8. TOURISM AND LEISURE

8.1. Justification of Part 1 Policies

8.1.1. Policy 10 recognises that tourism is one of the most successful sectors of the UK economy. Some areas of the country are heavily dependent economically on tourism, which has the potential to grow rapidly.

8.1.2. The tourism potential of Bridgend County Borough is very important and significant to providing continued economic and environmental benefits. It is important to continue to encourage and increase the number of long stay visitors. To assist in this, proposals for new tourism related development will be supported by the Council. This should lead to the widening of the range of attractions and facilities available, thereby attracting more visitors and increasing income generation and employment opportunities.

8.1.3. A well managed tourism industry can bring many benefits which include: underpinning economic activity; supporting public sector transport and service infrastructure; providing financial support for rural areas; support for agriculture, manufacturing, and service industries; underpinning conservation of heritage sites and the countryside; fostering an exchange of cultural experiences; improving the viability of town centres; and assisting the regeneration of depressed urban and rural areas.

8.1.4. The objective of encouraging tourism will, however, place pressure on the County Borough’s environment. This will need to be managed in such a way as to achieve a balance between favouring developments and attractions which are environmentally sustainable, do not cause damage to the County Borough’s landscape and heritage, but conserve the tourism industry’s vital fabric for both residents and visitors of tomorrow.

8.1.5. Policy 11 emphasizes that leisure uses can benefit town and district centres. In considering such proposals, or in deciding whether to identify sites for leisure developments, however, PPW (2002) advises that, in the first instance, local planning authorities should consider whether there is a need for additional provision. Such a need may be quantitative to address a provable unmet demand and / or qualitative – such as where it can be demonstrated that new provision will contribute to meeting the policies set out elsewhere in the UDP. In order that further damage to town and district centres may be avoided, major leisure uses such as multi-screen cinemas, bingo halls, bowling alleys and theatres should be located where sites or suitable buildings can be found in town and district centres or otherwise on edge of town centre sites. Where this is not possible such development may be located on other sites which are well served by public transport.

Part 2

8.2. Introduction

8.2.1. Tourism plays an important role in the national economy and in the prosperity of many cities, towns and rural areas. As well as the annual family holiday tourism also includes a wide range of shorter visits, day trips and short or weekend breaks. It includes travel for business as well as for recreation.

8.2.2. A number of recent government publications providing guidance on tourism, particularly sustainable tourism, emphasize the need for a properly managed tourism industry. The consultation paper on Tourism Towards Sustainability was prepared as part of a wider government consultation initiative - Opportunities For Change - A Review of the UK Sustainable Development Strategy. This was recently followed by a new strategy document published by the Department of Culture, Media and Sport entitled Tomorrow’s tourism: a growth industry for the new Millennium. For Wales, the Wales Tourist Board have produced a draft successor strategy to Tourism 2000 entitled A New Tourism Strategy For Wales to provide the framework to guide the development of the industry. The strategy confirms that tourism has made excellent progress in achieving ambitious growth targets. Both documents identify the environment and sustainability as the fastest growing themes in tourism. The documents also recognize that environmental goods such as clean water, fresh air and beautiful scenery are fundamental to a range of opportunities that both tourists and the tourist industry have a strong interest in preserving. South East Wales Authorities are also involved in the preparation of a Regional Tourism Strategy, which will provide a framework for tourism development and marketing initiatives.

8.2.3. For the purpose of planning and development plans the guidance on how tourism should be handled is provided in Planning Policy Wales (PPW) (2002) and the associated Technical Advice Note (TAN) 13 - Tourism. DETR Planning Policy Guidance Note 21: Tourism is also of relevance.

