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Achieving a sense of community

7.1 Torbay contains several distinct communities which rely on facilities such as schools, hospitals, health centres, social clubs, community centres, churches and libraries to enhance the quality of life. Such facilities help to create a sense of neighbourhood and engender an awareness of the presence of urban villages.

7.2 Several community services, especially education, health and social services provision, often serve a wider area than Torbay, reflecting its role as a sub regional centre for South East Devon.

7.3 As a Unitary Authority, Torbay Council has responsibility for a wide range of community functions, including social services, education and library services. There are in addition many other groups with responsibilities for community services. The South Devon Healthcare NHS Trust and primary care groups have statutory responsibilities to discharge their functions. Other organisations, representing a wide cross-section of voluntary groups, charities and the private commercial sector, seek to meet a variety of community needs in Torbay, ranging from pre-school play groups to elderly persons’ homes and day centres.

Figure 26: Elderly population age structure

Source: 2001 Census, Torbay Council.

7.4 An important factor in assessing Torbay’s community needs is the relatively high proportion of elderly people (see Figure 26), which puts great pressure on health care and social provision. This has a major influence on the kind of facilities required. There was a very large increase (over 500%) in private elderly persons’ homes and nursing homes between the mid 1970’s and 1990’s, although the number of such homes is now falling. Such change has affected the character of certain residential and holiday accommodation areas. The seasonal influx of tourists also puts added strain on health care facilities.

Meeting community needs

7.5 Meeting the social needs of everyone in the context of a balanced community is now recognised as a key aspect of sustainable development and the Local Plan sets out a range of policies and proposals in an attempt to address the key issues which can be influenced by the planning process. PPG12 ‘Development Plans’ (1999) advises that development plans should have regard to social considerations such as social exclusion and crime prevention. They should also provide land for schools and higher education, for places of worship and for other community facilities (paragraphs 4.13 - 4.15). Emerging Planning Policy Statements (PPSs) also place emphasis on community provision, including the need for planning to promote safe, sustainable and liveable communities with good access to jobs and key services.

7.6 The Local Plan is one of several documents aimed at creating sustainable communities. In particular the Local Plan focuses upon land use aspects. The Social Exclusion Unit’s ‘National Strategy for Neighbourhood Renewal’ has highlighted community services as a key area in ensuring urban regeneration.

7.7 The Council has a number of other strategies that address social inclusion, and sustainable communities. In particular ‘Transforming Torbay, Making Change Happen’ (2004) sets out strategic priorities and targets. A crucial element of these is partnership with other bodies such as statutory organisations, charities, faith groups, families and individuals. The Local Government Act 2000 requires local authorities to prepare community strategies which will aim to improve economic, social and environmental well-being of an area. The Local Strategic Partnership comprises a wide range of public, private and voluntary sector organisations. The LSP has published a Community Plan for Torbay (2004), which identifies housing as a key priority. The Community Plan for Torbay identifies eight themes:-

1. Community safety - making Torbay a safer place

2. Health and social care - improving health and social care in Torbay

3. Affordable housing - improving access to good quality affordable homes

4. Economy - towards a prosperous economy

5. Environment - valuing our environment

6. Life long learning - placing learning at the heart of our community

7. Culture - developing Torbay’s culture

8. Sustainable communities - creating sustainable communities

Neighbourhood community facilities

7.8 Some housing estates in Torbay are lacking in community facilities, which is especially serious in areas with high levels of deprivation. Policies CFS and CF1 set a framework for providing and improving community facilities where appropriate. These generic policies cover a range of facilities, for example libraries, places of worship, pre-school play groups and the dual use of facilities. The Council remains committed to the principle of providing such facilities and encouraging their optimal use. The need to provide for community facilities at the outset of planning for major residential areas is recognised. Policy CF2 promotes crime prevention as a central feature of new development.

7.9 Torbay’s serious housing problems have contributed to heavy pressure for the development of hostels. Policy CF3 seeks to address this issue positively, whilst setting out safeguards to protect tourism, residential amenity and the environment in general.

