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The role of tourism in Torbay

5.1 Torbay is the premier long stay major resort in Britain. It is also a conference centre and is marketed nationally and internationally as the English Riviera. It is the leading resort in the West Country and the largest in the U.K. in terms of visitor bed nights, with about 8.5 million each year. During the peak summer months, the resident population rises by about 50% as a result of the influx of tourists and foreign students who come to enjoy the facilities, surroundings and climate offered by Torbay. It is one of the few seaside resorts in the U.K. to attract substantial numbers of overseas visitors.

5.2 The dominance of the tourism industry has an impact on most aspects of life in Torbay. In particular, the presence of such large numbers of visitors has necessitated the provision and maintenance of a wider range and level of services than would be required by the resident population.

5.3 Whilst the main product of the industry is still the traditional family seaside holiday, the emphasis is shifting in the face of changing demand. The average length of stay of holidaymakers has fallen to approximately six days, and more second holidays, short breaks and activity holidays are taking place. It is recognised that the archaeological, cultural and natural heritage of an area is becoming an increasingly important part of the tourism industry. Conference and exhibition breaks have also increased.

Tourism characteristics and facilities

5.4 The tourism industry has developed over many years, in response to the demands made upon it. Torbay’s appeal is based on its coastal setting and environment, good climate and range of holiday facilities, including the following features:-

• some 33 km (22 miles) of attractive coastline, including the South West Coast National Trail with 18 beaches ranging from long expanses of sand to small picturesque coves

• an excellent range of good quality hotels, guesthouses and holiday apartments, holiday centres and caravan parks (providing some 51,510 bedspaces in 1999). This amounted to a quarter of the bedspace capacity in Devon

• a variety of cultural and social facilities, including museums, theatres, cinemas, nightclubs and restaurants

• a good range of conference venues, including the Riviera Centre

• a wide choice of visitor attractions, including Paignton Zoo, Living Coasts, Babbacombe Model Village, Kents Cavern, Steam Railway, the Riviera Centre and Quaywest Water Park

• two marinas and extensive opportunities for maritime activities

• extensive areas of open space, seafront gardens and parkland, including the two Country Parks at Cockington and Berry Head

• an attractive hinterland, including moorland, countryside and outstanding coastal scenery

• good road and rail communications with other parts of the country

The economic significance of tourism

5.5 Tourism has been the cornerstone of Torbay’s economy since the mid nineteenth century. In 1999 direct spending by staying visitors to Torbay amounted to £300 million. The largest element of this was accommodation, accounting for £107 million. In addition, day visitors to Torbay spent approximately £25 million (Tourism Trends in Devon 1999). The service industries account for about 82% of employment in the Torbay area, the largest proportion relating to tourism which directly and indirectly provides an estimated 1 in 3 jobs during the main holiday season. Although tourism is regarded as a service industry, the holiday product is ‘exported’ to visitors from outside the area and is therefore basic to the economic life of the area.

Changes in the industry

5.6 During the late 1970s and early 1980s, the tourism industry in Torbay experienced a significant decline, reflecting both regional and national trends. This was in stark contrast to the peak years in the mid to late 1970s when visitor numbers were at their highest. In the mid-to-late eighties, the number of tourist nights remained broadly stable, with intermittent fluctuations. However, during the 1990s there was a slow but consistent decline in numbers. Between 1990 and 1999 there was a fall of nearly 15% in numbers (nearly 1,500,000 tourist nights). This trend has continued into the noughties. Figure 24 illustrates these changes in relation to specific sectors of accommodation:-

Figure 24: Estimated number of tourist nights in Torbay holiday accommodation (figures in millions)

Source: Devon Tourism Review (Devon County Council).

Note:

‘Holiday Park Units’ comprise chalets and static caravans.

‘Touring Pitches’ include tents and touring caravan sites.

5.7 The reductions which have taken place are a cause of considerable concern in view of the underlying economic significance of tourism to the area. These recent figures again reflect a countrywide trend of decline in the tourist industry, due in part to the following factors:-

• changing attitudes towards the English seaside holiday, together with the adverse effects of unpredictable summer weather

• continuation of the ever-growing competition from keenly priced overseas holiday packages

• an increase in long haul tourism and people’s increasing wish to visit more exotic locations

• the highly seasonal and low wage nature of tourism employment leading to concerns about poverty

Such changes are reflected in various academic “resort cycle” models which predict that tourist resorts reach stages of maturity and decline, where drastic action is needed to prevent decline.

