TU5 New holiday
accommodation
Proposals for the development of, or change of
use to, new hotels, guest houses or holiday apartments will be
acceptable in principle in or on the edge of Principal Holiday
Accommodation Areas and in other locations where concentrations
of holiday use already exist. Applications outside these established
holiday areas will be permitted where proposals do not conflict
with landscape protection policies and do not have a detrimental
effect on the amenities of the surrounding area, in terms of
traffic generation, wildlife impact, visual impact or general
levels of activity.
Explanation:
5.49 Although there is a general contraction in Torbay’s
stock of holiday accommodation, the Council recognises that the
introduction of additional new facilities may be appropriate,
particularly where they can contribute to the enhancement of
the quality and range of existing bedspaces. New accommodation
may vary from a change of use to a small guesthouse to the construction
of a new hotel with the full range of facilities. Each type of
facility will have a contribution to make within the overall
level of provision in the resort. The creation of new bedspaces
will also be supported as part of mixed tourism/leisure investment
schemes.
5.50 The aims of this policy are to support new provision
in suitable locations whilst protecting the amenities of residential
areas and the countryside, and minimising conflict between residents
and visitors.
5.51 Whilst it is accepted in principle that Torbay should
actively promote the improvement of its bedspace stock, there
is clearly a need to control and channel such developments in
order to protect existing amenities and resources. Given the
nature of their use, methods of operation, traffic generation
and overall levels of activity, it is likely that any further
major development or intensification of hotels, guest houses
and holiday apartments will be most appropriate in areas where
holiday uses are well established. Large new hotels offering
facilities for banqueting conferences and entertainment, which
serve the wider community will usually be acceptable only in
areas of established holiday, leisure or commercial activity.
5.52 Applications outside established holiday areas will
be supported if it can be demonstrated that the proposed use
meets the relevant criteria set out in other appropriate Local
Plan Policies, in particular with regard to amenity, landscape
protection, wildlife and transportation.
TU6 Principal Holiday Accommodation Areas
Proposals for new building, extensions,
change of use or other developments which are to the detriment
of the character and function of the Principal Holiday Accommodation
Areas (PHAAs) identified below will not be permitted:-
(1) Babbacombe Downs, Torquay.
(2) Newton Road, Torquay.
(3) Torre, Torquay.
(4) Belgrave Road, Torquay.
(5) Torwood Gardens, Torquay.
(6) Meadfoot Road, Torquay.
(7) Meadfoot Sea Road, Torquay.
(8) Torbay Road seafront, Torquay.
(9) Preston seafront, Paignton.
(10) Paignton seafront - North.
(11) Paignton seafront - South.
(12) Roundham Road West, Paignton.
(13) Roundham Road East, Paignton.
The loss of holiday accommodation or important
tourism-related facilities may, however, be permitted within
PHAAs where the following criteria apply:-
a) the premises lack an appropriate basic
range of facilities and do not offer scope or potential for
improvement, thereby failing to meet the reasonable requirements
of the tourist;
b) the premises have restricted bedspace capacity,
having a limited number of bedrooms (if serviced accommodation)
or apartments (if self-catering);
c) the loss of the premises would not be to
the detriment of the holiday character of the particular locality,
nor set an unacceptable precedent in relation to the concentration
and role of nearby premises; and
d) the proposed new use or development is
compatible with the surrounding tourism-related uses and does
not harm the holiday character and atmosphere of the PHAA.
Explanation:
5.53 Principal Holiday Accommodation Areas (PHAAs) are
regarded by the Council to be of fundamental importance to tourism
in Torbay. They are the ‘shop windows’ of the industry
and as a consequence the Council will seek to resist any changes
which have a detrimental or undermining effect on their function
and character. Such changes may include the loss of existing
tourist facilities or accommodation and/or the introduction of
inappropriate non-tourism oriented uses, either by change of
use or proposals for redevelopment. In addition, the design,
massing and location of new developments, including extensions,
will also be material considerations.
5.54 PHAAs are defined in accordance with criteria relating
to concentrations of holiday accommodation, holiday character,
proximity to tourist facilities and accessibility.
5.55 PHAAs are areas where there is a concentration of
hotels, guesthouses and/or holiday apartments which form an important
part of the overall stock of bedspaces. About 45% of hotels and
guesthouses and 14% of holiday apartment premises are situated
within the thirteen PHAAs. As a result of such concentrations,
tourism is visibly the predominant land use and this in turn
creates a distinct holiday atmosphere. Such locations are a focus
of tourism activity and may provide attractive views for customers.