7.10 Torbay is running out of cemetery land and the existing cemeteries have no room for expansion. Policy CF4 allocates two new cemetery sites, at Collaton St. Mary in Paignton and Mathill Road, Brixham and promotes the ecological management of these sites.

7.11 The continued refurbishment and increased community use of the Torquay United stadium at Plainmoor is also supported, subject to amenity considerations (Policy CF5).

7.12 It is recognised that the Council is unable to fund all of the demand for community facilities generated by new development. Developer contributions are therefore an important way of securing better quality development, within the scope of central government guidance. Policy CF6 covers general infrastructure contributions and Policy CF7 addresses education provision.

Education

7.13 Policies CF8 and CF9 list all the sites allocated in the Local Plan for school development. A new primary school development is proposed at Great Parks to serve the new community. A new primary school on the site of the former Westlands Lower School is also proposed. Several existing primary and secondary schools will need to be expanded and redeveloped during the Plan period in response to pressures for improved facilities to serve an increasing number of secondary school students.

7.14 Policy CF10 also reflects the importance of education and covers the criteria for any new school developments, the need for which may arise later in the Plan period, pending more detailed research on demand for school places.

7.15 The Local Plan also gives guidance on the provision of language schools (Policy CF12).

Health care

7.16 The South West Peninsula Strategic Health Authority is responsible for health care in Torbay. The South Devon Healthcare NHS Trust provides services for the eastern part of the Health Authority Area. Torbay District General Hospital in Torquay provides the only accident and emergency facilities in South East Devon as well as the only paediatric and investigation units, and the only day beds. Policy CF13 provides guidance on the development of further health care facilities on the campus and includes reference to the need to consider any possible impact on the amenities of surrounding residential areas.

7.17 The Council also supports the retention and improvement of medical facilities at Paignton and Brixham Hospitals, which are covered by Policies CFS and CF1. Policy CF14 allocates a site for a new health centre at Great Parks, Paignton.

7.18 Several of the existing hospitals and properties in the ownership of the South Devon Healthcare NHS Trust are no longer deemed to be required for healthcare purposes. The Trust is committed to a ‘care in the community’ programme for integrating facilities for people with special needs into the local community, where this is appropriate to these peoples’ needs. Policy CF15 gives policy guidance on this and accommodation for other people in need of care, such as sheltered housing schemes. This seeks to achieve the objectives of care in the community, whilst protecting residential amenity from inappropriate siting and design or from an over-concentration in certain areas.

COMMUNITY EDUCATION AND HEALTH FACILITIES - POLICIES AND PROPOSALS

CFS Sustainable communities strategy

The development of new and regeneration of existing areas as sustainable communities will be permitted where proposals meet the needs of and enhance the quality of life of residents. Applications for new social, healthcare, educational, environmental and physical infrastructure will be acceptable in principle. Proposals resulting in the loss of existing facilities will not be permitted where they are to the detriment of the local community.

Explanation:

7.19 Government policy is to ensure that the planning system delivers high quality development with good community facilities (PPG1 ‘General Policy and Principles’ (1997) paragraph 12). In addition, community regeneration entails ensuring that existing facilities are improved and upgraded to serve modern needs.

7.20 The availability of a range of community facilities, easily accessed in the locality, is important. These include community centres, health care (including hospitals, surgeries and clinics), educational facilities (including schools, crèches and libraries), as well as facilities for cultural, recreational and spiritual activities. However, this list is not exhaustive. In general, community facilities will fall within use class D1 (Non-residential institutions) of the Town and Country Planning (Use Classes) Order 1987 (as amended). However there will inevitably be some overlap between community facilities and more general recreational and leisure facilities, covered in Chapter 8. Residential institutions such as hospitals and residential care homes fall under Use Class C2.

7.21 Torbay is an established urban area, with a comprehensive range of community facilities. Their improvement will be supported subject to the criteria set out in Policy CF1 Provision of new and improved community facilitates. Conversely, proposals that would result in the loss of key facilities will not be permitted, where this would be harmful to the community.

