 7.1 It is essential to consider open space as a legitimate land use in its own right, one which enhances the quality of people’s lives in a wide variety of ways. It provides space for a number of forms of recreation, e.g. children’s playgrounds, sports pitches, informal recreation, walking and cycling; it provides a range of habitats for biodiversity, and access to natural or nature like landscapes, including areas of woodland. Moreover, open space is of particular value in Sandwell, which has no neighbouring rural areas. 7.2 Sandwell’s open spaces are also of key significance to the image that the Borough projects, and are therefore important in promoting inward investment and reducing outward migration. 7.3 Sandwell’s open spaces are a diverse mixture in terms of size, use and ownership. Some have come about because past uses have made them difficult and expensive to develop and therefore, may not be located in such a way as to maximise their benefit to the local community. The UDP hierarchy addresses the location and function of open spaces to ensure that they contribute fully to the quality of life. 7.4 Sandwell’s legacy of formal Victorian parks represents a valuable asset, but one which faces competition from new formats of commercial leisure facilities, as modern lifestyles have high demands for the quality of leisure time. However, commercial facilities are not a direct alternative to public parks, which still fulfil a traditional role, as well as providing ideal settings for potential new forms of related educational, cultural and recreational facilities. 7.5 In recent years, Sandwell’s stock of woodland has been increased through the Council’s involvement in the Black Country Urban Forest Millennium Programme, which has created 74 hectares of new woodland over the past five years. This is an important contribution to the sustainability of Sandwell’s environment through the functionality of wooded open space in terms of biodiversity enhancement, storm water moderation, shade provision, shelter, air quality enhancement and stress relief. 7.6 The policy aim is to protect and enhance Sandwell’s stock of open spaces, and to improve their quality and accessibility in order to maximise their contribution to a sustainable pattern of land use including the diversity of nature. 
7.7 Government guidance in PPG17 (Sport and Recreation) stresses the importance of protecting land for recreational purposes, and mentions the minimum standards recommended by the National Playing Fields Association of 2.4 hectares of outdoor playing space per 1000 people.
 7.8 PPG3 (Housing) refers to the objective of "greening the residential environment", and states that "new housing developments should incorporate sufficient provision where such spaces are not adequately provided within easy access of the new housing." In this respect, PPG17 makes it clear that local authorities may use planning obligations to secure the provision of public open space and other sporting and community facilities in association with development proposals. 7.9 The Government guidance on Green Belts (PPG2) reinforces the principle of resisting development in Green Belts. 7.10 Regional Guidance (RPG11) recognises the importance of open space and facilities for recreation. However the target for new housing will increase pressure on undeveloped land. 7.11 The Council is committed to providing opportunities for play for children of all ages and has produced Supplementary Planning Guidance, in response to the Council’s Policy for Play, which sets out how facilities for children’s play should be provided in association with new housing developments. The SPG is now revised by Development Control Policy DC9 in this plan. 7.12 A study by Comedia/Demos (Park Life) restates the importance of parks and open spaces to a sense of local identity, but suggests that parks now need to redefine themselves, in order to assure their future viability. 7.13 A report by English Nature concludes that a major aim of long-term integrated planning should be the development and maintenance of multifunctional green networks, which have a vital role to play in achieving sustainable development. 7.14 The Sandwell Plan expresses the council’s ambition to maximise the contribution of Sandwell’s open spaces to the overall quality of life. Quality open space is regarded as an integral part of quality living space.
