Over the last decade changing social and economic trends have resulted in more time being made available for recreation. Its importance for mental and physical health is becoming widely recognised. More people are taking part in active or passive leisure pursuits in both urban areas and the countryside. This has considerable land use implications as some of the most popular recreational pursuits require extensive areas of land which cannot easily be found within the built up area. Whilst the countryside provides a popular focus for leisure facilities, there is still a need to retain open space in its variety of forms, within the urban areas, especially as it contributes to peoples quality of life and helps to boost the economy.

Trends in leisure and recreation are closely linked to changes in the economy and society, as demand depends on factors such as demography, disposable income and the level of unemployment. However,  in recent years, all age groups nationally showed an increase in their participation in sport (Priorities for Progress NCSR 1994).

Government Guidance (PPG 17) suggests that proposals in local plans should cover issues such as mainstream as well as specialist sports facilities, the needs of elderly and disabled people, the availability of public rights of way and the provision of playing fields. In addition, the protection of public and private open space and other land of recreational, conservation, historical or amenity value is highlighted. Planning Departments are urged to liaise with other departments (See Para 8.16,8.17) which have an interest in sport and recreation, particularly education, e.g. the dual use of school facilities (See CF8).

The emphasis in national policy is on sport and recreation. General recreation or the provision of cultural facilities are not dealt with as policy issues. However, many cultural facilities are located in main town centres and Strategic Guidance (RPG1) does suggest that UDP’s should consider how leisure elements in existing shopping centres can be encouraged , in order to add to their variety.

In urban areas the relative scarcity of open land suggests that existing provision should be protected and schemes for the dual use of school facilities should be considered (See CF8, Para 8.16,8.17). Outside of the urban area, authorities should consider the scope for encouraging recreational facilities and increased public access to open land, where this would not adversely affect conservation and agriculture (PPG17). With national and local government support, the Countryside Commission and the Forestry Commission have launched a joint programme of twelve Community Forests throughout England.  Locally, the Great North Forest (See CN15) will be a major resource for both informal and active sport and recreation. Low-key, informal recreation will be appropriate throughout the Forest area, while more formal provision, or higher intensity activities, will need careful location, design and management to avoid undue intrusion or conflict with other interests, including agriculture.  Outdoor recreation may offer a means of improving the environmental quality of the Green Belt and other areas of countryside as advised in strategic guidance for Tyne and Wear.

In addition, one of the main aims of the Sports Council is to encourage mass participation in sport and recreation. The Northern Council for Sport and Recreation's (NCSR) Strategy highlighted participation rates and areas of deficiency in provision throughout the region (NCSR Priorities for Progress 1994). Participation rates for the Northern Region compared to England show that men's participation is generally above the average for England for indoor sport but below the average for outdoor activities, whereas women's is significantly below the average in both cases. Indeed the Region has one of the biggest gender gaps in England, of around 15% particularly with regard to outdoor sport.

It is the view of the NCSR that, over the longer term, first priority should be given across all areas of sport to meeting the needs of young people and that this should be reflected in the planning process of all agencies (NCSR A Strategy for Sport in the Northern Region 1994 - 1999). People who exercise regularly in their youth are more likely to continue or resume exercise in later years, and to benefit from a better quality of life as a result.

The NCSR has also identified groups in our population which remain under represented in sport, particularly women, people with disabilities and black and ethnic minorities. Local authorities are therefore encouraged to develop women's participation by promoting childcare facilities at leisure centres; 'women only' provision; encouragement for single parents and women on low incomes as well as convenient and safe public transport.  A recent review by the NCSR found that progress in identifying the needs of people with disabilities, has been somewhat sporadic, isolated and uncoordinated. As a result this group has also been identified as a priority.  People from black and ethnic communities are also under represented in sport in the Northern Region, and the isolation of these communities tends to accentuate the discrimination against them. This emphasises the need for positive action to overcome barriers. Another issue in this context could be the projected rise in the numbers of older people in the City in the future. This will create a need for leisure facilities to cater for this group.