7.22 It is recognised that community regeneration goes beyond physical land use. In addition, it is essential that regeneration is a ‘bottom up’ process carried out in close partnership with the community. There are a number of initiatives and partnerships in operation seeking to address such matters. These include Safer Communities Torbay (a Council, Police and Voluntary Sector partnership), the Local Agenda 21 Partnership and Network. The Community Plan also seeks to promote and improve the economic, social and environmental well-being of the area and contribute to the achievement of sustainable development. This requires the local authority and its partners to prepare integrated strategies linking land use and other aspects to promote community well-being.

CF1 Provision of new and improved community facilities

New and improved community facilities, such as schools, pre-school play groups, health centres, places of worship, community centres, community sports halls, libraries and the use of schools for community benefit, will be permitted where they:-

(1) would be readily accessible to the local community including pedestrians and enjoy good access to public transport;

(2) would not impact adversely on adjacent properties and surrounding neighbourhood; and

(3) would not cause serious congestion or a road safety hazard.

Explanation:

7.23 As noted in Policy CFS Sustainable communities strategy, the Local Plan seeks to ensure the provision and improvement of a wide range of community facilities. It is important that such facilities are located either close to residential areas or in areas well served by public transport, such as town centres. It will often be appropriate to have dual use facilities; for example school buildings can be a valuable community resource outside of school hours.

7.24 Some community facilities such as pre-school play groups will often be located at a more local level, for example in dwellings. It is important to consider the traffic implications of such proposals, which may entail peak drop-off and pick-up times. It will be necessary to consider the amenity implications of all community facility proposals, especially when located in residential areas. In particular, noise levels should not cause nuisance to neighbours. It may be appropriate to impose conditions to alleviate possible noise by providing sound insulation or by limiting hours of use (subject to the desirability of use for community benefit noted above).

CF2 Crime prevention

Every development should be designed to reduce crime both within and adjoining the proposal whilst ensuring that amenities are not unduly affected. Crime

prevention principles should be reflected in the following components of every development:-

(1) the layout of public and private open space and orientation of buildings, including boundary walls and fences;

(2) the location of parking and garaging;

(3) access arrangements for pedestrians and vehicles, particularly footpaths and road networks;

(4) the provision of play and other recreational and social facilities;

(5) the lighting of development; and

(6) the use of hard and soft landscaping.

Explanation:

7.25 An important part of planning is the creation of environments in which people feel safe and secure. The Crime and Disorder Act 1998 places a responsibility on the Police Authority, Local Authority, Probation Service and other community groups to draw up a strategy for crime prevention. The Safer Communities Torbay partnership has produced a Community Safety Strategy 2002-2005 which aims to identify and resolve local crime and disorder problems. This will be revised and updated in 2005.

7.26 Poor design is cited in many academic, Government and police reports as one of a number of factors which are associated with many areas which suffer from serious crime problems. Circular 5/94 ‘Planning out Crime’ and the recently published document ‘Safer places: the planning system and crime prevention’ (ODPM, 2004) set out guidance for designing out crime hazards. Encouraging ‘living over the shop’ and other measures to revitalise town centres’ evening economy can reduce night time crime caused by these areas being sparsely occupied outside normal shopping hours (see Policy H3 Residential accommodation in town centres).

7.27 In addition, the following are suggested as design features which are generally accepted as being helpful in encouraging crime prevention and which are encouraged by this policy:-

(1) Provision of adequate social facilities, especially for young people.

(2) Provision of adequate play facilities for children and playing fields for young people and adults.

(3) Provision of residents’ parking either within the curtilage of a dwelling or within sight of the occupier; unsupervised garage courts and parking areas out of sight of the residents owning the cars, in areas which are acknowledged as indefensible space, are generally accepted as focal points of crime.

(4) Private rear gardens and living accommodation should not be overlooked from public or other private areas and layouts should not make it easy to gain access to private areas.

(5) Footpaths in residential areas should be lit and open to view from surrounding dwellings. Whilst landscaping can be an important element of a development, it should not serve to create blind spots and potential hiding places.

(6) Residential road layouts should seek minimise escape routes for criminals. The provision of cul-de-sacs in residential road networks is supported by the Police.

