TOURISM
TOURISM
Chapter 4 : TOURISM
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .39
Hotels and Serviced Accommodation . . . . . . . . . . . . . . . . . . . . . . . . .40
Self-catering Accommodation
(excluding Caravans and Chalets) . . . . . . . . . . . . . . . . . . . . . . . . . . . .42
Caravan and Chalet Development . . . . . . . . . . . . . . . . . . . . . . . . . . . .43
Camping Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .45
Camping Barns . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .45
Visitor Facilities and Attractions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .46
The Local Plan policies and text that have been added or altered (in whole or part) through the Local
Plan Alterations are shown with grey shading behind the relevant text.
Chapter 4 : TOURISM
proposals which contribute, rather than detract, from the
quality of the environment; promote a greater
understanding of environmental quality; and adopt visitor
management techniques which avoid damage to the
environment. In addition, the District Council will be
seeking to extend the approach currently being adopted
in the Lake District National Park on traffic control and
management, to other parts of South Lakeland.
Introduction
4.1
Tourism has become one of the most important
sectors of the South Lakeland economy. It is the biggest
single employer with some 8,400 direct jobs and 6,400
indirectly supporting the industry. The South Lakeland
area (including the National Parks) attracted an estimated
4.9 million day visitors and 6.9 million overnight stays in
1992. Throughout the district, visitors spent something
like £400 million of which some £107 million stayed in the
local economy. Of course the area attracts visitors on this
massive scale because of its spectacular landscape
quality and its heritage. The Local Planning Authority has
the task of maximising the economic benefits from visitors
whilst, at the same time, protecting the very qualities
which attract people in the first place.
4.2
Local Plan policies are, therefore, seeking to strike
a balance which provides a framework for the tourism
industry to develop and sustain local employment whilst,
at the same time, protecting the high quality of the
landscape and wildlife and the interests of local residents.
The policies have been guided by advice in Planning
Policy Guidance Note 21 on Tourism and policies 10 and
52 in the Cumbria and Lake District Joint Structure Plan.
They also reflect Cumbria Tourist Board’s "Regional
Tourism Strategy" which was prepared with local
authorities, other agencies and the private sector, in 1997.
All of this guidance stresses the importance of adopting
an increasingly ‘‘sustainable’ approach to tourism
development. To reflect this the Council will favour
4.3 The Local Plan’s approach also recognises the
varying ability of different areas in the District to
accommodate tourism. Grange-over-Sands for
example has seen a decline over recent decades in its
fortunes as a tourist resort - largely due to competition
from the foreign holiday market. Nevertheless its role
as a coastal resort remains an important one and the
District Council will encourage appropriate investment
in the town’s visitor attractions, accommodation and
environment. Following advice in PPG21 the District
Council will apply a tourism policy to Grange-overSands to address the issue of accommodation
retention. The Council is also working in partnership
with neighbouring Councils, local groups, hoteliers and
the Tourist Board in a Tourism Marketing and
Development Programme (Furness Tourism
Partnership) for the whole of the Cartmel and Furness
area outside the National Park. The main purpose of
the Programme is to spread the economic benefits of
tourism throughout the Furness area and to develop a
wider range of accommodation and attractions. The
Local Plan policies will, therefore, adopt a positive
approach to new tourism developments in the Cartmel
and Furness area subject to measures which
safeguard the environment, highway safety, residential
amenity etc.
4.4
In stark contrast, the development of new facilities
and attractions in the Arnside-Silverdale Area of
Outstanding Natural Beauty needs to be strictly
controlled. The main purpose of AONB designation is the
conservation of natural beauty - the opportunities for
absorbing additional tourism and recreation activities
without damage to the area’s fragile landscape qualities
are limited.
4.5
Throughout the Local Plan area the District
Council will seek to ensure that tourist development is
related to economic need and is appropriate in nature,
design and siting. Where possible it should also foster the
visitor’s understanding and enjoyment of the District’s
environment and heritage. This broad principle is set out
in Structure Plan Policy 52.
South Lakeland Local Plan 2006 & Alterations : Final Composite Plan : March 2007
page 39
Chapter 4 : TOURISM
Tourism development will normally be favourably
considered outside National Parks, especially where
there is a need to diversify the local economy and the
development would benefit the local community. Any
development should in its nature, siting, scale and
design:
i) be sensitive to the character of the surrounding
landscape or townscape, and to other important areas
or features of conservation value, and
ii) have no significant adverse impact on the
amenities and character of nearby communities, and
iii) not create undue nuisance from traffic, especially
on quiet, rural roads, and
iv) within AONBs give special consideration to the
conservation of their natural beauty.’’
