Draft Regulation 18 Sandwell Local Plan

APPENDIX K – 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 and Appendix J, which contains an extract from the document's strategy and action plan setting out detail of current levels of pitch and field supply and demand.

1. This appendix provides guidelines on the quantity of green space required per 1,000 residents (minimum levels), the accessibility of green space (walking distance) and the broad quality requirements of all types of recreational open space. It also includes recommended dimensions for a range of formal spaces.
2. The Council will seek the provision of new unrestricted open space at a minimum ratio of 3.63 hectares per 1,000 population. The Council will also seek to ensure that at least one hectare of Community Open Space is provided within walking distance (0.4 km) of all the Borough's residents.
3. Sandwell's minimum ratio for open space is derived in part from the Fields in Trust guidance^[3] on open space and outdoor playing space provision, although the scope of their standard is not directly equivalent to Sandwell's definition of Community Open Space. It should be emphasised that this will be a minimum requirement.
4. Open Space is defined in the NPPF (July 2021) 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.

5. Green space is effectively a subset of open space that includes vegetated land or water within an urban area such as parks, public gardens, playing fields, children's play areas, nature reserves, woods and other natural areas, grassed areas, cemeteries and allotments along with green corridors like paths, disused railway lines, rivers and canals.
6. As set out in more detail in Policy SHW4, for the purposes of the Sandwell Local Plan, open and green spaces are those areas used for leisure and recreation by local communities and include: -

• parks and gardens
• natural and semi natural green places
• green corridors
• amenity green space
• play provision for children and young people
• allotments^[3]
• cemeteries
• institutional land
• playing fields and sports pitches (see note above)

7. The boundaries of existing open space are set out on the Policies Map and include existing open spaces that have been identified through the Sandwell Green Space Strategy 2020 - 2030. 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.
8. The standards shown below relate to the quantity, quality and accessibility of each type of open space. More specifically:

• Quantity standards refer to the area of open space in hectares required for every 1,000 residents, or per child for children and young people's provision, within a set area.
• Quality standards refer to a subjective rating of the quality of existing open space expressed as a percentage based on physical characteristics, value of the space, and benefits to the wider environment. The Council's aim is to achieve quality scores within the 'Upper Quartile' range. All open space quality assessments will use data from the Green Spaces Strategy.
• 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.

9. 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.

10. 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.

Open Space Hierarchy

11. The Sandwell Green Space Strategy Implementation and Business Plan^[4] also identifies a hierarchy that classifies types of green space according to its significance and thus the importance it will have when considering planning proposals that may impact on it:

Development and open space provision

12. 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.
13. 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 SDS7.
14. 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.
15. The incorporation of open space into new developments should also consider Policy SDS4, 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.

16. 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 overlooking public spaces.
17. 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.
18. Proposals will be assessed in accordance with the standards set out below.

Open space standards in Sandwell

19. In terms of unrestricted green space, there are 323 green spaces covering just under 1200 hectares. Overall, 13.9% of the total land area of the Borough is accessible green space. This is characterised by large expanses of semi-natural green space covering 458 hectares, with parks and gardens covering 264 hectares (as at 2020^[5]). This quantum of land with unrestricted access equates to 3.63 hectares of space per 1,000 population and provides more unrestricted green space access than some other local authorities. Natural and semi-natural green space makes up nearly 40% of the supply (by area) of unrestricted green space and is important in terms of contributing to landscape character and biodiversity.
20. Sandwell's amenity green spaces cover a total area of 214 hectares, although individually these typically tend to be smaller areas than semi-natural green space or parks and gardens.
21. The distribution of open space across the borough is not even, with some areas and wards containing much larger areas of open land than others, such as Sandwell Valley and certain of the larger parks. 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.
22. 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. A site's proximity to existing open spaces, play areas and active and passive leisure and recreational opportunities will help to determine how much open space is required on it.
23. 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.
24. 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, such as main roads, 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.
25. 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

Quantity and Accessibility Standards Defined for Open Space Assessment^[6]

26. Table 2 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 2 - Recommended Application of Quantity Benchmark Guidelines – Equipped / Designated Play Space[7]