(7) It is accepted that there may be a trade-off between residential amenity and crime prevention, for example in terms of privacy. Designs that seek to optimise both objectives will be supported. Further considerations on layout and design are set out in Policy H9 Layout, design and community aspects and the Environmental Guide (Section 6).

CF3 Hostels

Planning applications for hostels will be permitted provided that the following criteria can be met:-

(1) the premises are located close to public transport routes or with easy access to town centres and other community facilities;

(2) the use or development would not be to the detriment of the character or appearance of the neighbourhood or have an adverse effect on the amenity of adjoining properties;

(3) proposals within a Conservation Area should comply with Policy BE6;

(4) proposals within Principal Holiday Accommodation Areas (PHAAs) should, subject to Policy TU6, only be for the provision of residential accommodation for language schools or other appropriate organisations which would complement the range of accommodation available to the tourist industry;

(5) where the proposal relates to hotels, guest houses or holiday apartments outside PHAAs the application should not conflict with Policy TU7;

(6) where hostel accommodation is proposed specifically for students attending further/higher education facilities or for medical students and staff (in particular halls of residence), the proposal should form part of a sustainable development strategy compatible with Policies CF11 South Devon College and CF13 Torbay Hospital;

(7) the proposal should not prejudice highway safety and convenience and satisfactory provision should be made for car parking; and

(8) where appropriate, amenity space should be provided within the site and landscaped for the benefit of occupants.

Explanation:

7.28 Since 1994, hostels have been excluded from Class C1 (Hotels and hostels) of the Town and Country Planning (Use Classes) Order 1987 and are now sui generis (i.e. a use on their own). A proposal for the use of an hotel for the purposes of a hostel therefore now requires planning approval.

7.29 There is no statutory definition of a hostel. For the purposes of this policy, such a use is defined as accommodation which contains rooms used for residential purposes usually on a temporary and short term basis, which provides shared facilities such as bathrooms, toilets and kitchens, and which usually involves the provision of a basic level of service for its occupants (typically laundry and cleaning services, and certain meals such as breakfast).

7.30 It is probable that hostels will attract either a cross-section of people requiring short-term temporary accommodation for a variety of personal reasons, or will focus on the provision of rooms for specific sectors of society. For example, hostels provide accommodation for a range of homeless and other vulnerable people. Equally, they would also include nurses’ accommodation, halls of residence for students, and hostels for foreign language school students, as well as for recognised youth organisations such as the YMCA and YWCA. Whilst most occupants will be transitory, stays may last for a variety of periods, for example a term in the academic year. Such accommodation may be the occupant’s main place of residence but in all probability on a temporary basis only.

7.31 The range of possible hostel types gives rise to a potentially wide spectrum of planning issues. In determining planning applications for hostels, the Council will therefore have particular regard to the detailed land use characteristics associated with the proposed use, and will require clear information relating to the method of operation, intended occupancy and tenure. Where hostels are likely to accommodate people with special needs or in particularly vulnerable circumstances, applicants must demonstrate that the special requirements of such people can be satisfactorily provided for.

7.32 Houses in Multiple Occupation (HMOs) are almost always unsuitable for people in need of long term care. Proposals for this type of use are dealt within Policy CF15.

7.33 Conditions will be imposed on any planning approval granted to ensure that subsequent use is strictly in accordance with the details specified. The likely levels of activity generated, particularly vehicular and pedestrian movement and the overall level of noise and disturbance associated with the use, will determine the appropriateness of any proposal.

7.34 Problems associated with certain types of hostel are often manifested in the deterioration of the appearance and maintenance of premises (particularly facades and forecourts). For this reason, the Council will always take account of the possible effects on the amenity of an area and will not permit proposals which unacceptably change the character of a neighbourhood. All applications for hostels relating to premises or sites within Conservation Areas must demonstrate that account has been taken of the need to secure a high standard of design in the context of Policy BE1 and BE5.