The Council will use the following hierarchy to analyse existing provision of open space, to identify strengths and weaknesses in the provision, and to guide decisions about improvements, new and replacement provision, and development proposals which impact on the provision. | Type | Distance from Home | Characteristics | Function | | Regional Parks, Regional Wildspace and Green Belt | Mainly weekend and occasional visits by car or public transport | Up to 8 km | Large areas of rural type land, including woodland and agricultural land. Some areas not publicly accessible. Primarily providing for informal recreation, but should include a strategic area for play. Car parking at key locations. | | Strategic Open Space and Wildspace | Mainly weekend and occasional visits by cycle, car or public transport | Up to 8 km | Large areas of open space. Includes: formal parks and private open space; land of rural character; and land of nature conservation value. Should include a strategic area for play. Adequate car parking and cycle parking. | | Town Parks | Mainly weekend and occasional visits by foot, cycle, car or public transport | 1.2 km | Landscape setting with a variety of natural features providing for a wide range of activities; formal and informal, or of a more specialist character e.g. nature conservation. The non-specialist parks should include a neighbourhood area for play. Size about 15-40 ha. Some car parking. | | District Parks or Large Open Spaces | For pedestrian visitors | 0.4 km | Providing for court games, children’s play, sitting-out areas, and landscaped or natural environment. Should include a neighbourhood area for play. Size about 5-15 ha. | | Neighbourhood Parks or Open Spaces | For pedestrian visitors | 0.4 km | Similar to District Parks, but likely to be between 2 and 5 ha in size. Should include a neighbourhood area for play. | | Local Parks and Open Spaces, Wildspaces, Public Squares and other Hard Landscaped Areas | Local Parks and Open Spaces, Wildspaces, Public Squares and other Hard Landscaped Areas | up to 0.4 km | Gardens, sitting-out areas, children's playgrounds, hard landscaped areas and public squares, and other areas of a specialist nature, including nature conservation areas. Should include a local or neighbourhood area for play, depending on size. Size up to 2 ha. | | Linear Open Spaces | Pedestrian visits | 0.4 km | Canal towpaths, paths, disused railways and other routes, which provide for informal recreation and/or nature conservation. Often areas that are not fully accessible to the public, but contribute to the enjoyment of the space. May provide important links in the open space network. | 7.15 The hierarchy serves two main functions: to analyse and categorise existing open space provision; and to guide future provision or enhancement. 7.16 Sandwell’s open spaces are a diverse mixture in terms of size, use and ownership. The hierarchy will be used to assess their location and function, and to guide decisions about provision, with a view to ensuring that the greatest number of people have easy access to a wide range of good quality open spaces that meet their functional requirements, and that the needs of disabled people, women and ethnic minorities are adequately catered for. 7.17 This hierarchy includes all open spaces as defined in OS2 below. Policies OS3 and OS4 deal with the Green Belt and Strategic Open Space levels in more detail. In terms of guiding new provision and improvements to existing provision, it is the levels below Strategic Open Space that are likely to be of most interest. Policy OS5 (Community Open Space) refers to these levels of the hierarchy. Playing fields are a valuable contribution, particularly to the lower parts of the hierarchy, whilst sports pitches are likely to be provided within District and Town Parks and within Strategic Open Space and Green Belt. These facilities are specifically addressed by Policy OS7.
Open spaces are areas of open land or water, which add value to the urban environment. This value may be in terms of provision for outdoor sport or recreation; provision of wildlife habitats; visual or other amenity; or linking other open spaces together.
Proposals that would result in the loss of open spaces, excluding temporary and interim open spaces, will only be permitted where the wider community interests outweigh the loss of open space, and relevant compensatory measures are undertaken. 7.18 Open space plays an essential role in the urban environment, and is protected as a valid land use in its own right.
 7.19 Open spaces include land within Green Belt and Strategic Open Space designated areas, allotments, cemeteries, playing fields, golf courses, some leisure facilities, private sports pitches, privately owned open spaces, woodland, and community open spaces (see Policy OS5). 7.20 Where development is justified, compensatory measures will usually be required. Compensatory measures are likely to be the provision of new sites in appropriate locations and/or significant enhancement of other open spaces in the area. Proposals that include the replacement of existing open space will be considered against the principle that all new provision should be of at least equivalent value to that it is intended to replace. In assessing this value, regard will be given to the character, quantity, quality, accessibility and availability of the existing and proposed provision.
The boundaries of the Green Belt are shown on the Proposals Map. Within the Green Belt, inappropriate development as defined in PPG2 will not be permitted, except in very special circumstances, where the harm of the development is clearly outweighed by other considerations.