5.8 One response has been to diversify into new tourism markets and seek to increase the length of the holiday season. In particular, there has been an increase in Torbay of weekend and off-peak breaks, special interest holidays, second holidays and business/ conference tourism.

5.9 The Council is also seeking to diversify the local economy into other areas such as high-tech business. Torbay has been granted Assisted Area Status and parts of the Bay have been awarded Objective 2 Status under European structural funds. Torquay town centre and waterfront has been awarded funding under the Single Regeneration Budget Round 5. These factors offer opportunities to enable the Council to address problems of over-dependence on contracting industries in a more comprehensive way. However, these funding opportunities do not occur on a regular basis and need to be fully utilised if improvements are to be achieved.

Future needs

5.10 In spite of the above considerations tourism will continue to form the basis of Torbay’s economy for the foreseeable future, albeit on a more focused and competitive basis. The Local Plan recognises the huge contribution that tourism makes to the local economy. It also acknowledges the need to promote its success whilst safeguarding the interests of the environment and those of local people.

5.11 Policies and proposals are, therefore, aimed both at facilitating tourist development and seeking to protect the industry. In particular, the Plan seeks to provide a policy framework for the following:-

• regeneration and development of attractions - the investment necessary to stimulate tourism and employment and to create facilities

• modernisation and upgrading of accommodation - the improvement of standards of holiday accommodation in each sector to match the future demands of the holidaymaker, in order to achieve appropriate levels and standards of excellence

• diversification and meeting new demands - development of non-traditional holidays and facilities (activity, special interest, heritage and green sustainable tourism holidays), stimulation of out of season breaks and promotion of special events

• enhancement of competitiveness - the need to achieve levels of excellence in the industry in order to offer relevant and high quality holiday experience, against a background of strong and effective marketing

• improvement of access and infrastructure - vital prerequisites for the successful future development of the tourism industry, ranging from transportation facilities to seawater quality

The policy framework

5.12 The Local Plan Strategy (described more fully in Chapter 2) is to promote a sustainable and dynamic tourism industry whilst seeking to provide a framework for economic diversification and increased prosperity. It is recognised, for example, that in a successful resort, tourism contributes to the retail industry and the resort function strengthens Torbay as a Principal Urban Area and sub-regional shopping centre. Conversely, investment in retail and town centre management can make a significant contribution to the roles of the three towns as tourist centres.

5.13 Current Government guidance, in PPG21 ‘Tourism’ (1992), advises that local plans should make provision for tourism on an integrated basis, addressing the need to protect the environment and to contribute positively to economic development, conservation and urban regeneration. In addition to facilitating tourism, local plans may seek to protect the industry “by ensuring that other land users are distributed in a way that respects the qualities that underpin the tourist industry” (paragraph 4.13). The Government is intending to replace PPG21 with best practice guidance on tourism.

5.14 PPG7 ‘The Countryside - Environmental Quality and Economic and Social Development’ (1997) advises that tourism plays an important part in the development and diversification of the rural economy, but can also damage the landscape and heritage on which it depends (paragraphs 3.12 - 3.13).

5.15 The importance of tourism to the economy of the South West is acknowledged in current Regional Planning Guidance for the South West (RPG10 - September 2001). Torbay is one of only two resorts to be specifically mentioned in the RPG. Policy SS16 seeks to raise the quality of its tourism industry within the context of diversification and economic restructuring. Policy TCS1 sets out a strategy for making the South West a flagship for sustainable tourism.

5.16 The Adopted Devon Structure Plan First Review (1999) acknowledges that resorts are the mainstay of Devon’s tourist industry. Policy E5 encourages the sustained development of tourism in resorts such as Torquay, Paignton and Brixham, and resists the introduction of unacceptable development in main tourist areas in order to maintain their character and function. Policy E5a considers large scale accommodation and tourist facilities within sub-regional and area centres. Policy E7 gives guidance for provision of touring parks in key landscape designation areas, as well as outside these areas, where they may be acceptable where there is a proven need within a locality. Policy T01 of the Devon Structure Plan 2001-2016 (expected to be adopted Summer/Autumn 2004) reiterates these Policies.