Hotels and Serviced
Accommodation
4.6
Hotels and other forms of serviced
accommodation, like guesthouses, are important to the
local economy because of the jobs they provide and the
spin-offs to other local firms who supply goods and
services. They are used by a large proportion of staying
visitors to the area - the group which generates most
spending in the local economy. The Local Plan has not
allocated sites for the construction of new hotels and
guest houses - it will treat applications on their merits
subject to criteria covering their siting, design, scale and
traffic impact. However, it will generally seek to limit their
development to sites which are not earmarked for other
uses, within the development boundaries of towns and
large settlements. In some circumstances though, it may
be appropriate to locate hotels and guest houses on sites
allocated for employment. Because of the sensitive
landscape qualities of the area and the existing recreation
and tourism pressures, new hotel proposals within the
Arnside-Silverdale Area of Outstanding Natural Beauty
should be small in scale.
page 40
Policy T1
‘‘Policy 52
HOTEL DEVELOPMENT
WITHIN DEVELOPMENT BOUNDARIES
Proposals for the development of new hotels and
other serviced accommodation will be permitted
providing that:
(a)
the site is within the development
boundaries of the settlement and is not
allocated for housing use;
(b)
the proposal will not be harmful to the
residential amenity, appearance or character
of the settlement;
(c)
the scale, design and materials of the
proposed building and access, servicing and
parking arrangements are satisfactory; and
(d)
the proposal is not within the ArnsideSilverdale Area of Outstanding Natural
Beauty.
(e)
proposals within the Arnside-Silverdale Area
of Outstanding Natural Beauty are of an
appropriate small scale.
4.7
In many cases, hotels and guest houses are the
result of conversions of large country houses and
buildings of Special Architectural or Historic Interest,
which might otherwise have become redundant or been
poorly maintained. In considering permissions for
conversion and change of use, the Local Planning
Authority will seek to ensure that the historic and special
architectural qualities of the building are not lost. In some
circumstances, it may also be appropriate to allow
existing employment premises to be converted to hotel
use (see Policy E6) to enable the building to be put to a
viable use and retain some form of employment on the
site.
4.8
Where new development and conversions for
hotels are allowed, the District Council will pay careful
attention to the proposals for advance signs and
advertisements, especially within sensitive locations such
as Conservation Areas. Proposals will be judged in
relation to Policy S20, and where appropriate, Policies
S21 and S22. The Council will also be mindful of the need
to ensure that there is no harm to protected species
during any conversion project (see Policy C8).
South Lakeland Local Plan 2006 & Alterations : Final Composite Plan : March 2007
4.8a The Local Plan recognises that the tourist
industry is a major employer underpinning the
economy in the South Lakeland area, creating
facilities and services of benefit to local residents and
visitors. Grange-over-Sands is experiencing the same
changes as many other coastal resorts in the UK.
Difficulty in retaining trade has led to a gradual decline
of the town's tourist accommodation. Research has
shown that a significant proportion of the town's
former tourist accommodation has been converted to
residential development. It is therefore important to
maintain and where possible, enhance, the quality and
range of accommodation such as hotels,
guesthouses, holiday centres and self catering
accommodation. Paragraph 5.24 of PPG21 states
that `the conversion of hotel stock to alternative uses
can weaken a season town's ability to retain its status
as a tourism destination.' Policy T2a coupled with
future regeneration and environmental initiatives will, it
is hoped, retain a strong tourism industry in the area.
Policy T2
Chapter 4 : TOURISM
4.8c Policy T2a deals with the loss of a hotel,
boarding house or guest house to residential
development. Such a loss will not be permitted unless
a number of criteria are met. It will be permissible
however for the conversion of a hotel, boarding house
or guest house to self catering accommodation which
is encouraged under Policy T3.
Policy T2a
4.8b The viability of a business will be assessed
against information such as trading patterns and
occupancy rates and a summary of the trading
accounts. Particularly convincing evidence of nonviability will be required of any proposal that would
represent a significant loss of tourist accommodation.
In assessing the viability of tourist accommodation,
the Council will seek independent advice from the
Cumbria Tourist Board.
