Sandwell Local Plan - Reg 19 Publication

APPENDIX J – Open space and play provision standards for development

Note: the availability, accessibility and quality of sports facilities / playing pitches will be assessed using data from the Playing Pitch and Outdoor Sports Strategy (2022); please refer to Policy SHW5

This appendix provides guidance on the minimum quantity of unrestricted open space required per 1,000 residents, the accessibility of open space (walking distance) and the quantity standards and high-level quality requirements for different typologies of open space. Further detail on the quality requirements for new open space will be set out in the Council's Design Code.

Definitions

Open Space is defined in the NPPF (Dec 2023) as:

All open space of public value, including not just land, but also areas of water (such as rivers, canals, lakes and reservoirs) which offer important opportunities for sport and recreation and can act as a visual amenity.

Examples of open space include: -

• parks and gardens
• natural and semi natural green places
• green corridors
• amenity green space
• play provision for children and young people
• allotments^[14]
• cemeteries
• institutional land
• playing fields and sports pitches (see note above)

Accessibility standards refer to open spaces within a set distance away from people's homes / communities. All open space in a given category within the set distance are determined as serving those homes / communities.

In terms of its accessibility, open space can be unrestricted, limited or inaccessible. This is defined in the Green Spaces Strategy as follows: -

• unrestricted - sites have unrestricted public access although some sites may have limitations to access between dusk and dawn;
• limited - sites may be publicly or privately owned but access is limited either by a physical barrier such as membership, or a psychological barrier such as the sense that a green space is private;
• not accessible - sites are out of bounds to the public.

Land could have limited or no public access but will still deliver many of the benefits of open space e.g. land for ecological habitats, green and blue infrastructure, climate change mitigation and improvements to air quality.

Provision

The Council will seek the provision of unrestricted open space at a minimum ratio of 3.258 hectares per 1,000 population, measured at a ward level. The Council will also seek to ensure that at a site of least one hectare in size of unrestricted open space is provided within walking distance (0.4 km) of all the Borough's residents. This will be achieved both through the creation of new areas of unrestricted open space as part of development proposals and by improving accessibility to existing areas of open space.

Sandwell's minimum ratio for unrestricted open space is derived in part from the 2024 Sandwell Open Space Assessment

The SLP Policies Map^[15] allocates land that meets the NPPF definition of open space and that has unrestricted access as identified in the Sandwell Open Space Assessment 2024. Any subsequent update of this document may result in the identification of other existing open spaces over the plan period. Where practicable, the Council will identify land as open space, to address current shortfalls and provide much-needed community facilities.

The standards shown below relate to the quantity, quality and accessibility of each typology of open space. More specifically:

• Quantity standards refer to the minimum area of open space in hectares required for every 1,000 residents at ward level.
• Quality standards refer to a subjective rating of the quality of existing open space based on physical characteristics, value of the space, and benefits to the wider environment. The quality standards are high-level and more detailed guidance will be provided in the Council's Design Code.

Open Space Hierarchy

Open spaces in Sandwell are set within a hierarchy that classifies them according to their significance and thus the importance they will have when considering planning proposals that may impact on them:

Table 1 - Open Space Hierarchy

Development and open space provision

The quantum and typology of open space that may be applicable to a housing site will depend upon its intended occupants; for example, specialist housing for older people will not create demand for the typical amount and type of open space required for children and young people.

New open space should be designed and located so that it performs multiple functions. It should be considered as part of the wider approach to green infrastructure planning, as set out in Policy SDS8.

Where open space is to be provided on the same site as a development, this should be identified as part of the development's green infrastructure within the design and access statement that accompanies the planning application. Reference should be made to those green space assets and / or corridors that apply to / exist near a site, and to what measures will be taken to enhance, extend and /or link to them.

The incorporation of open space into new developments should also consider Policy SDS5, the principles set out in Secured by Design and Sport England and the Government's Active Design initiative (May 2023). This document contains ten main principles, one of which relates to open space:

• Principle 5 - Network of multi-functional open spaces
  
  Accessible and high quality open space should be promoted across cities, towns and villages to provide opportunities for sport and physical activity, as well as active travel connections and natural or civic space for people to congregate in and enjoy.

The inclusion of open space in new development is also an opportunity to have regard to features that minimise crime and perception of crime such as natural surveillance of public spaces.