Although the provision of many leisure facilities can be commercially viable, many activities depend heavily on subsidy either from public funds or private sponsorship.  These have been supported by grants from the Sports Council who now administer the National Lottery Fund for Sport.  In recent years these sources have contributed funding for a variety of schemes in Sunderland, including £600,000 for further development of the Puma Tennis Centre and £100,000 for an artificial football pitch and learner ski slope at Silksworth. The changing balance in the way that leisure activities are funded will affect the way that future provision is made, and in how facilities are made accessible to the users.

There has been quite a substantial growth in the City's population over the age of 65, which now represents about 17% of the total population of Sunderland (See Chapter 2 Table 2.3). The UDP Strategy projection forecasts a rise of 12.7% in the 16-24 age group in the period from 1991 until 2006, which is one of the highest participation groups in sport.  The number of OAP’s will increase by around 3.5% over the same period (See Chapter 2, Table 2.6).  These trends will have an effect on the demand for facilities.

Nationally there has been a serious loss of playing fields in urban areas due to pressure for development. Unfortunately the City of Sunderland has not escaped this trend.  In spite of extensive new provision, playing fields overall have declined since 1983 by 2.5%, a net loss of 5 hectares.  In order to improve the provision of land for outdoor sport for youths and adults, the NPFA minimum standards of 1.6 - 1.8 ha per 1000 population have been adopted in policy L5 as a long term aim.  In the Plan period the Council will aim for an interim, minimum standard of 1ha per 1000 population for youth and adult use (See L4).  Land for outdoor sport includes playing pitches, greens, courts, and athletics tracks.  Pitches covered by this policy can be owned by the local authority, or voluntary and private sectors which serve the leisure and recreation needs of their members or the public.  This includes only a small number of school pitches in dual use.

The existing level of provision remains at only about 40% of that recommended by the NPFA, and 30 % less than the City's adopted minimum standard.  These statistics indicate that there should be continued emphasis, within open space provision, on the development of active playing space. It is also crucial that existing playing fields are protected.

Government Guidance (PPG17) urges planning departments to liaise with other departments with an interest in sport and recreation, particularly education. Local authorities have for some years, been encouraged to make use of school premises for community recreation purposes, and there is evidence that this is happening. Once they are built upon, it is unlikely that school playing fields can be recovered. Given the projected increase in school rolls during the 1990's, and the continuing recreational and amenity value which these sites provide, it is important that they are protected as a valuable community resource.

21.8% of the City's population is aged 15 or under (See Chapter 2 Table 2.3), therefore a variety of play facilities are needed to cater for the requirements of the different age groups. The Council's strategy for children's play is based on a hierarchy of provision (See L6). District provision will be associated with major recreational areas; satellite provision should be within easy walking distance of all households and cater for children up to 16 years old, and doorstep provision should be spread throughout housing areas for children up to 11 years (City of Sunderland Strategy for Children’s Playspace 1991).

Amenity open space provision includes areas maintained for informal play and passive recreation such as formal and informal parkland, ornamental gardens and casual playspace. The decline in playing fields in the past decade has not been reflected in a corresponding loss of amenity open space.  On the contrary, the hectarage of amenity open space has shown a healthy increase so that almost all of the open space zones have achieved the Council's minimum standard of 2.0 Ha per 1000 population laid down in 1983. This can be attributed to the fact that a high proportion of amenity open space is in Council ownership and therefore more resistant to development pressure, and to the fact that any losses have been more than offset by the creation of new open space through land reclamation. This has brought about a very substantial improvement in the quality of the City's environment, leading both to a better quality of life for its residents and economic benefits resulting from an improved environment.

Changes in amenity open space vary significantly between sub areas. The amount of green space in Houghton and Hetton has more than doubled in the last 10 years (mostly due to derelict land reclamation). In Washington, there has been a modest increase of 3%, though this is not sufficient to keep pace with population growth, so per capita provision has fallen slightly since 1983. The situation in the north and centre of Washington is such that further potential open space will be needed should the population increase in the future. The area of amenity open space in North Sunderland has increased over this period by 25% and in south Sunderland by 17%. Hetton, where provision of amenity open space is at 7.8 ha. per 1000 , exemplifies the problem that further provision of open space will not necessarily be where it is most needed.