Any such case will be treated as a departure from the Plan, and will be referred to the Secretary of State. 7.21 PPG2 (paragraph 1.5) sets out the main purposes of Green Belt designations. These are particularly pertinent to Sandwell’s Green Belt: - to check the unrestricted sprawl of large built-up areas;
- to assist in safeguarding the countryside from encroachment; and
- to assist in urban regeneration, by encouraging the recycling of derelict and other urbanland.
7.22 The following PPG2 (paragraph 1.6) land use objectives of Green Belts are of most relevance to Sandwell: - to provide access to the countryside for the urban population;
- to provide opportunities for outdoor sport and recreation;
- to secure nature conservation interest; and to retain attractive landscapes near to where people live.
7.23 The construction of new buildings in the Green Belt is inappropriate development unless for certain purposes, as outlined in PPG2 (paragraph 3.4). The ones most relevant to Sandwell are as follows: - agriculture and forestry;
- essential facilities for outdoor sport and recreation;
- cemeteries; and
- limited extension, alteration or replacement of an existing dwelling.
Replacement buildings on the site of vacant or demolished buildings are treated as new buildings, and are therefore subject to the same tests of appropriateness. 7.24 The re-use of buildings within the Green Belt is acceptable in principle, as it should not prejudice the openness of the Green Belt. PPG2 (paragraph 3.8) sets out the conditions, which must be met for such development to be acceptable; these are summarised below: - the proposed use must not have a greater impact than the present use on the openness of the Green Belt;
- strict control should be exercised over the extension of re-used buildings, and the use of land associated with them;
- the buildings must be of permanent construction, and capable of conversion; and
- the design of buildings should be in keeping with their surroundings.
The Proposals Map defines the Strategic Open Space within which development will not be permitted that would prejudice the character of the area or its function in: - providing a major area of continuous and wide open space;
- preventing the merging of urban areas;
- providing an open, natural skyline;
- providing for outdoor recreational opportunities for neighbouring urban areas;
- providing a range of wildlife habitats and a wildlife corridor;
- providing extensive views out over the surrounding areas.
7.25 The Rowley Regis area receives much of its unique character from the dominating uplands that provide such a dramatic backdrop. Visible from a considerable distance, the remaining open, natural skyline is essential to this character. 7.26 The Rowley Hills provide a much needed openness within an otherwise heavily built- up area offering valuable opportunities and potential for outdoor recreation. However, although it does contain some individual Community Open Spaces, much of the area is not publicly accessible, and recreation is only one aspect of its function and character. 7.27 The importance of the Hills is derived from their open character, which will be vigorously defended from the incursion of built development, or other inappropriate uses.
Community Open Spaces are open spaces which are physically accessible and publicly available. These are shown on the Proposals Map.
The Council will seek the provision of Community Open Space at a minimum ratio of 2 hectares per 1000 population, and will seek to ensure that at least 1 hectare of Community Open Space is provided within walking distance (0.4 km) of all the Borough’s residents.
Quality Community Open Space is seen as an integral part of quality living space, and should be provided as part of new housing developments where such spaces are not available within easy access of the development. Where provision locally is adequate in terms of quantity, greater emphasis will be placed on improving the quality of existing nearby Community Open Space.
7.28 Community Open Space refers to those levels of the Open Space Hierarchy (OS1) below the level of Strategic Open Space. 7.29 Sandwell’s minimum ratio for Community Open Space is partly derived from the National Playing Fields Association’s six-acre standard for outdoor playing space provision, although the scope of the NPFA standard is not directly equivalent to Sandwell’s definition of Community Open Space. It should be emphasised that this ratio is a minimum requirement. Whilst provision for the whole Borough currently exceeds this figure, the distribution of open spaces is such that many localities within the Borough are underprovided. 7.30 In those areas that are not deficient in terms of quantity of open space, greater emphasis will be placed on removing deficiencies in the quality of existing open spaces.