CONVERSION OF BUILDINGS TO HOTELS
AND SERVICED ACCOMMODATION
The conversion of buildings to hotels and other
serviced accommodation will be permitted,
providing that:
(a)
the building is capable of conversion without
requiring major extension, rebuilding or
significant external alteration;
(b)
the proposal will not be harmful to
residential amenity or to the appearance or
character of the area;
(c)
the conversion proposals are sympathetic in
terms of layout, design and materials;
(d)
access, servicing and parking arrangements
are satisfactory; and
(e)
it will not result in the loss of significant
architectural or historic features particularly
if the building is listed.
(f)
It will not result in the generation of
inappropriate levels of traffic and
recreational use in the open countryside.
RETENTION OF HOLIDAY
ACCOMMODATION IN
GRANGE-OVER-SANDS
The Council will only permit the loss of a hotel,
boarding house and guest house where
(a)
there is clear evidence that the property
concerned can no longer be operated as a
profitable business; or
(b)
the proposal would result in a major
upgrading of the structural condition of the
building.
South Lakeland Local Plan 2006 & Alterations : Final Composite Plan : March 2007
page 41
Self-catering Accommodation
(excluding Caravans and Chalets)
4.9
There has been a steady growth in self-catering
holidays in recent decades. It can take many forms including holiday lets in permanent houses, purpose-built
units and converted properties (as well as in caravans
which are covered in paragraphs 4.11-4.16. If carefully
controlled, it is a market that can be readily absorbed
within the countryside and can make a valuable
contribution to the rural economy.
Policy T3
4.10 Self-catering units may provide a suitable
alternative use for traditional buildings and barns.
Although conversion standards still need to be high, selfcatering holiday units will not usually need to be designed
with the same requirements as permanent houses. Many
of the trappings of residential use such as garages,
fenced garden areas, sheds and greenhouses are not
necessarily needed and the internal layout can be more
basic. The result can be a more sympathetic and
successful conversion with modest environmental impact.
Conversion schemes will be expected to meet the
standards and design criteria set out in Policies H11 and
H12.
SELF-CATERING ACCOMMODATION
WITHIN DEVELOPMENT BOUNDARIES
Policy T4
Chapter 4 : TOURISM
SELF-CATERING ACCOMMODATION
OUTSIDE DEVELOPMENT BOUNDARIES
Outside the development boundaries, proposals
for new build self-catering units will not be
allowed. Proposals for the conversion of
traditional buildings and barns to self-catering
accommodation will be permitted where the
following criteria are satisfied:
(a)
details of design, layout, parking and access
arrangements are satisfactory and
appropriate to holiday accommodation;
(b)
Significant architectural or historic features
are safeguarded;
(c)
the proposal will not give rise to the erection
of new or replacement buildings which
would be detrimental to the landscape and
amenity of the area; and
(d)
the applicant enters into a planning
obligation or the permission is subject to a
condition limiting the accommodation to selfcatering holiday use only; and
(e)
It will not lead to the generation of
inappropriate levels of traffic and
recreational use in the open countryside.
Proposals for the development of new or
converted self-catering accommodation will be
permitted providing that details of the design,
layout, parking and access arrangements are
satisfactory and appropriate to holiday
accommodation.
page 42
South Lakeland Local Plan 2006 & Alterations : Final Composite Plan : March 2007
Caravan and Chalet
Development
4.11 Although the pattern of demand for caravan and
camping holidays has fluctuated over the last decade, it
appears that an increasing number of caravans (both
touring and static) are now in use. There is still some
pressure to open up new sites, increase the size and the
range of facilities on existing sites and extend the season
during which they can be used. The quality of South
Lakeland’s countryside demands that any measures to
relax the control of new development and extend the
season must be carefully considered, as the impact of
new caravans or tents in the landscape can be very
damaging. It is a matter of carefully balancing the
environmental impact alongside the need to encourage
tourism growth and economic diversification in certain
areas.
4.12 In legal terms, there is little distinction between
static caravans and some types of chalets. Where a
chalet does not have foundations anchoring it to the
ground, is not built of permanent materials such as bricks
and mortar, and is capable of being moved, it can replace
a caravan (or vice versa) without the need for planning
permission. The District Council has, therefore, taken the
view that the approach to new and extended caravan and
holiday chalet developments should be the same.