Regionally important leisure activities can have a positive impact on the City's economy. Sunderland has several sports centres which attract visitors from a wide area, notably Crowtree Leisure Centre, the Northumbria Centre and Silksworth Sports Complex. More specialist activities can be pursued at Warden Law (motorcycling) and Hetton Lyons (cycling and watersports).

An 18 hole golf course is now open at Elemore with a nine hole course at Fulwell planned. There are also private clubs at Washington, Houghton-le-spring and Wearside (Coxgreen). Demand for further courses will need to monitored throughout the plan period. Golf courses can open up the countryside for recreation, but they can also have a significant impact (Open Space Recreation 1994). Government guidance (PPG17) advises that they should be located and designed to ensure harmony with the surrounding countryside and to conserve the natural environment.

Council policy for allotments covers not only horticultural allotments but also those devoted to a wide range of associated uses, including the keeping of pigeons, poultry, pigs and other types of livestock.  The report's main aim was to achieve the necessary quantity of good quality allotments, well distributed throughout the District. The former coalfield areas of Sunderland tend to be very well provided for in terms of the distribution of allotments, although there is potential for upgrading of these facilities (1980 Allotments Report). In 1995, Council administered allotments were over 98% occupied and Washington and some urban areas south of the river also have large waiting lists. The Council has a running programme of improvements which provides for upgraded fencing, paths and water supplies.

Within the City a wide range of cultural activities is available catering for both local and regional needs. The Sunderland Empire Theatre is perhaps the best known and could be the impetus behind developing part of the City Centre as an 'Arts Quarter' as suggested in the Councils Arts Audit. Other centres for the performing arts can be found at the Sunderland Drama Club's Royalty Theatre, and the Washington Arts Centre as well as numerous school halls and churches throughout the City. 

Additionally the new City Library and Art Centre on Fawcett Street provides a regional centre of excellence, for the display of contemporary arts and crafts (See Para 7.21). There are however, a number of activities which a City the size of Sunderland might normally expect to provide and which are not available in the North East or are only provided in the Regional capital of Newcastle. Further facilities could be needed to provide for a wide range of activities including live music concerts, prestigious sporting events requiring good spectator facilities and larger scale conference and exhibition facilities.

Whilst the conservation of the rural environment (See Chapter 11) is important, consideration must be given to the extent to which the public can enjoy that environment, and to the contribution which recreational uses can make to its conservation. Rural areas can also absorb certain activities inappropriate to an urban setting such as clay pigeon shooting, war games, and equestrian activities. Therefore there is a need to balance agricultural activities with pressure for leisure uses

The twin resorts of Roker and Seaburn with their sandy beaches separated by a rocky headland offer an unsurpassed recreational facility for both residents and visitors. The Riverside is emerging from its industrial past and the Wear Heritage Trail links the incised gorge of the lower reaches with the unspoilt valley west of the A19.  Issues to be addressed include the development of the sea front, the amenity interests of the local residents, and specialist provision for water based sports and pastimes.

The main components of the strategy have been determined as:

• the need to provide for a wide range and high standard of recreational, sporting, cultural and community facilities;
• the improvement of access to the countryside

The proposals for leisure seek to ensure that the residents of Sunderland and potential in-migrants and visitors can enjoy facilities accessible to all those wishing to participate, each at their appropriate level of competence.  It is necessary to protect existing open space and playing fields by resisting development pressures. At the same time every opportunity must be taken to improve the quality of existing facilities and to create additional playing fields and amenity areas in those where these facilities are most deficient. In the longer term it will be necessary to consider increasing the level of provision closer to the national standards. Continued improvement in the availability of indoor facilities will be sought, subject to expenditure constraints, and through the pursuit of dual use wherever possible.

Countryside recreation will be promoted by the improvement of the network of paths and multi-user routes, linking country parks, nature reserves and areas of publicly accessible woodland along natural features such as rivers, streams and the magnesian limestone escarpment.