The network of open spaces across the Borough will be secured by protection of linear open spaces and wildlife corridors, and by providing new or enhanced links between existing open spaces. 7.31 Linear open spaces and wildlife corridors play a vital role in an urban environment, linking nodal open spaces to form a network, enabling the movement of wildlife and people, and eventually connecting the urban environment with the open countryside beyond the conurbation. 7.32 Open space and/or buffer strips along watercourses provide a feature and access and recreation opportunities, as well as improving the watercourse as a wildlife corridor. Sustainable Urban Drainage Systems (SUDS), such as retention and detention ponds, can provide appropriate open space. 7.33 Sandwell’s network of linear open spaces comprises canal and river corridors, some disused rail corridors, and some current transport corridors. In many places these corridors are very narrow. The breaking of just one link could impact on the viability of a corridor and the integrity of the whole network.
Proposals for development that would involve the loss of existing sports pitches or facilities will not be permitted.
In exceptional circumstances, such proposals may be allowed, where there would be a net gain in benefit to the community through the benefits of the proposed development and through compensatory measures, which must be:
the provision of alternative facilities of at least equivalent community benefit near to the development;
or
the enhancement of existing nearby facilities, subject to the level of enhancement being of at least equal community benefit. 7.34 The current level of provision of playing fields and sports pitches in Sandwell is below the standard advocated by the National Playing Fields Association for pitch sports (1.2 hectares per 1000 population). Furthermore, it is unlikely that additional land will be made available to make up this deficiency. 7.35 It is therefore very important to guard against any further loss, and to make the best use of existing provision and to maintain or enhance its quality. In addition, the use of school playing fields by recognised organisations (e.g. teams registered with a local league) would contribute to the overall provision. (See Policy OS11). 7.36 Where development is allowed, the compensatory measures required will be those of most benefit to the community.
Developers will be required to ensure that there is sufficient good quality open space provided to meet the needs of the people living in the new housing development.
Where new community open space is provided, the developer will be required to make provision for its future maintenance. Where the development is too small to provide a useful area of open space on site, or where local provision is already sufficient in terms of quantity, a contribution may be required to improve the quality of existing community open space within 400m of the proposed development. A legal contract will be drawn up for this purpose. 7.37 New housing developments bring new demand for Community Open Space. It is important that open spaces are appropriately located and designed to meet the particular requirements of the residents of the development. Therefore, each proposal will be assessed to determine the likely demands for particular uses of open space, including wild-space, that will be generated. The Council will expect developers providing new Community Open Space to make adequate provision provision for its maintenance. When considering the details of a proposal the Council will have regard to Development Control Policy DC9 Provision of Open Space and Play Space in New Residential Areas. 7.38 In the case of small developments, it may not be useful to incorporate open space provision within the development; whilst some larger developments, particularly those located in areas already well provided with open space, may be better served by appropriate enhancements to a nearby open space - by providing sports facilities or play equipment, for example. In these cases the Council will require the developer to make a contribution in lieu of provision. The level of contribution will be agreed through negotiation, with reference to Development Control Policy DC9.
Major industrial, office and retail developments can bring new demand for public space. Such development proposals will be required to include provision to meet that demand. Where proposed developments would involve the loss of existing leisure facilities or open space, compensatory measures will be required, either through replacement provision or through improvement to existing provision. 7.39 Increasing numbers of people take part in sport and leisure activities directly from work, either during the lunch hour or immediately before or after work. There are, therefore, considerable benefits in locating facilities for such activities close to business and retail areas. 7.40 Many office and factory workers simply wish to get out during their lunch break to walk or relax in a pleasant environment, so the provision of an attractive open area, which may include wildspace, to provide for this is likely to be appropriate. 7.41 Major retail developments attract many people and generate public space demands, which may most appropriately be met by the provision of a town square, allowing for people to circulate, to rest and to interact in a safe and attractive environment. Thresholds for major developments are as defined within Supplementary Planning Guidance: Car Parking Standards and Transport Assessments.
Proposals to redevelop allotments will not be permitted, unless in accordance with allocations made in this plan, or where it can be clearly demonstrated that the existing provision is no longer required to meet local demand. In this event compensatory measures may be required for the loss, either through provision of new allotments or an open space of equivalent value nearby, or through a commensurate contribution to the enhancement of existing provision in the vicinity. Proposals for community agriculture will be supported where appropriate. 7.42 The Council recognises the importance of allotments to local communities and their unique place in Britain’s heritage. However, it is also recognised that there has been a prolonged decline in their usage, and that some sites may be falling into disuse. 7.43 However, beyond their primary use allotments may also have open space and nature conservation value. For this reason, where the development of a redundant site is proposed, measures may be required to compensate for the loss to the open space provision in the locality. 7.44 The Council is keen to encourage new community agriculture schemes, and recognises the important role that such schemes can play in meeting the special requirements of ethnic minority communities.