5.17 Policy TUS sets out the Council’s basic approach to the development of tourism, investment and the need to promote a sustainable industry.

5.18 Acceptability of all tourism proposals will be subject to normal development control criteria, in particular location, scale, impact on surroundings, access and car parking and overall environmental implications. The Council will seek to ensure that any adverse effects on the amenity of adjoining areas are minimised. New developments may be made the subject of appropriate conditions in order to reduce their level of impact.

Tourist facilities

5.19 The provision of good quality tourist facilities is essential in a resort of Torbay’s scale and importance. Central to this is the development and regeneration of Torquay and Brixham harbour and waterfront areas for a range of uses including various types of tourism activity. Policy TU1 provides the planning framework. The development of the potential for various water-borne facilities in Torbay’s harbours is supported in Policy TU4. Policies TU2 and TU3 support the improvement of existing and development of new facilities and attractions in order to ensure that the resort continues to retain its attractiveness and competitiveness in a rapidly developing and innovative industry. Certain sites are identified as having potential either for new or additional tourist development. These include land at Claylands near Paignton Zoo, Quay West, Goodrington and a site adjacent to the Torbay Leisure Centre, Clennon Valley.

Holiday accommodation

5.20 The excellent range of hotels and guesthouses constitutes one of Torbay’s most valuable assets. Its holiday accommodation can be regarded as a key element of the tourism infrastructure for the whole of South Devon, especially in relation to good quality hotels. It is recognised that with an ever widening choice of holiday and increasing expectation of standards, the upgrading and improvement of the tourism product is vital to the future of Torbay.

5.21 Development of facilities which help to produce a longer holiday season will be of particular importance for the future well-being of the resort. The improvement of existing self-catering accommodation is also important for the industry. The aim is therefore to stimulate measures for investment in holiday apartments, with a view to upgrading their use over a longer holiday period. (The upgrading of holiday centres and parks is dealt with in Policy TU9).

5.22 The industry has undergone a period of contraction during the past decade and a large number of bedspaces have been lost. So long as this is part of a managed reduction, with commensurate improvement to the quality of remaining accommodation, this will not undermine Torbay’s viability as a premier resort. However an unchecked conversion of Torbay’s hotel, guest house and holiday apartment stock to alternative uses can undermine its role as a tourist destination. The Local Plan sets out a range of policies designed to guide the industry during the current critical period of rationalisation.

5.23 Policy TU5 recognises that the introduction of new holiday accommodation may be appropriate. The Plan sets out policies which seek to protect the character of the resort’s Principal Holiday Accommodation Areas (PHAAs) and which also consider loss of holiday accommodation elsewhere. Policy TU6 defines PHAAs and sets out criteria for considering development proposals within them. In reviewing the Local Plan, a thorough review of the boundaries of PHAAs has been carried out, and most PHAAs have been reduced in size. Two former PHAAs (Rock Walk, Torquay, formerly Deposit Version Policy TU9.5 and Babbacombe Road, Torquay, formerly Deposit Version Policy TU9.7) have been partially or completely removed. In addition, Policy TU7 relating to change of use of holiday accommodation outside PHAAs has been made more flexible, whilst still protecting the tourism base of the resort. This review is intended to allow a managed reduction in the over supply of bedspaces whilst protecting the stock of holiday accommodation and key tourist areas.

5.24 The principle of protecting holiday accommodation is well established and has served well in helping to retain Torbay’s role as a premier resort, since the policy was introduced in the early 1980s. All of the comparable British seaside resorts have now adopted such policies and the Council believes that clearly defined and economically realistic policies of this nature should continue to be applied on a consistent basis. This approach is essential in order to protect the tourist industry from unacceptable change and to ensure that the broad base of tourist accommodation is maintained. The use of such premises out of season is dealt with by a policy relating to short term residential and winter letting of holiday accommodation (Policy TU8).