8.2.4. The opportunities for recreation and leisure (of which tourism is a core part) are central components for the functioning of a healthy society. Tourism developments enhance the image of the County Borough, making it attractive to potential industrial developers or those seeking relocation from other areas. Investment in tourism development as well as drawing increased numbers of visitors also provides better recreation and leisure facilities for the residents of the County Borough. Tourism will provide opportunities for people who are less affluent and those with particular needs e.g. families with young children, the disabled and the elderly. The greater the number of visitors to the County Borough the more important the need for careful management. This must ensure that the benefits are not outweighed by damage to the physical environment of the County Borough on which they are based.

8.3. The Value of Tourism and Leisure to Bridgend

8.3.1. The value and volume of tourism and leisure is not totally understood which limits a full analysis of its potential for demand and consequent development. There are a number of reasons for this:-

• The tourism industry does not have a discrete form and no single concept of the industry has been developed and accepted by all industry participants;

• Within the tourism industry’s key activities transportation, accommodation and entertainment, each has developed its own definition, classification and methodologies for data collection. The result is that there is little commonly understood or useable communication for tourism.

8.3.2. Most attempts at defining tourism have revolved around the definition “what is a tourist”. Each industry describes the user differently e.g. as a guest, customer, passenger, visitor, client etc.

8.3.3. Because of these problems associated with data collection it is difficult to estimate precisely the value and volume of tourism in Bridgend. However, Bridgend County Borough Council has adopted the STEAM (Scarborough Tourism Economic Activity Monitor) methodology. It is a computer based analysis package which aims to quantify the value and volume of tourism in the County Borough. The assessment for Bridgend for 2003 indicates:-

• Approximately 2,880 full time equivalent jobs are directly provided in tourism with another 1,172 indirectly provided;

• Approximately 3,536,000 visitors to the County Borough of which there were 3,002,000 day visitors; 144,000 visitors stayed in serviced accommodation, 191,000 visitors stayed in non-serviced accommodation and 199,000 persons stayed with friends and relatives;

• The overall expenditure by visitors to Bridgend County Borough was about £200 million, of which £13.5 million went on accommodation, £27.6 million on food and drink, £8.6 million on recreation, almost £50 million on shopping and £15.6 million on transport. £64.7 million was spent indirectly and £20.2 million on VAT;

• The largest amount of revenue to the area comes from day visitors (£128.1 million), then those persons staying in the non-serviced accommodation sector (£33.8 million) followed by serviced accommodation (£24.6 million) and finally persons staying with friends and family £13.7 million).

8.3.4. In Porthcawl, which is the main holiday destination in the County Borough the following figures have been provided by STEAM for 2002:-

• 1,105 full time equivalent jobs are provided in Porthcawl directly and indirectly by tourism;

• There were 912,000 visitors to Porthcawl, 696,000 of which were day visitors; 129,000 stayed in non-serviced accommodation, 62,000 in serviced accommodation and 25,000 stayed with family or friends;

• The overall expenditure by visitors to Porthcawl was £59.2 million of which £12.2 million went on accommodation;

• The largest amount of revenue to Porthcawl comes from those persons staying in non-serviced accommodation (£32.2 million) followed by day visitors (£16.3 million).

8.4. The Tourism and Leisure Product

8.4.1. The County Borough’s tourism potential is high. It has a very attractive coastline and offers a good range of informal outdoor recreation opportunities provided by the Glamorgan Heritage Coast, the Kenfig National Nature Reserve and the Bryngarw Country Park.

8.4.2. The historical and industrial heritage product is strong providing fine examples of Norman castles, former mediaeval farm houses, and Victorian manor houses on the one hand and former ironworks, tram roads and related industrial archaeology on the other. Other activities available in the County Borough include golfing, walking, cycling, angling, surfing and other water sports.

8.4.3. The recently completed Designer Outlet Village at junction 36 of the M4 has increased the number of visitors to Bridgend. This success can be built on and developed further. For example, major visitor attractions could include the proposed heritage steam railway between Tondu and Pontycymmer, which will be associated with activities at the various halts such as cycle routes, circular walkways and visitor centres, and proposed leisure, entertainment and accommodation developments in Porthcawl.