The wider community use of school playing fields, other school facilities, such as sports halls, and private facilities will be encouraged, especially in areas where public provision is deficient. 7.45 Sports facilities provided at schools can be an important resource for the local community, especially to local clubs or teams in need of a venue. Many schools are well located in relation to access by foot or public transport, and so should not significantly increase private car trips. 7.46 Schools that offer up their facilities to the wider community can benefit by being recognised as a key part of the local community infrastructure. Benefits can also accrue to their pupils, who may be more willing to continue sporting activities if opportunities to participate outside school hours are offered at their school, in familiar surroundings. 7.47 Opportunities may exist to make wider use of facilities other than those at school sites. Further education establishments may have an important role in providing specialist sports facilities, and company and commercial facilities may have value in areas which are underprovided.
New sports and recreation facilities should be conveniently located and easily accessible for all sectors of the community they are intended to serve by a range of transport modes.
In considering the design of new and adapted sports and community facilities, particular attention should be given to the physical accessibility of the buildings to all users, especially families with children, members of ethnic minority communities, elderly people and people with mobility or sensory impairment. 7.48 Sport and leisure opportunities should be available to all sectors of the community, including those who are disadvantaged economically or physically. Therefore, any new projects whether for the built or natural environment should provide physical, sustainable and affordable access appropriate to the needs of everyone.
The Council recognises the contribution floodlighting, synthetic pitches and hard surfaced games areas can make to an increase in participation in sport. Proposals for the introduction of such facilities will be permitted in appropriate locations, provided it does not result in unacceptable degradation of local amenity, through noise and light pollution and increased traffic.
 7.49 Locations that are likely to be appropriate are those that are accessible to the catchment population, giving priority to access by walking, cycling and public transport. 7.50 The possible impact on residential amenity from the use of floodlighting and through the numbers of people that such facilities can sustain also need to be taken into account when choosing a suitable location. 7.51 Sensitive siting and design can help to minimise the impact of light pollution and other disturbance caused by the intensification of use. 7.52 Although synthetic turf pitches can sustain a high level of use, they should not be considered as a direct replacement for grass pitches, but rather as a valuable additional resource. 7.53 Multi-use games areas are particularly valuable in accommodating a range of sports, such as netball, football, tennis, hockey and basketball. They can become a focus for sports development activities, serving a local catchment, and reducing the need to travel to larger facilities.
The Council will support the use of suitable water features for recreation purposes, provided that such activities do not have detrimental impacts on the nature conservation value of such features.
Proposals that would have an adverse impact on the recreational potential of Sandwell’s water features will be resisted. 7.54 Within Sandwell there are few wide stretches of water suitable for a recreational use. The main areas are in Sandwell Valley (Swan Pool and Forge Mill Lake) and in Sheepwash Urban Park. Other pools in the Borough tend to have only amenity use, although some are used for fishing and boating. 7.55 Sandwell’s canal network provides an important recreation and leisure facility. The current usage of canals for angling and boating has the potential to increase, and this will be encouraged. Making these features accessible to all sections of the community should be a priority of future improvement schemes.
Indoor sports and community facilities will be encouraged to locate in areas that are accessible to the whole community. Town and District Centres are preferred, but may not always be suitable for large scale proposals. Uses that generate significant numbers of visitors should be located in close proximity to major public transport nodes. 7.56 A key aspect of achieving sustainable development is the relationship between land uses and the transport infrastructure. Town and District Centres are locations well served by public transport, and are therefore generally the preferred location for uses that generate many visitors. 7.57 However, this policy recognises that the scale of some sports and leisure facilities would make them difficult to accommodate within town centres. Therefore, edge-of-centre locations, or other locations well served by public transport, are likely to be appropriate.
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