They are generally well-related to tourism facilities including
the seafront, harbourside, principal holiday traffic routes,
and other established and accessible holiday attractions.
5.56 There will inevitably be variations in holiday character
and atmosphere within and between individual PHAAs which will
be attributable to type of tourism, topography, townscape and
location. Certain areas will therefore not necessarily offer
good views or be on main traffic/pedestrian routes.
5.57 Some resorts have adopted a two-tier policy of affording “core” areas,
such as seafronts, higher protection than areas of holiday accommodation
elsewhere. This approach is not considered appropriate in Torbay
because of its range of different types of holiday area, not
all of which conform to a traditional esplanade / golden mile
type configuration, but which nevertheless have an important
role to play in their own right.
5.58 The decline in visitor numbers since 1977 has already
contributed to a significant loss of holiday accommodation (mainly
hotels) to other uses, including elderly persons’ homes
and residential flats. In preparing the Revised Deposit Version
of the Local Plan (2000), the function and boundaries of PHAAs
were carefully reviewed and discussions held with various interested
bodies. Holiday accommodation within PHAAs has been reduced by
about 19%. Changes have been made to ensure that boundaries are
realistically drawn and to accommodate the changing nature of
the tourism industry. However, it is considered important that
the character of PHAAs remains protected and that an unrestricted
move out of holiday use should continue to be resisted, as this
would undermine the stock and range of bedspaces. The Torbay
Principal Holiday Accommodation Areas Monitor is carried out
annually in order to assess the effectiveness of this Policy.
5.59 Whilst this Policy therefore seeks to ensure the
retention of the holiday atmosphere of the PHAAs, it is nevertheless
recognised that in certain circumstances it may be appropriate
to allow changes to take place. Although continued investment
is necessary to remain competitive, some premises may, for example,
offer little or no potential for refurbishment or development
to provide an appropriate level of tourist accommodation and
associated facilities.
5.60 In reaching a decision on applications involving
a loss of holiday accommodation or other important tourism related
facilities, the Council will take into account the overall level
of facilities provided, the potential for the upgrading of facilities
and the number of bedrooms / apartments. Siting, including accessibility
and visual prominence, relationships with other accommodation
and effect on overall holiday character will also be considered.
However, under-investment and general lack of maintenance will
not be accepted as justification for loss of inherently suitable
and appropriately located holiday accommodation. Management and
marketing will clearly also influence the commercial viability
of businesses and this issue will also be a relevant consideration.
5.61 In circumstances where the loss of holiday accommodation
may be appropriate, the Council will consider the contribution
that the new use of the building would make to the character
of the PHAA. In the first instance, tourism-related activities
will normally be supported as alternative uses. It will usually
be the smaller hotel/guest house or holiday apartment business
(typically with 6 or less bedrooms, or 4 or less units) which
is more likely to be granted planning approval for change of
use to non-holiday uses as an exception to this policy.
5.62 Such properties are likely to be suitable for use
as single family dwellings. Suitable commercial uses may also
be acceptable in appropriate locations. Institutional uses such
as elderly persons homes, nursing homes and hospitals may detract
from the overall holiday character of PHAAs and may be resisted.
For similar reasons, the change of use to hostels is likely to
be unacceptable in such areas (see Policy CF3).
5.63 Changes of use which maintain a holiday accommodation
presence (e.g hotel/guest house to holiday apartment, or vice
versa) are acceptable in principle, subject to normal development
control considerations, provided that such a change does not
impact on the tourism role of the resort in an unacceptable way.
Change of use from serviced accommodation to holiday flats should
not be seen as a first step to achieving residential use. Where
appropriate, permissions for holiday flat use will be subject
to conditions requiring that they are for holiday occupancy only.