8.5. Tourism and Leisure Policies

8.5.1. The following policies will contribute to the key objectives of enhancing, improving and developing the tourist potential of the County Borough whilst protecting and conserving the environment.

8.6. General Policy

8.6.1. DEVELOPMENT FOR TOURISM AND LEISURE

8.6.2. Opportunities exist for further improving and co-ordinating the range of activities and attractions. The purpose of Policy TM1 is to encourage tourism development which increases the range of activities available to visitors, including support for major crowd drawing attractions in appropriate locations. Tourism development projects are an integral part of town centre management and regeneration, and especially in the case of major new tourism developments can make a very significant contribution to urban regeneration. In the case of Porthcawl there is a recognized need for a critical mass of attractions in order for it to retain and expand its share of the tourist industry. Proposals for a heritage steam railway line between Tondu and Pontycymmer centred on promoting tourist attractions at various locations along the route is expected to draw a large number of visitors. Such attractions will be expected, wherever possible to be located within, or adjacent to urban areas. Policy TM1 ensures that those proposals for tourist attractions, which seek appropriate countryside locations will be related to and in keeping with the surrounding countryside. The kind of attractions which may be acceptable in the countryside relates to those activities which by their very nature require a countryside location such as golf, walking, cycling, fishing, appropriate equestrian activities, and whose environmental impact is usually minimal. In certain cases, tourist proposals relating to farm diversification schemes may be acceptable. Proposals for farm diversification schemes will also be assessed under Policy EV1 and Policy E11, and justifying paragraphs 3.5.4., 5.8.8. – 5.8.11. of the UDP refer.

8.6.3. With respect to criterion 4 of Policy TM1 relating to facilities located in the countryside, it is recognised that they may not be accessible by public transport.

8.6.4. As well as the development of specific attractions, Policy TM1 should also relate to the implementation of environmental improvement schemes such as clearance, landscaping, paving, seating, tree planting and building refurbishment particularly in urban areas. This is considered an essential element in further enhancing the attractiveness of the County Borough to visitors. In this respect the Council is particularly keen to increase the number of visitors to Bridgend town centre and to improve the tourism and leisure provision in and around Bridgend. Tourism/leisure and retailing development at the Designer Outlet Village at Sarn with its shop units, multiplex cinema, themed restaurant and food court has already resulted in increased visitors to the County Borough. This should now be matched by improvements in the leisure facilities in Bridgend town centre, particularly with the increasing importance of shopping as a leisure and tourism activity. The implementation of pedestrianisation, in particular, should see a major improvement in the town centre’s environment, as was the case with the pedestrianisation of John Street and other environmental improvements in Porthcawl.

8.7. Tourism and Leisure Accommodation

8.7.1. ACCOMMODATION FOR VISITORS IN URBAN AREAS

POLICY TM2

THE ESTABLISHMENT OF NEW SERVICED AND SELF-CATERING ACCOMMODATION, AS WELL AS THE EXTENSION, UPGRADING OR CHANGE OF USE OF BUILDINGS TO PROVIDE SUCH ACCOMMODATION, WITHIN EXISTING SETTLEMENTS WILL BE PERMITTED PROVIDED THAT ALL OF THE FOLLOWING CRITERIA ARE COMPLIED WITH:-

1. THE DEVELOPMENT IS COMPATIBLE WITH ITS SURROUNDINGS IN TERMS OF SITING, SCALE, DESIGN, EXTERNAL APPEARANCE AND LANDSCAPING;

2. BUILDINGS OR AREAS OF HISTORIC OR ARCHITECTURAL INTEREST ARE NOT HARMED;

3. IT WILL HAVE SATISFACTORY CAR PARKING;

4. THE DEVELOPMENT IS WELL LOCATED TO PUBLIC TRANSPORT, THE NEEDS OF THE NON CAR TRAVELLER AND THE MAIN ROAD NETWORK;

5. THE HIGHWAY NETWORK IS CAPABLE OF ACCOMMODATING THE TRAFFIC GENERATED BY THE DEVELOPMENT WITHOUT AN UNACCEPTABLE EFFECT ON TRAFFIC FLOWS AND PATTERNS, SAFETY, ENERGY USE OR OTHER EMISSIONS.