4.13 There are already parts of the District which are
considered sufficiently sensitive and well provided with
caravan sites, to require restrictions on their future
development. The Arnside-Silverdale Area of Outstanding
Natural Beauty already has a particularly high level of
provision for static and touring caravans. Although it is
acknowledged that the AONB is a popular visitor
destination, it is considered vital that the unique and
sensitive landscape is protected from inappropriate
development. Additional caravan site development, would
place further pressure on the fragile countryside, and lead
to an increase in traffic on the narrow road network.
Within the AONB, therefore, caravan development in any
form will be discouraged. Exceptions may be made for
small-scale expansions of existing caravan sites which,
for much of the season, can be absorbed within the
general screened boundaries of the site.
Policy T5
Chapter 4 : TOURISM
CARAVAN SITE DEVELOPMENT WITHIN
THE ARNSIDE-SILVERDALE AONB
Within the Arnside-Silverdale Area of Outstanding
Natural Beauty, further static caravan
development will not be permitted. Exceptions will
be limited to small-scale expansions of existing
sites, where this can be achieved within the
general screened boundaries of the site and
providing that there is no adverse impact on:
(a)
conservation of the landscape and built
environment;
(b)
the capacity of the surrounding road system
and the adequacy of parking and access; or
(c)
the protection of wildlife, archaeological and
geological features.
4.14 Elsewhere in the District differing degrees of
potential for caravan development exist. Areas close to
major roads, e.g. M6 and A590, have obvious locational
assets, whilst more inaccessible areas or areas of
landscape and ecological importance will, for the most
part, be unsuitable for caravan development. In general
therefore, permission for such development will only be
granted for proposals limited to a size which can be
satisfactorily integrated into the surroundings, without
detriment to the landscape of the area (see Appendix C).
The range of possibilities covers small informal sites
associated with farm diversification, modest extensions to
existing sites (in the order of a 10% increase in the
number of caravans) and, in appropriate circumstances,
entirely new sites. The District Council considers that the
informality, the smaller range of built facilities and the
shorter season which is usually associated with touring
sites is preferable to that of static caravan parks. It will,
therefore, adopt a more positive approach to proposals
for ‘‘informal’’ touring sites. However, in all cases the
applicant will be expected to demonstrate that there will
not be an adverse impact in terms of the landscape,
nature conservation interests, surrounding roads and local
communities.
South Lakeland Local Plan 2006 & Alterations : Final Composite Plan : March 2007
page 43
CARAVAN SITE DEVELOPMENT OUTSIDE
THE ARNSIDE-SILVERDALE AONB
Outside the Arnside-Silverdale AONB, proposals
for new caravan development, or small-scale
extensions to existing sites, will only be permitted
where there is no adverse impact on:
(a)
the conservation of the landscape and built
environment;
(b)
the capacity of the surrounding road system
and the adequacy of parking and access; or
(c)
the protection of wildlife, archaeological and
geological features.
4.15 It is considered necessary for caravan sites to
have a closed season during the year to help the
environment of the sites recover from heavy use during
the peak holiday period. It enables the natural recovery of
the ground cover, the repair of paths and access lanes
and also the protection of the landscape, especially in
sensitive areas such as the AONB. In addition a closed
season prevents the caravan sites from providing all-year
round accommodation.
4.16 Planning Policy Guidance Note 21 ‘‘Tourism’’
advises local planning authorities on how they should be
responding to the changes in leisure demands in recent
years without compromising policies to safeguard the
page 44
countryside. People are taking several holidays a year,
many of which may be short breaks, no longer just in the
summer months. In order to meet these changing
demands, a shorter closed season of a minimum of six
weeks is considered beneficial to the local tourism
economy yet sufficient to safeguard the environment. To
avoid caravans being occupied permanently, planning
agreements will be used to restrict occupancy to holiday
lettings. In applying for an extension of the present open
season caravan site owners will be expected to
demonstrate that the proposal will not be damaging to the
landscape, nature conservation interests, SSSI's, National
Nature Reserves or the AONB.
Policy T7
Policy T6
Chapter 4 : TOURISM
EXTENSIONS TO CARAVAN PARK
DEVELOPMENTS’ OPEN SEASON
Applications to extend the present open season in
caravan parks will be allowed subject to the
following:(a)
the site is closed for a minimum of six
weeks over the winter period;
(b)
there will be no detrimental impact to
landscape or nature conservation interests;
(c)
there will be no adverse impact on Sites of
Special Scientific Interest, National Nature
Reserves or the Arnside/Silverdale Area of
Outstanding Natural Beauty.