TU7 Change of use or redevelopment of holiday
accommodation outside Principal Holiday Accommodation Areas
The redevelopment or change of use of
hotels, guest houses and holiday apartments to non-holiday
accommodation will be permitted outside the Principal Holiday
Accommodation Areas (PHAAs) where:-
(1) the loss of the holiday accommodation
would not undermine the holiday character in the locality,
or the range of tourism facilities or accommodation offered
by the resort;
(2) the site of the accommodation is of limited
significance in terms of its holiday setting, view and relationship
to tourism facilities; and
(3) the new use would be compatible with the
character and other uses in the area
Explanation:
5.64 The holiday character and quality of the resort is
the product of its setting and the facilities and accommodation
within it. Some 55% of hotels and guesthouses and 86% of holiday
apartments are located outside the thirteen Principal Holiday
Accommodation Areas (PHAAs). However, it is significant that
some 8,100 bedspaces in hotels/guesthouses and holiday apartments
have been lost in Torbay as a whole between 1981 and 1994, a
reduction of almost 20%. Between 1994 and 1999 there was a further
loss of some 1900 bedspaces in the same type of accommodation,
a decline of about 6%.
5.65 It is recognised that this contraction in the supply
of holiday accommodation is likely to continue. It is generally
acknowledged that providing a high quality product is essential
in today’s market. Therefore a managed reduction in bedspace
numbers is considered acceptable, so long as there is a commensurate
improvement in the quality of remaining stock. Policy
TU6 sets out guidance relating to PHAAs, where the Council
wishes to retain the predominantly holiday use.
5.66 Policy TU7 seeks to allow for greater
flexibility outside PHAAs and to encourage suitable alternative
uses where the loss of holiday accommodation is appropriate.
However, there are a number of premises located outside of PHAAs
whose loss would be undesirable, due to the range of facilities
offered, visual prominence, contribution to the holiday character
of the area or bedspace capacity.
5.67 Investment is necessary to remain competitive but
some premises may not offer any potential for refurbishment or
development to provide an appropriate level of tourism accommodation
and associated facilities. The commercial viability of holiday
accommodation businesses may therefore be a relevant consideration,
together with management and marketing. However, under-investment
and general lack of maintenance will not be accepted as justifications
for redevelopment or change of use of inherently suitable and
appropriately located holiday accommodation.
5.68 Examples of clusters of holiday accommodation also
exist outside PHAAs. Although of less significance than PHAAs,
individually and collectively they make a contribution to the
overall holiday character and role of the resort. The Council
will be concerned to ensure that changes of use do not set a
precedent for further changes that may undermine the holiday
character of such areas.
5.69 In circumstances where the loss of holiday accommodation
is considered acceptable, the Council will be particularly concerned
to ensure that the replacement use respects the amenity and character
of this surrounding area. Changes of use which maintain a holiday
accommodation presence (i.e. hotel/guest house to holiday apartment,
or vice versa) will be supported in principle in those locations
where the retention of a holiday accommodation use is acceptable.
5.70 Where applications meet the criteria set out in this
Policy, the type of alternative use proposed will be subject
to the relevant policies set out in the Local Plan. To assist
the diversification and restructuring of the local economy, and
the sustainable development of land, commercial, leisure and
residential uses will be supported in principle within the urban
area. The new use should be compatible with the character and
operation of other uses in the area. In predominantly commercial
areas, offices and other professional services may be the most
suitable use. Self-contained dwellings will usually be the most
appropriate form of housing in “transitional” areas
of mixed holiday and residential use. Such ‘windfalls’ will
have the added benefit of relieving pressure on greenfield sites
for new housing. The Council’s affordable housing policies,
particularly Policy H6, may apply where holiday accommodation
is converted into residential use.
TU8 Winter letting of holiday accommodation
During the winter months (i.e. outside
the main holiday season of Easter to the end of October), short-term
residential letting will be permitted in holiday flats where:-
(1) the use is strictly temporary in nature
(i.e. it lasts no longer than a maximum of six months, after
which time the holiday use shall resume);
(2) there is a resident owner/manager on site
with their own separate, permanent on-site accommodation; and
(3) the use does not undermine the function,
character or appearance of the surrounding area, or adversely
affect the amenities of the neighbouring properties.
The use of hotels/guest houses for winter letting
will only be permitted where the use would not conflict with
the role or function of PHAAs or be to the detriment of the tourist
character of other areas, would not adversely affect the viability
of neighbouring uses or harm residential amenity.
Explanation:
5.71 The letting of holiday flats to non-holidaymakers
during winter months is a well-established practice. It can contribute
to the viability of holiday accommodation and keeps premises
occupied. Winter letting is taken to mean letting to people for
non-holiday or other tourist purposes.