The provision of adequate leisure facilities will contribute to the attraction and retention of residents and assist in reducing out-migration. It also helps achieve the objectives of urban and economic regeneration; provides green spaces in the urban area; assists the economy and can improve the environment of rural areas.  In addition, a balanced distribution of facilities helps to minimise the need for unnecessary travel. Overall this policy supports the Leisure objectives of the Plan by encouraging extensions in both the range and standards of facilities and promoting public enjoyment of the countryside.

It is increasingly recognised that there are significant health benefits associated with regular physical activity. This issue is particularly important in the City and Northern Region, as it has the highest rate of all cause mortality and is regarded as one of the most deprived parts of the Country. Coronary Heart Disease is the leading cause of death in the Northern region amongst men over 45 and women over 65. Increased physical activity is viewed as critical in the process of reducing the level of risk. In this way promoting sport and recreation development will also supports the aims of the Council's Healthy City Strategy.

Sport and recreational provision is also to be supported because of it's significant contribution to the regional economy. Provision of facilities such as these can play a part in the regeneration of the City, as they are a key factor in attracting inward investment. A study carried out for the Sports Council established that if participation levels could be increased in the Northern region to the National average, it could create an extra 3000 jobs (NCSR Priorities for Progress 1994). Additionally, spending in the region on sport related holidays is estimated at £92.5 million.  Tourism is likely to continue to be a growth industry, with activity based holidays and day trips increasing as a proportion of the overall total, helping to diversify the economic base of the City.

Indoor sports provision ranges from large multi-purpose facilities to small, local sports halls, ensuring their wide availability.   The Council has therefore recognised the necessity for a hierarchy and, in the first Open Space Recreation report, gave priority to the provision of district centres at Washington, Houghton/Hetton and Fulwell to complement that at Crowtree.  The Seaburn Centre and the Aim High Centres serve North Sunderland so that the upper end of the hierarchy is now much better developed than it was a decade ago. Further provision is increasingly being met by more specialised facilities such as the Puma and Invicta Centres.

The NCSR Facilities Planning Model, when applied to the District, indicates a need for a further fourteen local halls (each being the equivalent size of four badminton courts).  Given 100% community access to school facilities (some of which would have to be upgraded for the purpose) the requirement would drop to eight.  Due to the uncertainties over dual use because of local management of schools, it is more realistic to assume 50% access which would mean that a further twelve sports halls could be needed.

The same Planning Model shows that in a ranking of Northern Region authorities, Sunderland came second last in the shortfall of public provision of sports halls. Additionally, the City had the greatest estimated shortfall in provision of swimming pools.  Priorities for further provision of local multi-purpose halls are:- Sunderland north west and the western and southern part of Sunderland City, stretching from South Hylton to Ryhope.  Much of this, especially Doxford Park, is outside a 3.5 km radius of Crowtree Leisure Centre (the distance used for urban facilities in the NCSR's model).

Of the individual facilities considered above, a swimming pool is required for the southern part of Sunderland urban area; two six rink indoor bowls centres, (one in Washington); and eight squash courts, though their provision will depend very much on the availability of future resources. Specific sites will, where possible, be identified in Part II of this Plan.

Within the Region in recent years, a variety of agencies has been involved in the provision of sports halls, including voluntary and community groups and the commercial sector as well as local authorities. Implementation is likely to be limited however, by the availability of financial resources and the changing role of the Council to enable rather than provide such facilities.  Other facilities provided by employers include the Nissan Sports Centre.  The City Council will pursue all avenues in order to secure quality leisure facilities for the residents of Sunderland, such as the Raich Carter Centre and will investigate the potential for obtaining grants for this purpose, e.g. National Lottery, Millennium Funds, the Lawn Tennis and Football Associations.

An attractive countryside and urban environment, well provided for in recreational facilities, not only improves the quality of life of residents, but also helps to promote the area to potential investors, tourists and visitors.  Sunderland is well located in this respect.  The City already boasts recreational facilities of regional importance such as Silksworth Leisure Complex, Seaburn Ocean Park, the Empire Theatre, and the Northumbria Centre in Washington. In terms of new facilities the Great North Forest will attract visitors and the reclamation of the former Herrington Colliery will allow the creation of a countryside park of regional significance.  An important consideration in the location of these facilities is accessibility to the Strategic Road Network and public transport facilities.  Policy T14 defines what is required in terms of the location of new development and public transport accessibility.  A concentration of facilities in particular locations such as Sunderland City Centre, (where the Councils Arts Audit suggested the development of a 'Leisure Quarter), or in rural areas around Penshaw Monument where other recreational facilities are provided or are proposed, helps to give them more regional impact while protecting other areas from the adverse effects of traffic generation and increased activity.