5.25 There is extensive provision of sites for chalets, caravans and camping and holiday centres. These form a very important part of Torbay’s tourism infrastructure. The Council is concerned that operators should be supported where they wish to refurbish or upgrade existing facilities. Equally, it is clear that new parks may have a role within the overall range of facilities in Torbay and the Council recognises the need to be responsive to changes in the tourist market. Policy TU9 sets out criteria for the consideration of such applications. The importance of holiday parks and centres as providers of holiday accommodation in Torbay is such that the Council will wish to resist their loss to other uses unless specific criteria are met and these are set out in Policy TU10.

5.26 The protection and enhancement of the rural and built environment is critical to the success of tourism in Torbay. These issues are dealt with in Chapters 11 and 14 of the Local Plan.

TOURISM POLICIES AND PROPOSALS

TUS Tourism strategy

Torbay’s tourism industry will be developed in a sustainable and competitive manner having regard to environmental resources, through the retention of existing attractions; the retention of existing tourism accommodation within PHAAs and the most important holiday accommodation outside PHAAs; the investment in new facilities; and by the sensitive development of Torbay’s heritage as a tourism asset.

Explanation:

5.27 Tourism is the cornerstone of the economy of Torbay. It is therefore essential that the Local Plan provides a framework which facilitates the improvement and development of the tourist industry, to maintain the area’s economic stability. Tourism now operates within an increasingly competitive climate and the strong promotional policies upon which it depends need a firm basis from which to operate.

5.28 There is a major commitment on the part of the Council to stimulate improvement and prosperity in the conference/exhibition sector of the tourist industry. Tourism development can often assist in the process or urban regeneration, as well as in the conversion of buildings or landscape features in both urban and rural areas. It may also be an acceptable form of diversification for farmers.

5.29 It is particularly important that new tourism development respects local distinctiveness and the needs of Torbay and its surroundings. As a basic principle, such development should always be implemented in a way which ensures that the future needs of residents and tourist are not compromised by short-term objectives. Torbay’s heritage is of great significance to its visitors. Sustaining the tourism industry is a main strand in Torbay’s Economic Development Strategy - protecting the heritage resource must inevitably be a part of that process. Torbay’s heritage is an asset which can support its principal industry at the same time as enriching the lives of its residents. The Local Plan thus provides a framework for the integration of appropriate tourism developments and policies, to assist the industry to realise its potential, by maintaining a programme of investment and improvement.

5.30 The Council supports the statutory regulation of holiday accommodation as a means of maintaining standards of excellence in the industry and to ensure compliance with health and safety and fire regulations.

TU1 Harbourside and waterfront regeneration

The regeneration and enhancement of harbourside and adjoining waterfront areas in Torquay (TU1.1) and Brixham (TU1.2) is proposed through the following measures:-

(1) the protection of the economic, maritime, tourism and retail roles of the areas and the maintenance of their attractiveness for visitors and shoppers;

(2) the resistance to changes of use which detract from the special qualities of the areas and in particular the special character of the Torquay Harbour and Brixham Town Conservation Areas;

(3) support for the introduction of appropriate new development which contributes to the enhancement of the areas as locations for all year round tourism and retailing;

(4) the refurbishment of existing premises and frontages surrounding the harbour to a high standard of design;

(5) the introduction of landscaping and streetscaping works to enhance the visual attractiveness of the harbourside and waterfront settings; and

(6) appropriate traffic management measures which maintain a satisfactory amount of off-street car parking, in accordance with the operative parking standards (set out in Policy T25), improve levels of accessibility to the areas and enhance conditions for pedestrians.

Explanation:

5.31 Torquay and Brixham harboursides and surrounding waterfront areas are at the heart of the English Riviera. The harbours are major focal points for tourism as well as having important shopping and leisure roles and serving as working harbours. The areas have historic importance - they are designated as Conservation Areas and contain several listed buildings and structures.

5.32 It is important that the areas’ charm and heritage are safeguarded. Both harbours have substantial opportunities for revitalisation and regeneration. There is a recognition that in order to provide an attractive and viable setting, there will be a need to improve the quality of facilities and premises and to move away from traditional “kiss me quick” types of tourism product.