8.7.2. ACCOMMODATION FOR VISITORS OUTSIDE URBAN AREAS

8.7.3. Whilst there is a small number of hotels and guest houses located throughout the County Borough, Porthcawl with its large Trecco Bay Caravan site provides for most of the existing tourism accommodation. In order to increase the attractiveness of the County Borough to both tourists and the business market, an increase in the amount of good quality places to stay is considered vital.

8.7.4. Over recent years great emphasis has been placed on improvements to the range and quality of the self catering and serviced accommodation available, including new hotels and chalet developments. A grants scheme is available from the WTB to encourage hoteliers to raise the standard of their establishments, and to prevent the loss of serviced accommodation to other uses. In Porthcawl many properties have already benefited from the grant aid scheme which is complemented by the WDA and the County Borough’s Town Improvement Grant scheme and by WTB and County Borough’s Sense of Place bilingual signage scheme.

8.7.5. The family market accommodation is centred in the Porthcawl area where it is well catered for. There is, however, a deficiency of quality hotels with conference facilities for the business market in the Bridgend area. The relatively large number of firms located in the area form a valuable market for conference and business meetings. It is important, therefore, that appropriate facilities in terms of meeting rooms, leisure facilities and accommodation of appropriate quality is available. New accommodation projects and improvements in standards/facilities of existing providers specifically catering for the business market will therefore be favourably considered. Car parking provision should be consistent with reducing reliance on car-borne travel, whilst avoiding harm to highway safety from parked cars. In this regard it must also satisfy the Council’s parking guidelines.

8.7.6. Policies TM2 and TM3 are designed to support and encourage the development of appropriately located tourist accommodation (hotels, guest houses and farm houses), particularly in the Bridgend area. Proposals for accommodation in the countryside and designated areas such as the Glamorgan Heritage Coast, the Kenfig National Nature Reserve and other environmentally sensitive areas will be strictly controlled. Proposals for tourist accommodation are therefore best located within existing settlements. However, in accordance with the guidance in TAN 13, the conversion of redundant and disused farm buildings in the countryside can be beneficial. The re-use of old farm buildings, in particular can contribute to, and be in keeping with the character of the countryside. The re-use of such buildings can often be compatible with the protection of the countryside, but only if the design respects the original features of the building. In accordance with Policies EV1 and EV2, whilst initial consideration is given to farm buildings, the provision of sensitively designed new accommodation may be considered where this forms part of a farm diversification scheme on a working farm within existing farm complexes.

8.7.7. With respect to criterion 4 of Policy TM3 relating to accommodation in the countryside, it is recognised that they may not be accessible by public transport.

8.8. Caravans, Chalets and Camping Sites

8.8.1. STATIC CARAVANS & CHALETS

POLICY TM4

NEW FREE-STANDING STATIC CARAVAN, CHALET OR CABIN DEVELOPMENTS, OR THE EXTENSION OF AN EXISTING SITE FOR SUCH PURPOSES, WILL NOT BE PERMITTED.

8.8.2. CAMPING & TOURING CARAVAN SITES

8.8.3. TAN 13 makes it clear that the development plan needs to ensure that there are sufficient facilities and choice of sites for the touring and static caravaner. New sites should be well screened and will not be permitted in the coastal zone as defined in Policy EV15.

8.8.4. Ample provision of caravans exists in Porthcawl and the Coastal Zone which is considered as being a sufficient supply. Therefore, because of the highly intrusive nature of caravan sites, the criteria of Policy TM5 will be strictly applied.