South Lakeland Local Plan 2006 & Alterations : Final Composite Plan : March 2007
Chapter 4 : TOURISM
Camping Barns
4.17 There are relatively few sites specifically devoted
to tented camping in South Lakeland outside the Lake
District National Park. Typically pitches are provided on
existing caravan sites or in fields set aside for a short
period during the summer months. The use of land for
this sort of casual and temporary camping is often not
subject to planning control.
4.19 Camping barns provide a simple form of overnight
accommodation for walkers and cyclists. Typically the
accommodation will be provided in converted farm
buildings with a toilet and a water supply. They may also
have electricity and basic cooking facilities. If carefully
located this sort of accommodation can be provided
without creating environmental damage in the countryside
or any impact on local roads and communities. They may
provide a useful form of farm diversification. Proposals for
conversions should be of a simple nature and involve
minimal change to the external appearance of the
building. Camping barns will generally be considered
appropriate in remote countryside locations close to
established rights of way and do not need to be close to
the main road network. External works of a domestic
nature will be discouraged.
Policy T8
4.18 In practice the distinction between tents and
caravans is becoming increasingly blurred. Although the
season for tented camping tends to be shorter than that
of touring caravans the camper using a frame tent often
arrives by car or uses a tent trailer. In most respects,
therefore, the provision of camping sites should be based
on a similar criteria to that for touring caravans. Smallscale camp site developments in appropriate locations
and providing basic facilities will usually be permitted,
particularly if provided in conjunction with farm
diversification schemes.
TENTED CAMPING SITES
Policy T9
Camping Sites
CAMPING BARNS
Conversion of traditional farm buildings to
camping barns will be permitted providing that
there is no adverse impact on:
Small-scale proposals for tented camping sites
will be permitted providing that there is no
adverse impact on:
(a)
the character and appearance of the
building;
(a)
conservation of the landscape and built
environment;
(b)
the residential amenity of nearby
communities; or
(b)
the capacity of the surrounding road system
and the adequacy of parking and access; or
(c)
nature conservation or wildlife habitats.
(c)
the protection of wildlife, archaeological and
geological features.
South Lakeland Local Plan 2006 & Alterations : Final Composite Plan : March 2007
page 45
Visitor Facilities and
Attractions
4.20 One of the key objectives in the "Regional Tourism
Strategy for Cumbria" is the development of a greater
range of all year round and wet-weather attractions such
as museums, exhibition areas and indoor leisure facilities.
This sort of development may be appropriate in larger
settlements such as Kendal, Ulverston and Grange-overSands, and in exceptional cases, for example, where it is
linked to an established ‘‘heritage’’ site or facility, subject
to details of siting, access, parking etc, (see also Policy
C14) or well related to a major communication route.
However, elsewhere, the potential impact of large scale
visitor attractions on the open countryside can be
significant and will, therefore, not be permitted.
4.21 Proposals for development of new large scale
attractions such as holiday centres, theme parks and
wildlife centres which are unrelated to the area will be
discouraged. Smaller scale visitor attractions particularly
those involving local skills or crafts and which are linked
to the culture of the area and the community will be
allowed subject to suitable siting, design, access, parking
arrangements etc. Wherever possible, use should be
made of existing buildings to house attractions and new
buildings will be subject to strict control in order to
minimise any visual impact. The Council will also have
regard to the likely requirement for directional and
advance signs to the attraction and their potential
environmental impact.
page 46
Policy T10
Chapter 4 : TOURISM
VISITOR FACILITIES AND ATTRACTIONS
The development of large scale visitor attractions
will not be permitted outside the towns of Kendal,
Ulverston and Grange-over-Sands, although there
may be exceptional circumstances, for example,
where it is linked to an established ‘‘heritage’’ site
or facility, or well related to a major
communication route. Elsewhere, small-scale
tourism attractions will be acceptable. In all cases,
permission will be subject to meeting the following
criteria:
(a)
the development is connected with the
physical or historic heritage of the area, or
meets an identifiable gap in terms of leisure
provision;
(b)
the scale, location, design, materials and
requirement for signs would not adversely
affect the character and appearance of the
landscape or built environment;
(c)
the development will not have an adverse
impact on residential amenity or nature
conservation interests;
(d)
there would not be significant adverse
impact on the local highway network and
the access and parking arrangements are
acceptable; and
(e)
as far as possible, use is made of existing
buildings - particularly redundant agricultural
buildings in the countryside.
South Lakeland Local Plan 2006 & Alterations : Final Composite Plan : March 2007