The Torquay Waterfront Project

5.33 The Torquay Waterfront Project is a partnership between the Council and other parties such as traders in the area, which seeks to achieve the regeneration and revitalisation of the Torquay harbourside and waterfront.

5.34 The Project intends to bring about a number of environmental improvements and street-scene enhancements to encourage a vibrant 24-hour economy. Six phases are proposed over a ten-year period for the entire harbourside. In the first two phases, completed in the summer of 2003, a cill was created in the inner harbour to retain water in order to create a water-based town square, and a lifting pedestrian bridge erected across the South Pier creating a link between both sides of the harbour. The Coral Island/Beacon Quay site has been redeveloped to form a marine aviary, family restaurant and a number of small business units. The reinstatement of Beacon Cove as an accessible and attractive popular beach has also been achieved.

5.35 In the context of the Council’s aims for the waterside, there is a need to prevent unsuitable developments from taking place in the area. In particular, a number of unsympathetic frontages exist and improvements to these will be encouraged. Grant aid from the Heritage Lottery Fund for the Torquay Harbour Townscape Heritage Initiative will enable the reinstatement of historic features and improvements to the streetscape of Victoria Parade and Beacon Terrace on the harbourside over the next few years.

Brixham Harbour Regeneration

5.36 Brixham Harbour is a major fishing port. Scope exists for improvement to harbour facilities and possible introduction of a Northern Arm breakwater to encourage other port related industries. These proposals are covered in Policies E7 and E8. In addition, the Council appointed consultants in December 1999 to look at the broader regeneration of Brixham harbour waterfront and town centre, and a programme of public consultation was undertaken. Environmental improvements in the harbour area, town square and shopping areas would enhance the areas’s tourism potential and vibrancy. The area is characterised by a mix of uses including residential, tourism, retail and employment (particularly fishing, port and marine related) activities. It is important that the area’s ‘organic’ character which contributes much to Brixham’s charm is retained. More recently, the regeneration of the area has been promoted via the Brixham 21 community-based initiative.

TU2 Proposals for new tourist facilities

Improvement of existing and the development of new tourist/leisure facilities and attractions, particularly all-weather facilities, are proposed on the following sites, provided that there are no unacceptable environmental impacts:-

(1) Zoo extension, Claylands, Paignton;

(2) Land adjacent to Torbay Leisure Centre, Clennon Valley, Paignton; and

(3) Quay West site, Goodrington, Paignton.

Explanation:

5.37 The wealth of tourist attractions and amenities available in Torbay is highly regarded by visitors and also constitutes a valuable asset for residents. The Council wishes to support new schemes which will be of benefit to the tourist industry and lead to improvements in standards and levels of services.

5.38 Tourist facilities and attractions which make suitable use of historic, architectural or natural features will be supported in principle, provided that the scale and overall level of impact is acceptable and proposals accord with relevant conservation and landscape protection policies. When development is required in the countryside to meet the needs of visitors to specific attractions, particularly careful consideration of such criteria will be necessary.

5.39 Tourism is a rapidly changing and innovative industry, and for this reason proposals for specific tourism schemes have not been put forward for individual sites, in order to retain the necessary degree of flexibility regarding the most appropriate form of tourism use. However, suitable uses of the sites identified on the Proposals Map could include leisure / cultural activities / catering / entertainment, sport/recreation, and specific (possibly themed) visitor attractions. Mixed-use developments may be suitable, especially on coastal sites, and could include an element of holiday accommodation.

5.40 Land at Claylands, Paignton is suitable for future Zoo expansion. The site is being used for landfill and will therefore require appropriate remedial work prior to its re-use. The site is adjacent to a Local Wildlife Site and it is intended that the proposal should enhance the local biodiversity of the area. The present car park adjacent to the Torbay Leisure Centre, Clennon Valley is under-used and would be suitable for a range of leisure/recreation uses, possibly as part of a mixed-use scheme incorporating residential use. It will be important to retain a suitable level of car parking to meet the needs of the Leisure Centre and other tourist attractions and facilities in the immediate locality, including the Quay West site.