8.8.5. It is, however, considered that there is room for the provision of further camping and touring caravan sites. These will, however, need to be carefully located and screened so as not to adversely affect the surroundings in which they are situated.

8.8.6. With respect to criterion 3 of Policy TM5 and the issue of accessibility, it is recognised that facilities in the countryside may not be accessible to public transport.

8.9. Tourism and Leisure Attractions

8.9.1. VISITOR ATTRACTIONS

POLICY TM6

DEVELOPMENT FOR EDUCATIONAL, ARTS, CULTURAL AND ENTERTAINMENT FACILITIES, INCLUDING RESTAURANTS, PUBLIC HOUSES AND CAFES WILL BE PERMITTED WHERE EITHER:-

A) IT WILL CONTRIBUTE TO THE REGENERATION OF TOWN CENTRES BY IMPROVING THEIR VITALITY, VIABILITY AND
ATTRACTIVENESS TO VISITORS, AND ENHANCE THEIR LEISURE ROLE IN THE EVENING ECONOMY AND AT WEEKENDS; OR

B) IT WILL INVOLVE THE RE-USE OR ADAPTATION OF REDUNDANT AND DISUSED BUILDINGS IN URBAN OR RURAL AREAS.

IN ADDITION, PROPOSED DEVELOPMENT SHOULD MEET THE FOLLOWING CRITERIA:-

1. IT WOULD NOT ADVERSELY AFFECT THE AMENITIES OF PEOPLE LIVING IN THE AREA BY MEANS OF NOISE AND SMELLS, OR GENERAL USAGE DURING UNSOCIABLE HOURS;

2. IT WOULD BE ACCESSIBLE BY A CHOICE OF MEANS OF TRANSPORT AND BE WELL RELATED TO THE NEEDS OF THE NON-MOTORISED TRAVELLER.

3. THE HIGHWAY NETWORK WOULD BE CAPABLE OF ACCOMMODATING THE TRAFFIC GENERATED BY THE DEVELOPMENT WITHOUT AN UNACCEPTABLE EFFECT ON TRAFFIC FLOWS AND PATTERNS, SAFETY, ENERGY USE, OR OTHER EMISSIONS.

4. IT WOULD HAVE SATISFACTORY CAR PARKING.

5. THE SITE IS NOT WITHIN AN AREA OF FLOOD RISK.

6. THE PROPOSAL CAN BE SYMPATHETICALLY ASSIMILATED INTO ITS SURROUNDINGS IN TERMS OF ITS SITING, SCALE, DESIGN AND LANDSCAPING.

8.9.2. There is a recognized deficiency in the provision of arts, cultural and entertainment and leisure facilities in the County Borough, but more specifically within its main towns. This form of development is vital to attracting visitors, as it is linked to improvements in town centre environments and facilities. Tourism development projects are an integral part of town centre management and regeneration. Policy TM6 provides the impetus for projects, which may include the installation of CCTV, decorative lighting, street entertainment and improved signage. In addition, there may be suitable redundant and disused buildings in rural areas of the County Borough where such a development could benefit the rural economy of the County Borough. Policy TM6 provides the criteria against which any proposal of this nature will be specifically assessed. The policy recognises that a choice of modes of transport, including on foot, by cycle and public transport is important in reducing the reliance on car based travel. Development must also satisfy the basic parking requirements as set out in Council’s approved parking guidelines. However, as in the case of any proposed development, all relevant policies of the UDP should be considered in the determination of individual proposals. In the case of urban proposals, through the implementation of existing strategies the County Borough Council can capitalize on the many opportunities for attracting new visitors and promoting the County Borough as an attractive destination. All tourism development should be based on the principle of equal opportunities.

8.10. Porthcawl

8.10.1. Porthcawl and the Coastal Zone represent the County Borough’s main holiday attraction. Porthcawl should therefore be developed as a major tourist resort by enhancing its tourist potential which will be beneficial to the County Borough as a whole. A regeneration strategy exists for the resort and much has been done to implement its proposals, which has already resulted in major improvements to the physical fabric and infrastructure of the town.