Source: Open Space Recreation Report 1994

The overall existing standard of outdoor sport in the City for youth and adult use is currently 0.7 ha. per 1000, and therefore below both the long term adopted standards and the interim standards described in policy L4 above.  The reduction in playing fields is due in part to the decline of traditional industries which has led to the loss of workplace clubs often subsidised by the employer.  There are variations throughout the District but the urban parts of Sunderland town are the furthest from achieving either target.  The NPFA standard is a long term goal but at this time it is only realistically achievable in new large scale developments.  During the Plan period the Council will endeavour to achieve at least the interim standard, subject to the availability of resources. The Council has increased the provision of playing fields and open space through the reclamation of derelict land.  It is imperative that as well as providing additional sites, every effort is made to ensure that existing facilities are not taken out of recreational use.

Since 1983, the Council has implemented a hierarchy of sports provision, encompassing both playing fields and indoor facilities. The scale of provision varies from major areas of City-wide and sub-regional significance such as Silksworth, down to smaller facilities such as Houghton Recreation Ground and single pitches located in housing estates or villages, which are primarily intended to serve local needs. 

Open Space Recreation  Report 1994

Further development of participation by disadvantaged groups should be encouraged because of their relative lack of involvement in sport and recreation compared to the average. In particular the gender gap between women's participation and men's is significant in the Northern Region. Young people, women, people with disabilities and people from ethnic minorities are all identified as priority groups for targeting by the NCSR, for which provision should be made under this policy (See Para 8.7, 8.8).

The development of this hierarchy is a long term project that the Council continues to work towards despite a number of constraints.  Since 1984, over £22 Million has been spent on creating and improving facilities for active and informal recreation for the people of Sunderland. More than £10 Million has been spent on a comprehensive programme of land reclamation for open space and playing fields of all types. An acceleration of reclamation activity in recent years has meant that over 70% of this money has been spent on large scale schemes, such as Hetton Lyons Park. , The Council has spent a further £4.7 Million on outdoor facilities in parks and open spaces in recent years. (Open Space and Recreation Report 1994).

Government grants are available for a range of projects related to sport and recreation through the National Lottery Sport Fund. In the two financial years 1990/91 and 1991/92, about £0.5 Million grants in total were received by the Council, plus over £3 Million of Derelict Land Grant. More than half of this came from the Urban Programme, with further substantial amounts from the Sports Council, the European Regional Development Fund and the Countryside Commission.  The private sector can provide facilities either as part of comprehensive development schemes or through the planning obligation procedures under Section 106 of the Town and Country Planning Act 1990.  The provision of playing fields is additional to the standards for amenity open space required under Policy H21.

Source: Open Space Recreation Report 1994

The hectarage of amenity open space has shown a healthy increase, so that almost all of the City has achieved the minimum standard of 2 hectares per 1,000 population laid down in 1983. Unfortunately it is not usually possible to use surplus amenity space for other uses such as playing fields, as they are often too small or with steep gradients.  Furthermore, much of the recent provision has been the result of reclamation works on derelict industrial and mining sites, thus it is not necessarily well located in relation to where people live. In order to address this problem, the Council has, as suggested by Planning Policy Guidance Note 17, adopted a hierarchy system of classification to help identify areas which would benefit from improved provision.  This, as already mentioned in paragraph 8.22 is based upon an example from the Greater London Development Plan, but altered to reflect the local circumstances, including: the closer proximity of most residents to the countryside and coast; together with the fact that there is a smaller urban mass associated with Sunderland than Greater London; and the need to aim for a realistic level of provision in terms of land and monetary resources.  This hierarchy is as detailed below:

• District Open Space: natural or formal landscape of at least 30 ha. serving a wide catchment area and used for occasional visits.  Each household should be no more than 2.5 km from a District Open Space.
• Local Parks of at least 10 ha. which provide for a range of activities including active recreation and children's play. Each household should be no more than 1.0 km from a Local Park.
• Neighbourhood Parks and Open Spaces of at least 2.0 ha. in size and offering a range of facilities.  Each household should be no more than 0.5 km from a Neighbourhood Park or Open Space.
• Pocket Parks sites of less than 2 ha. found in residential and city centre areas, used for informal recreation and children's play.  Because they meet day to day needs, these spaces should be protected.
• Linear Open Spaces such as disused railway lines, denes, riverside areas and the coastal strip which should be protected and enhanced.

Apart from the special cases in smaller villages such as Springwell and East Rainton, and parts of Northern and Western Washington, the proposals in the area sections of the Plan will rectify most of the deficiencies in open space in terms of District and Local Parks.

In terms of quality, District open spaces should provide a natural setting - woodland or grassland- whereas the smaller parks outlined in the policy provide a more formal landscaped environment.  They should all provide pleasant surroundings with well maintained facilities where people can enjoy their leisure time.  Where circumstances permit, the potential for natural management and creation of habitats in all open spaces should be considered, in accordance with the provisions of policy CN18.

With regard to distribution, areas of deficiency in one or more categories of open space have been identified in Table 8.2.  Opportunities for new open space to rectify these deficiencies will be identified in the Part II area proposals.  Throughout the plan period the quality of open space will be reviewed and improvements made when resources permit. This could be achieved through urban regeneration grants such as the Single Regeneration Budget and small/medium clearance schemes in urban and coalfield areas. This policy gives an overall standard for the City as a whole . The amenity space requirements of individual development sites are indicated in the Housing Chapter, and will allow for the provision of neighbourhood/local open spaces by developers as part of new housing schemes (See H21).

The Council's approach to provision of children's playspace is based on a hierarchy of provision similar to that for open space.  District provision will be associated with major recreational areas; satellite provision should be within easy walking distance of all households and cater for children up to 16 years old; and "doorstep provision" should be spread throughout housing areas for children up to 11 years of age (Children’s Playspace Report 1991).  This policy establishes the overall city wide expectations. Housing Policy H21 gives developers guidance as to how this will be interpreted on new housing sites of 10 or more family dwellings. The standards set out in this policy are complementary to those on amenity open space contained in this policy L5.

Land for recreation is a valuable asset to the community, but it is often under threat from developers. The use of land as open space is no less important than other uses, and therefore planning authorities are required to seek to achieve a reasonable balance between the need to make adequate provision for development in urban areas and the need to protect such land from development, having regard to local circumstances. The Council has sought to set the standards for open space and playing field provision in policies L4, L5, and L6 with the aim of ensuring that land which has recreational or amenity value will be protected, particularly where it is within an area of deficiency, or would adversely affect the wildlife habitat of a designated site (B3).

Playing fields attached to educational establishments are of importance to the recreational needs of children and students. In terms of the wider community, it provides not only greenery and visual relief within neighbourhoods but also formal recreation through the dual use of facilities. Where school sites become surplus, their open spaces can become a necessary community resource. Previously, when playing fields attached to schools came under the control of the local authority, it was possible to resist development pressures. As this is no longer the case, this policy is necessary to protect these open spaces so that they remain a community asset. Under the provisions of this policy, the Council considers that extension and / or improvement of current uses on the site is one of the types of development which would be acceptable, subject to other provisions of the plan.  The policy is intended to ensure that wherever possible the land is retained for open space uses once the current uses are no longer relevant but without prejudicing the present occupiers  scope to improve or further develop facilities which are already present on the site. Therefore, criterion (ii) applies only to playing fields and open space attached to educational establishments.

In certain cases, a proposed development might be able to offer the opportunity for alternative provision with comparable community benefit.  In this case exceptions to the policy would be considered, providing the amount, quality and accessibility of the replacement site equated with existing provision. Agreements under Section 106 of the Town and Country Planning Act 1990 (Planning Obligations) would be used to achieve implementation of this policy.