7.35 Tourism remains the cornerstone of Torbay’s economy and the Council has had a long-standing commitment to protect the character and function of its PHAAs. Hostel accommodation may be permitted in such areas only where it relates specifically to language schools or other appropriate organisations. Any approval would be based on the premise that such uses would contribute to the holiday atmosphere of the area and complement the range of accommodation available to the tourist industry. In all instances, applications would be subject to Policy TU6 relating to the protection of PHAAs. Elsewhere, the use of holiday accommodation for hostels should not conflict with the criteria set out in Policy TU7, which is designed to protect holiday accommodation, in appropriate circumstances, outside PHAAs.

7.36 Policy of Torbay Hospital. CF13 refers to the future development of higher education and hospital campuses in Torbay. Hostels in the form of halls of residence or hostels such as those developed for nurses or medical staff form a normal part of the facilities offered by such institutions. Where such development is required, it is important that it forms part of the development strategies of the relevant bodies, and that accommodation is tied to use by staff and students. The provision of housing for key workers is recognised as an important element of affordable housing. It can, where appropriately subsidised to ensure affordability, contribute to meeting the need for affordable housing set out in Policy H5.

7.37 Adequate car parking provision must be made. The number of spaces required will be determined by the type of hostel proposed and its location. These two factors will also determine the Council’s approach in relation to provision of amenity space and landscaping.

7.38 Proposals will also have to meet the requirements of the relevant regulatory body in respect of the standard and layout of accommodation and facilities, and the provision of any necessary services. This approach is necessary since such factors can have a direct influence on the land use planning considerations of a particular proposal. Appropriate standards are enforceable by the Council under the provisions of the Housing Act 1985 and the Environmental Protection Act 1990.

CF4 New cemeteries in Torbay

New cemeteries are proposed at the following locations:-

(1) Collaton St. Mary, Paignton; and

(2) Mathill Road, Brixham.

These cemeteries will be ecologically managed to maximise their nature conservation and wildlife value, and to minimise their landscape and environmental impact.

Explanation:

7.39 The future provision of cemeteries within Torbay has been addressed through the Council’s Cemeteries Working Party. There is recognition that an urgent need now exists to provide additional burial space to complement existing provision. As a consequence, sites are proposed at Collaton St. Mary, Paignton and at Mathill Road, Brixham. Surveys indicate that ground conditions are appropriate in both locations. It is clear that suitable sites are not available elsewhere within the urban area.

7.40 Research carried out indicates that the site in Brixham should be given priority in the development of burial facilities. The Mathill Road site is currently designated as an Area of Outstanding Natural Beauty (Policy L1) and Countryside Zone (Policy L4). The Collaton St. Mary site is covered by Area of Great Landscape Value (Policy L2) and Countryside Zone.

7.41 The Council supports the principle of ‘green burial’ and it is considered essential that the cemeteries are so designed and managed to minimise their environmental impact. Planting of native species and the creation of meadows can enhance the cemeteries value as a wildlife habitat whilst retaining the dignity of their prime function.

7.42 In view of the landscape qualities of each site, careful consideration will need to be given to layout, access and car parking arrangements. It is envisaged that no buildings will be erected on these sites other than very small-scale structures required for basic maintenance purposes.

CF5 Refurbishment and community use of Torquay United Football Club

The refurbishment and upgrading of Torquay United Football Club stadium and premises at Plainmoor is proposed, together with its increased community use. Proposals should not have an adverse impact on the environment, amenity and highway network of the surrounding area.

Explanation:

7.43 At present Plainmoor is not generally available to the community. It is within easy walking distance of many homes and adjacent to one of Torquay’s secondary schools and the Swim Torquay facility. Some improvements have taken place in recent years, e.g. the provision of an indoor bowling centre and social facilities, but considerable scope exists for community-based developments of a social, leisure or even educational nature. In addition, Plainmoor swimming pool is nearing the end of its life and is in urgent need of investment. The retention of swimming facilities in the area is an important consideration.

7.44 Any new development, however, would need to demonstrate to the satisfaction of the Council that the amenities currently enjoyed by neighbouring residents would not be adversely affected, for example by the generation of increased on-street car parking, or excessive noise at anti-social hours.