8.10.2. TOURISM & LEISURE ATTRACTIONS IN PORTHCAWL

POLICY TM7

INITIATIVES AND SCHEMES WHICH SUPPORT THE FURTHER ENHANCEMENT AND DEVELOPMENT OF PORTHCAWL AS THE
COUNTY BOROUGH’S MAJOR TOURIST RESORT WILL BE FAVOURED.

8.10.3. Proposals and projects under Policy TM7 for tourism development in Porthcawl will be supported where they contribute to fulfilling the objectives of the regeneration strategy for the resort which are:-

• To make the resort of Porthcawl more attractive to visitors and extend the season;

• To raise business confidence and encourage private sector investment;

• To maximize visitor spend and job creation;

• To market the resort effectively to its core family market, whilst developing new markets with growth potential;

• To improve the linkages between the key elements of the resort;

• To strengthen the appeal of the shopping centre and to improve its competitiveness;

• To improve access to the resort.

8.10.4. Key proposals completed to date include the pedestrianization of John Street, the refurbishment of the Grand Pavilion, the refurbishment of the sea front and Esplanade, the construction of a new lifeboat station and the refurbishment of Jennings warehouse. Also the land between the Harbour and Trecco Bay has been allocated under Policy REG3(2) as a key regeneration site. Its redevelopment for leisure/entertainment/commercial/ accommodation purposes will play a crucial role in strengthening the resort’s position as a leading tourism attraction.

8.11. Serviced Accommodation Area

8.11.1. PROTECTION OF EXISTING SERVICED ACCOMMODATION

POLICY TM8

THE LOSS OF SERVICED ACCOMMODATION WITHIN CLASS C1 OF THE TOWN AND COUNTRY PLANNING (USE CLASSES) ORDER 1987 TO NON-TOURISM USES WILL BE PERMITTED IN THE DESIGNATED SERVICED ACCOMMODATION AREA OF PORTHCAWL (Link to Map 37), ONLY IF:-

1. ANY CONVERSION WOULD NOT ADVERSELY AFFECT THE RANGE AND QUALITY OF SERVICED ACCOMMODATION AVAILABLE;

2. IT CAN BE DEMONSTRATED THAT THERE IS NO LONG TERM DEMAND FOR THE PROPERTY FOR SERVICED ACCOMMODATION;

3. IT CAN BE DEMONSTRATED THAT THE BUILDING IS NO LONGER SUITABLE OR VIABLE FOR THE RUNNING OF A QUALITY SERVICED ACCOMMODATION BUSINESS; AND

4. THE PROPOSALS MEET THE COUNCIL’S APPROVED PARKING GUIDANCE.

8.11.2. The purpose of Policy TM8 is to resist the loss of hotel stock to other uses which can seriously weaken a resort’s ability to maintain its status as a tourist destination. This is supported by advice contained in TAN13 on tourism. The availability of a wide range of serviced accommodation benefits the economy in general and gives choice to intending visitors.

8.11.3. TAN13, however, advises that the planning system should not be used to perpetuate outdated accommodation for which there is no demand. The County Borough Council therefore accepts that instances may arise where conversion may be justified for one of the reasons stated under Policy TM8. In assessing applications for conversion to alternative uses, the Authority will take into account the length of time a property has been vacant for on the market, trends in occupancy rates and customer preferences, the suitability of the building in terms of size and floor layout for the provision of modern serviced accommodation.

8.11.4. The area to which Policy TM8 applies in Porthcawl is indicated on the Proposals Map. It is based on the core area of the resort where hotel and guest/boarding house uses are concentrated along the sea front and Esplanade. The area is also covered by the established Town Improvement Grant and Tourism Accommodation Grant schemes, which seek to improve the condition and appearance of the commercial buildings and guest houses in the area.

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