5.41 Opportunities may arise for projects of a larger scale than currently available. New ideas for tourist facilities will be welcomed where it can be demonstrated that schemes can be satisfactorily accommodated in suitable locations, and where economic and social benefits are likely to arise. Formal environmental impact assessment may be required, particularly in greenfield locations which will be especially sensitive to the effects of larger scale change.

TU3 New tourist facilities elsewhere

Proposals for the improvement of existing and the development of new tourist facilities on sites other than those identified in Policies TU1 and TU2 will be permitted, provided that the following criteria are met:-

(1) the proposal preserves or enhances the attractiveness and competitiveness of the resort in terms of the range and quality of its tourist facilities;

(2) the location of major development meets the requirements of the sequential approach to site allocation and is readily accessible by a range of means of transport, in particular coaches;

(3) the scheme is of satisfactory scale and design in relation to its surroundings, and does not harm residential amenity;

(4) the scheme does not conflict with relevant landscape protection policies; and

(5) the development does not cause harm to Torbay’s heritage resource in terms of the landscape, built environment, archaeology, geology and nature conservation.

Explanation:

5.42 The improvement of existing and development of new tourist facilities is important to maintaining Torbay’s position as a premier resort. With the rapid changes in the tourism market, it is recognised that the industry needs to be dynamic and innovative.

5.43 Proposals that enhance the attractiveness of the resort, particularly all weather and non-seasonal facilities, will be welcomed in principle. However, it is recognised that there are environmental constraints to development. Government Guidance in PPG6 ‘Town Centres and Retail Development’ (2000) stresses the importance of favouring town centre sites and facilities should also be located where economic and social benefits are likely to arise. Policy S6 summarises this sequential approach. There will, however, be types of use not suitable to central or urban locations. These will be assessed on the basis of other Local Plan policies, in particular those relating to landscape and nature conservation. Proposals for leisure / recreation facilities are addressed in Policy R1.

5.44 It is particularly important that major proposals satisfy a sequential approach to site selection. The Council considers ‘major’ in this context to be developments of over 0.4ha (1 acre) in area, or likely to attract significant visitor numbers, or likely to have a significant environmental impact.

5.45 Formal environmental impact assessments may be required, particularly in greenfield locations, sensitive landscape designations or where historic, archaeological or historical assets are of importance (see also Policy EPS).

TU4 Water-based tourist facilities

The development of water-based tourist facilities will be permitted in Torbay’s harbours (Torquay Harbour - TU4.1; Paignton Harbour - TU4.2; Brixham Harbour - TU4.3) where:-

(1) the proposals enhance the range and attractiveness of facilities available in the harbourside areas;

(2) schemes do not have an adverse effect on environmental quality, pedestrian safety or highway capacity;

(3) developments are visually acceptable by complementing the character and setting of the harbourside and waterfront areas;

(4) proposals do not have an adverse effect on marine wildlife in the harbourside areas; and

(5) schemes do not undermine the working role of the harbours.

Explanation:

5.46 The Torbay’s coastal water resource is a major underused asset. Tor Bay constitutes one of the finest stretches of sailing water in the UK with great potential to satisfy the increasing demand for water-based leisure activity in all its varied forms. The natural maritime amphitheatre of the Bay provides an unrivalled setting for competitors, spectators and the media.

5.47 The construction of the 460 and 500 berth marinas at Torquay and Brixham in the mid/late 1980s helped to stimulate a resurgence of interest in Torbay as a maritime leisure and events centre. In order to fully utilise opportunities for water-based tourism activities, the Council is seeking further development of pontoon berths to replace the swing moorings in Torquay Outer Harbour. Potential also exists for improvements to provision of berths in the Brixham Harbour area, and on a much smaller scale in Paignton Harbour.

5.48 There are opportunities for the improvement of Torquay Inner Harbour through the introduction of new facilities to enhance its attractiveness to visitors. Proposals put forward would need to be properly related to the Council’s wider aspirations for the upgrading of the harbourside/waterfront areas to be acceptable (see Policy TU1). In view of the importance and sensitivity of Torbay’s maritime wildlife, it will be important that the environmental impact of proposals relating to the harbour and waterside areas is properly assessed. It will be important to ensure that improvements or the introduction of new facilities do not compromise the day-to-day functions of the harbour.