of existing buildings in countryside subject to H4.

-           Substantial rebuild within the curtilage of a farm where it complies with RE3 agricultural diversification.

T3 allows visitor accommodation on golf courses where in supports the tourism economy, subject to detailed planning considerations.

Amenity blocks are also covered by S11 and S8 subject to landscape harm.

Generally speaking, proposals such as yurts / shepherd’s huts should be taken down or relocated into storage out of season.  However, the necessity for this needs to be considered on a case by case basis depending upon landscape harm and visual impact.  Consideration needs to be given to planning conditions to control the number of units, siting, appearance / type of unit, and occupancy.

Contrary to some of the findings reported in the previous Select Report on this issue, the review found that the LDP policy framework is in fact generally supportive of sustainable forms of tourist accommodation, including ‘glamping’.  Such proposals would still be subject to other relevant policy considerations (landscape, highways, natural / historic environment.). However, the starting point for assessing such proposals is Strategic Policy S11 (Visitor Economy) which supports and seeks to enable the provision of sustainable tourism development in Monmouthshire. 

However, the review also determined that the preparation of SPG would be beneficial in order to provide clarification for officers and customers on the interpretation / implementation of the existing policy framework in relation to such proposals.

Consideration has also been given to the interpretation of LDP policies in relation to another form of tourist accommodation which are not specifically referenced in LDP policies namely, static caravans. Strategic policy S11 is unlikely to support such proposals as it is doubtful that static caravans could be considered as a sustainable form of tourist accommodation.

Member Scrutiny:

A Member questioned the arrangements for vehicles visiting sites.  The Head of Planning, Housing and Place-Shaping explained that approaches vary; some sites have space next to the hired unit and others may have a small landscaped car park discreetly located.  Generally, the nature of glamping-type experiences discourage vehicles in order to preserve an open and safe environment.  It was confirmed that this is a growth area of tourism business.

A Member queried the market for timber chalets in the County noting that these units are popular in the Forest of Dean.  It was confirmed that there is occasional interest as listed in the accompanying report.  Policy for this category of unit was debated noting that support for the application can vary.  For example, an application would be supported if linked to a medium or large hotel but could not be supported as part of agricultural diversification as this would count as new buildings. 

It was queried if policy was too strict in terms of agricultural diversification. It was agreed that whilst it would not be possible to change Supplementary Planning Guidance, it would be possible to clarify interpretation and to look at future policy under the review of the Local Development Plan, and to encourage sympathetically sited tourism opportunities in acceptable locations.

The Strategic Food and Tourism Manager queried how businesses and potential investors would be made aware of the possibility of flexibility in exceptional circumstances. It was confirmed that this possibility could be considered at the pre-application advice visit which looks at potential applications on a case by case basis whilst retaining control to reject an application.  It was agreed that further supplementary planning guidance will be useful and production of a leaflet summarising the main points was supported. 

A Member questioned Welsh Government and NRW policy with regard to applications rejected and now subject to ministerial call in due to perceived flood risk.  The Member referred to the low flood risk in the summer tourist months, and emphasising the potential loss of economic advantage.

The Head of Planning, Housing and Place-Shaping advised that revised Supplementary Planning Guidance would be presented to Committee in February 2017.