5.72 The practice of winter letting of holiday flats is
often contrary to planning conditions, in which case planning
permission is required. The above policy establishes criteria
for considering the planning merit of applications for such proposals.
5.73 It is important that the non-tourist use is strictly
subordinate to the holiday use of accommodation and does not
harm the character of the area. On-site management by the owner
or professional manager has been shown to be important as a way
of minimising problems associated with winter letting. Where
it is not practical to provide on-site management, for example
in the case of small premises of holiday flats, alternative measures
of management, such as a local telephone contact for an owner/manager,
may be acceptable. However, applicants should be able to show
that adequate control over premises is achieved.
5.74 Longer term residential letting of hotels and guest
houses is a material change of use requiring planning permission.
Torbay is seeking to maximise its all-year-round tourism and
it is important that an adequate range of facilities is provided
on this basis. It is not usually appropriate, therefore, to allow
winter residential letting in hotels/guest houses within PHAAs.
Winter letting of hotel/guest house rooms may also be problematic
outside PHAAs in terms of its effect on the character of the
area and impact on neighbouring uses. In addition, serviced accommodation
is unlikely to offer a satisfactory long term living environment.
5.75 Applications for the change of use of holiday accommodation
to permanent residential or other use will be subject to Policies
TU6 (development within PHAAs) and TU7 (development
outside PHAAs). Applications specifically for the permanent use
or development of accommodation for the purpose of a hostel will
not be permitted within PHAAs, or where they fail to meet the
criteria set out in Policy CF3.
TU9 Refurbishment and development of new
holiday centres and parks
Proposals for new holiday parks, chalet,
caravan and camping sites, or schemes for the refurbishment
and upgrading of existing facilities will be permitted, provided
that the following criteria can be met:-
(1) the development does not have an adverse
impact on the landscape conservation, nature conservation and
agricultural characteristics of the area or involve the loss
of best and most versatile agricultural land;
(2) the development is acceptable in terms
of transportation, access and safety considerations; and
(3) the proposal does not adversely affect
the amenities of any adjoining residential areas.
Explanation:
5.76 Holiday centres and parks form an important part
of Torbay’s tourism infrastructure. Holiday and touring
caravan parks are likely to form an increasingly significant
part of the self-catering tourism sector. Evidence suggests that
existing facilities are well used.
5.77 The Council recognises the need to remain responsive
to changes in the tourism market and the corresponding demand
for new facilities.
5.78 The opportunities for development of further major
new holiday centres and parks in Torbay are, nevertheless, extremely
limited due to lack of availability of suitable sites in appropriate
locations.
5.79 Due regard must be had to the full range of environmental,
amenity, access and agricultural considerations as set out above.
In particular, sites should be effectively screened, and both
located and laid out in such a way that they are not visually
intrusive. Applications for major new holiday parks may necessitate
the submission of an environmental impact statement (see Policy
EPS).
5.80 Because of the limited opportunity for new holiday
parks, the improvement and enhancement of existing holiday sites
is more likely to be a more acceptable way of meeting demand.
5.81 There is extensive provision of sites for chalets,
caravans and camping within Torbay, most of which is concentrated
in three areas in Paignton, and in Brixham. The size and range
of these facilities in Torbay vary widely, as to the standards
of accommodation provided. Many operators have continued to invest
in their site facilities as part of a rolling programme aimed
at raising the quality of service. Other sites have managed to
meet changing standards less successfully and are more likely
to require substantial new investment.
5.82 Many existing holiday centres and parks have been
developed at high densities. To meet the needs and aspirations
of today’s holiday makers, it is important to improve the
on-site environment, reduce high densities and improve on-site
facilities such as club houses, swimming pools, tennis courts,
shower buildings, etc.
5.83 Whilst the Council is fully supportive of endeavours
to upgrade and improve holiday facilities, by expanding the area
covered in some cases, it is essential to ensure that developments
do not have an adverse effect on other local plan objectives,
such as landscape protection.
5.84 Many holiday parks are in environmentally sensitive
areas and this type of development has a significant visual impact.
Static caravans and chalets can be particularly intrusive.
5.85 The Council will seek to secure improvements to the
appearance and layout of facilities and improve standards of
landscaping and nature conservation. In many areas there is considerable
scope to do this and many operators have developed innovative
ways of screening development. Such improvements will be a key
consideration in determining proposals for refurbishment and
improvement of holiday centres.