Where redevelopment of an open space is being considered, regard will be had to whether its loss would have a detrimental impact on the character and appearance of the area. Adverse impacts on habitats and ecological value are also important factors and will be taken into consideration when decisions are made. If, exceptionally, an existing open space is to be redeveloped, it must be replaced nearby to an equivalent standard or better.

Proposals will be assessed in accordance with the standards set out below. Open space assessments that are submitted in support of planning proposals should have regard to the Council's most up-to-date evidence on quantity and quality of open space.

Open space standards in Sandwell

There are 319 open spaces with unrestricted access in Sandwell, covering an area of 1121hectares. This equates to 13.6% of the total area of the borough. The quantum of open spaces with unrestricted access equates to 3.258 hectares of space per 1,000 population.

Table 2 - Existing Quantity of Unrestricted Open Space per 1000 population^[16]

Including all levels of accessibility, there are a total of 542 open spaces covering nearly 2,000 hectares. This is equivalent to 23.2% of the total land area of the Borough. Natural and semi-natural green space makes up the largest percentage by area at 36.8% of all open space covering over 726 hectares. Outdoor sports facilities make up 16.7% by area, followed by parks and gardens at 13.4%. Amenity green spaces are the most common open space type with 198 such spaces, but each site is typically relatively small. However, amenity green space makes up 12.7% of the supply by area.

The distribution of open space across the borough is not even, with some areas and wards containing more open space than others. This pattern masks a dearth of suitable and accessible space in other areas. For example, residents of West Bromwich Central Ward enjoy nearly fifteen times more green space than those in Old Warley Ward, primarily due to the presence of Sandwell Valley.

Given Sandwell's urban nature and the viability issues associated with providing additional facilities on sites, accessibility to high quality open space is therefore a significant consideration when proposals for new housing development are being considered.

Where possible, new open space provision (which may also provide a basis for biodiversity net gain and sustainable drainage requirements on site as well, as part of a multi-functional green and blue infrastructure approach) will be required on development sites, especially where this will help meet local shortfalls by ward. Where this is not possible, the delivery / improvement of land adjacent to or within a suitable walking distance from new residential areas will be considered.

Accessibility thresholds should be measured as a distance walked rather than as a simple straight-line measurement / radius. Significant obstacles or impediments to local access that sever walking routes, such as canals and motorways, should be considered when assessing the accessibility of open spaces. Open spaces and play facilities should be located close to and be accessible from bus stops, pedestrian and cycle routes, to help promote sustainable travel.

Indicative walking distances can be determined from the broad data set out below: -

• 250m - 2-3 minutes' walk
• 400m - 5 minutes' walk
• 800m - 10 minutes' walk
• 1,200m - 15 minutes' walk
• 1,600m - 20 minutes' walk

Table 3 - Quantity and Accessibility Standards Defined for Open Space Assessment^[18]

Table 4 sets out recommended benchmark guidelines for the provision of equipped / designated play space. A financial contribution (i.e. through S106 or CIL) towards improvement of an existing equipped / designated play space may be sought in lieu of on-site provision for larger scale play spaces, or where existing play space lies within the walking distance guidelines of a proposed development.

Table 4 - Recommended Application of Quantity Benchmark Guidelines – Equipped / Designated Play Space^[19]

Table 5 sets out the financial contributions that will be sought for off-site open space. The rates are indexed for 2024 prices and may be updated periodically to reflect price inflation.

Contributions towards the provision of new open space or the improvement of existing open space are calculated using the same rates, as the improvement of existing open space will normally include at least some new provision.

Where the required level of open space of a particular typology is provided partly on-site and partly through contributions to off-site provision and /or improvement, credit will be given for the space provided on-site in calculating the off-site contributions.

The rates do not include the cost of providing playing pitches or fixed sports facilities (such as tennis or bowls), which are additional costs which may need to be agreed in addition to the rates below.

The rates are separate to the costs of delivering biodiversity net gain.

Table 5 - Off-Site Open Space Planning Contribution Rates

Where open space provided on site is to be adopted by Sandwell Council, or where contributions are provided to off-site provision or improvements, maintenance contributions for 15 years for equipped/designated play space and 30 years' maintenance for all other types of open space will be sought through a S106 legal agreement. Maintenance contributions will be calculated using the rates set out in Table 6.

The open space maintenance contribution excludes the maintenance of fixed sports facilities, which would be in addition. The contributions above also exclude tree establishment costs, set-up costs, professional and admin costs.

Table 6 - Open Space Maintenance Rates