There is a continuing demand for allotment gardens and pigeon or livestock-keeping sites in all parts of the District. The Council is committed to meeting such demand as far as possible and to improving allotment provision, particularly in areas of shortage such as Washington.  Although only six sites are designated as statutory allotments (which require consent from the Secretary of State for their disposal) it is intended to apply similar standards of protection to all allotment sites, because of their social benefit especially in the inner urban and coalfield areas.  This means that any proposal to develop an allotment site for other uses should be accompanied by:-

proposals for a suitable replacement site, including location maps and the areas of both sites.  The proposed site should be the same as, or greater than, the existing one; within 1.2km (3/4 mile) of it; and suitable for cultivation with an appropriate depth of top soil, a water supply, appropriate boundary enclosures, parking and servicing facilities;

Only in exceptional circumstances would the disposal of a site be permitted before a replacement site is fully established. In 1980 the Council identified a number of allotment sites with a limited life expectancy, many of which have now gone out of use, but some still remain (See Appendix A 1980 Allotments Report). These will not be protected by this policy.  No action will be taken to discontinue these however, until firm proposals for an alternative use are agreed.

Improvements to general living standards and levels of personal mobility - especially car ownership - have led to increased demand for informal leisure opportunities on the urban fringe and in the countryside.  The Council will, as resources become available, develop a range of recreational opportunities, including countryside parks, woodland, picnic areas and facilities for water based and other outdoor leisure activities linked by a network of paths and bridleways. Sunderland has approximately 250 km of footpaths and bridleways within its boundaries. Walking, cycling and horse riding are popular activities in themselves but also have a particular role in bringing the countryside within reach of a larger number of people (See T8,T9). Use of rights of way will be encouraged through the provision of signposting and on-site information.  This can almost double the use of a particular route.  A number of guides and interpretative leaflets have been produced to promote existing paths.

Further opportunities exist to create countryside parks, woodland and picnic areas. Schemes in programme,  include Fulwell Quarries and Elemore Colliery as well as Herrington Colliery, where reclamation should allow the development of a country park of regional significance providing facilities for passive recreation and for more active sports like horse riding and possibly golf. Implementation of the Great North Forest Plan may also create further opportunities in this direction.

The Council is keen to continue improving access to the countryside. It will explore the possibilities of using former railway lines as long distance footpath/cycleway/bridleway routes, and will liaise with farmers over establishing rights of way.  This approach supports Council Policy which recommends the linking of several recreational facilities by a network of footpaths, heritage trails and bridleways (countryside and Access Strategy 1994).  In this way access to the countryside is increased whilst the rural environment is protected. In addition this is complementary to policies in the Transport Chapter.

The Council is also aware that the demand for recreational facilities should be balanced with other pressures on the countryside, in particular the interests of nature conservation and agriculture.  It is hoped that increased access can be achieved and that by improving the range of facilities, it will be possible to cope with an increased volume of visitors without significant deterioration in the quality of the landscape/environment.

The Council's Countryside Team will implement this proposal using funding from the Countryside Commission and Capital Programme as well as grants from the SRB and City Challenge monies.  £200,000 has been allocated for the implementation of Heritage Trails from the SRB.

Golf has become increasingly popular resulting in greater demand for golf courses in the countryside.  However, Government advice (PPG17) stresses that each proposal for a new golf course should be located and designed to ensure harmony with the surrounding countryside, particularly in the Green Belt, and to conserve the natural environment. Each proposal should contain full details of the siting and the impact of the development proposed, including the effect on public rights of way. Any significant associated developments , such as hotels, should be considered on their own merits.

Regionally important leisure activities can have a positive impact on the City's economy. Current provision is described in para. 8.24. The Royal and Ancient suggests that an additional 63, 18 hole golf courses are required in the North East between 1989 and 2000, based on a standard of one course per 25,000 population. However the NCSR suggests the provision of between 3 and 8, 9 hole courses would apply in Sunderland (Open Space Recreation Report 1994). Even if this standard is not achieved, further golf courses will make considerable demands on land throughout Sunderland's countryside.