5.86 Sites generate a high level of vehicular traffic
during the peak holiday season which can place a heavy burden
not only on the principal traffic routes but also minor roads
providing access to them.
5.87 Applications for the improvement of site facilities
(central ‘club house’ facilities, swimming pools,
tennis courts, toilet and shower buildings, etc.) will be supported
in principle, subject to the above considerations. The Council
will adopt a flexible approach to applications submitted for
changes in emphasis of holiday uses within existing sites. Since
the distinctions between touring and motorised caravans and tents
are now less obvious, it will be appropriate to consider touring
accommodation in terms of touring units, and to allow flexibility
between numbers of tents and touring units within a defined site.
The Council will also support in principle dividing larger sites
into smaller areas, in order to reduce their wider environmental
impact.
5.88 Schemes which are likely to result in a significant
intensification of facilities and consequent levels of activity
will only be acceptable where it can be demonstrated that there
is sufficient environmental and highway capacity to absorb the
additional pressures in a satisfactory manner.
5.89 This issue is particularly relevant in the case of
schemes for a total or partial replacement of an existing centre
or park, either by significantly increasing the amount of accommodation
and level of facilities within the original site, and/or by expanding
the area covered. Although it is recognised that opportunities
for improvements may arise from such redevelopment (e.g. better
access and landscaping, reduction in environmental pressures)
the Council would not wish to see the introduction of further
environmental conflicts, particularly in sensitive designated
landscape protection areas.
5.90 The Council is mindful of owners’ rights of
operation of 28-day sites as a means of meeting peak season demand.
It will continue to monitor all such facilities used by touring
caravans and tents, in the general context of amenity, environment
and transportation considerations. In most instances, 28-day
sites in Areas of Great Landscape Value (AGLVs) are not regarded
as being suitable for permanent use for environmental reasons.
It may be acceptable in appropriate locations, however, to allow
operators to use such sites for a longer but fixed summer season
period if required. This could afford the operator more flexibility
in meeting demands as they arise.
TU10 Change of use or redevelopment of holiday
centres and parks
The change of use or redevelopment of
existing holiday centres, chalets, caravans and camping sites
to non-tourism uses will not be permitted where:-
(1) the proposals would result in the loss
of a site which offers a good range of facilities and makes
a significant contribution to the stock of holiday accommodation
in the resort;
(2) the site offers potential for development
and/or refurbishment to provide an important level of tourist
accommodation and related facilities;
(3) the site is in a prime location for holiday
use (i.e. coastal, rural or close to major tourist attractions);
(4) the loss of a site and introduction of
a new use would be detrimental to the general holiday character
of the locality, or its loss would have a detrimental effect
on nearby chalet, caravan or camping sites by changing the
character of the area; or
(5) the application is contrary to countryside
and landscape policies set out in the Local Plan.
Explanation:
5.91 The facilities provided by holiday centres and parks
offer an important source of holiday accommodation and cater
for over a quarter of all tourist nights in Torbay. Although
it is recognised that potential environmental problems can occur
in sensitive areas, or where such sites are concentrated, it
is the Council’s policy generally to support their retention
and furthermore, to encourage their refurbishment (see Policy
TU9).
5.92 This type of accommodation is particularly important
in Paignton and Brixham. Recent estimates suggest that about
two fifths of paying holiday visitors to Paignton (i.e. excluding
visitors to private houses) stay in holiday camps/holiday parks.
In Brixham, the figure is around three-quarters. These proportions
have grown in recent years and the importance of this type of
accommodation in these areas and the facilities which they offer
to tourists is self-evident. Any significant losses of sites
by redevelopment to other uses would be unacceptable both to
the tourist industry and the local economies of their surrounding
areas, in particular Brixham.
5.93 The Council is particularly concerned to ensure that
the loss of a site in an established area of holiday parks would
not in turn lead to the closure of adjoining sites, creating
a ‘domino’ effect.
5.94 Major sites offering a range of facilities for family
accommodation are particularly important, but there is also a
need to retain a variety of smaller sites offering a choice of
different types of accommodation and holiday experience. The
Council will therefore oppose their loss and will, in the context
of Policy TU9 encourage operators to exploit
potential to make fundamental improvements to their facilities
wherever possible. This will be necessary in order to maintain
their role as significant providers of accommodation within the
tourist industry. Policy H13 deals with applications
for residential caravans in the countryside.
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