Consequently, there is a need to locate and design golf courses to be in harmony with the landscape, and to take special care with applications in designated areas.  The Countryside Commission advises that golf courses should make a positive contribution to the environment. It suggests that landscapes that have been damaged by mineral working or intensive agriculture are particularly suitable, as are Community Forests which offer scope for creative conservation. The requirement to enhance the environment should therefore be made clear to applicants, and included in any design briefs. Where consent is granted appropriate management of retained and created habitats and landscape features, should be included as one of the planning conditions and where necessary made subject to a section 106 agreement. Buildings necessary for the operation of the golf course should not detract from the locality and where relevant, should be in sympathy with local architectural character. The following other uses would not normally be acceptable as part of a golf course development:

• Housing, hotels, conference facilities;
•  “Other recreational facilities”, such as swimming pools, tennis courts or health spas.

Exceptions to this could be considered if the golf course were built to a significantly high standard as to attract a significant number of visitors from outside the region who would need such accommodation, but would still need to accord with other policies of this Plan, particularly those applying to the Green Belt. (Countryside Commission, 1992).

Two of the most dramatic and attractive elements of the City's environment are the coast and the riverside. The coast falls into two sections, north and south of the River Wear. This Policy is complementary to EN13 which sets out the Council's intentions regarding the defined coastal zone.

North of the River is the Roker/Seaburn area which provides a mixture of residential, commercial and entertainment facilities. It has a catchment area of 450,000 people within half an hours driving time and is a popular destination for day trippers with a wide range of seaside facilities. The developed area is for the most part to the west of the A183, outside the protected coastal zone. The development of Seaburn Ocean Park, has revitalised the seafront and acts as a focal point for leisure activities for the sub-region. Three long distance footpath/multi-user routes (NA35) are proposed to converge on this stretch of coastline and a park and ride facility is proposed to facilitate access for major events at the seafront (NA34).

The character of the southern (Hendon/Ryhope) part of the coastline is less commercial and more suitable for informal activities such as walking and fishing.  Hendon Cliff Top has been partially reclaimed creating the basis of an important recreational resource for Hendon and the East End. The Council will investigate further environmental improvements, including the reclamation of disused railway lines, on the landward side, and improvements to the approach roads and paths in order to increase this area's potential for informal recreation (EN13).

Water sports have all enjoyed an increase in popularity over the past decade.  DoE advice (PPG17) suggests that development plans may encourage the imaginative use of redundant mineral workings, disused commercial docks and unused agricultural land near water to provide moorings and watersports facilities. The Council has promoted the development of a number of varied water sport facilities along the coast, river and inland water features.  Examples include the Roker water sports centre providing sailing, windsurfing and canoeing between the piers, and facilities at Claxheugh for the South Hylton Rowing Club and the Scouts. Indeed, with the improved water-ski access and facilities at Claxheugh, the river will be used effectively and efficiently for all watersports and quiet leisure interests.  Additionally, facilities for canoeing, windsurfing and other uses have been provided on lakes created through the reclamation of derelict land at Silksworth and Hetton Lyons.

Watersports participants need changing facilities, car parking areas, social facilities, training areas and chandlery services.  Many of the existing boat clubs offer excellent facilities , but the demands upon these are becoming stronger.  In improving sporting and recreational facilities, this policy will help to benefit the Regional economy, through development of the leisure industry, It will also present a more attractive image to inward investors thereby supporting the local economy.

The Council will encourage non-powered watersports in appropriate locations/zones where the environment can sustain the activity.  However, powered watersports are normally incompatible with other river users and generate high levels of noise pollution. In particular motor boats can have a detrimental effect on a river environment by accelerating erosion of the river banks. Facilities for powered watersports can only be considered where conflict with other users and adverse impact upon amenity and nature conservation interests can be acceptable.  Indeed, powered watersports are best suited to the sea or to a restricted and managed part of the River Wear, away from these conservation interests.  The area designated for water-skiing is to be managed by a club which will liaise with the Sunderland Watersports Forum.  It is also the intention to establish an activity area off Hendon Promenade for motorised watersport activities, in particular personal watercraft.