MINIMUM STANDARDS FOR OPEN SPACE

CHAPTER SIX CURRENT UK AND SCOTLAND OPEN SPACE STANDARDS

Introduction

6.1 The absence of a nationally recognised and widely applied set of standards for open space has been debated for many years and whilst many organisations ( NPFA / English Nature / Woodlands Trust / individual local authorities) have established a framework for standards applicable to either elements of open space (play / playing fields) or local authority areas no formal and national standard has been established.

6.2 In recent years some significant progress has been made in raising the profile of open space including the publication of Planning Advice Note: 65, the establishment of specialist organisations, and better information dissemination. But there is still a significant time lag between achieving solid progress in formalising strategies and delivering meaningful improvement in open space provision and management. The latter may not be entirely surprising given the resource requirements, budget lead times and consultation requirements in developing local authority open space strategies, and given PAN:65 was published in January 2003.

6.3 Consultations with local authorities and stakeholder groups have identified the potential relevance of defined standards and established a broad level of support for standards as a potential mechanism to bring clarity and consistency to open space provision. A range of non-statutory standards exist but the value and relevance of these was doubted if not linked to local need, opportunity and consultation. It is acknowledged however that 'one size' cannot fit all requirements and that a standard or set of standards could only play a part in properly developed open space strategies and action plans.

6.4 This chapter is intended to set out the range of standards prepared by various organisations and applied by local authorities throughout the UK. The information has been gathered through the literature review, telephone consultations and the questionnaire responses.

Existing Non-Statutory UK Open Space Standards

6.5 The literature review and telephone consultations identified a number of standards prepared by organisations such as English Nature and the National Playing Fields Association. There is no current statutory requirement for local authorities to adopt these standards, though they are intended to guide decision and policy making. The application of the existing non-statutory UK standards is limited to the following PAN 65 categories:

Public Parks and Gardens
Amenity Greenspace
Play Space for Children and Teenagers
Sports Areas
Natural / Semi-natural Green Spaces

6.6 The following section summarises the current open space standards that are available for use by local authorities and other stakeholder groups across the United Kingdom.

National Playing Fields Association - The Six Acre Standard

The NPFA recommends a minimum standard for outdoor play space of 2.4 hectares (6 acres) for 1,000 people.

Outdoor playing space is not the same as public open space. It is space that is safely accessible and available to the general public, and of a suitable size and nature, for sport, active recreation or children's play. It is a significant component, but not the only form of open space. The standard should be broken down into 1.6 hectares (4 acres) of outdoor sport space and 0.8 hectares (2 acres) of Children's playing space.

Summary

Primarily a quantitative standard, with qualitative recommendations for play facilities
Applies to outdoor sport and children's play space
Details a hierarchy of children's play facilities LEAPs (Local Equipped Areas for Play), NEAPs (Neighbourhood Equipped Areas for Play) and LAPs (Local area for Play)

English Nature - Accessible Natural Green Space Standards in Towns and Cities

The ANGSt model requires:

That no person should live more than 300m from their nearest area of natural green space of at least 2ha in size
Provision of at least 1ha of Local Nature Reserve per 1,000 population
That there should be at least one accessible 20ha site within 2km from home
That there should be one accessible 100ha site within 5km
That there should be one accessible 500ha site within 5km

Summary

Primarily an accessibility standard (using distance thresholds), with quantitative hierarchy of open spaces
The standard applies to natural / semi-natural spaces

The Woodland Trust - Woodland Access Standard

The Woodland Trust Woodland Access Standard requires:

That no person should live more than 500m from at least one area of accessible woodland of no less than 2ha in size
That there should also be at least one area of accessible woodland of no less than 20ha within 4km (8km roundtrip) of people's homes

Summary

Primarily an accessibility standard (using distance thresholds), with quantitative hierarchy of open spaces
The standard applies to natural / semi-natural spaces

Civic Trust - Green Flag Award

The Green Flag Award is the national standard for parks and green spaces in England and Wales. The award scheme began in 1996 as a means of recognising and rewarding the best green spaces in the country. It was also seen as a way of encouraging others to achieve the same high environmental standards, creating a benchmark of excellence in recreational green areas.

Quality criteria for the award:

A Welcoming Place
Healthy, Safe and Secure
Clean and Well Maintained
Sustainability

Conservation and Heritage
Community Involvement
Marketing
Management

Summary

Primarily a quality standard

National UK Open Space Standards

6.7 The telephone consultations and literature review established that in the UK, only Rural Northern Ireland and Wales have established a set of national open space standards. The boxes below set out these national standards:

Rural Northern Ireland

The Department for the Environment for Rural Northern Ireland sets out the planning policy for Open Space, Sport and Outdoor Recreation (2004).

The policy relates to the following areas:

Protection of open space
Provision of public open space in new developments
open space should comprise of 10% of the total site area
15% for residential developments of 300 units or more
less than 10% where the development is located within a town or city centre, is close to an existing public open space, provides accommodation for special groups (such as the elderly or people with disabilities) or incorporates a Home Zone concept
Outdoor recreation in the countryside
Intensive sports facilities
Noise generating sports and outdoor recreational activities
Development of facilities ancillary to water sports
Floodlighting of sports and outdoor recreation facilities

For residential developments of 100 units or more, or for development sites of 5 hectares or more, an equipped children's play area will be required. The Department will consider an exception to this requirement where an equipped Children's play area exists within reasonable walking distance (generally around 400 metres) of the majority of the units within the development.

Countryside Council for Wales

The Countryside Council for Wales has prepared a practical guide to assessing the resource and implementing local standards for open space provision in Wales. This guidance adopts the English Nature accessibility standards for natural green spaces, providing guidance for its application. Refer to Section 6.2 for details. No other open space standards are presented in the guidance.

6.8 In England, consultation with the Office of the Deputy Prime Minister ( ODPM), established that the approach is to encourage local authorities to improve open space planning using incentives rather than setting minimum standards. Planning Policy Guidance 17: Planning for Open Space, Sport and Recreation concluded that national open space standards should not be set and that addressing the process by which open spaces are developed is key to the provision of quality of open spaces. Open space standards and templates should be devised from local authorities' own principles. It is the view of ODPM that a prescriptive approach will result in uniform open spaces that are not 'fit for purpose'. Similarly, it is the view of CABE Space that open space standards should be derived locally by individual local authorities. Government guidance should be in the form of the publication of a 'tool kit' to disseminate best practice to local authorities and stakeholder organisations.

English Local Authority Open Space Standards

6.9 The study involved consultation with 14 local authorities across England to establish what open space standards are used and to assess the range of approaches across England. The consultation was intended to set a context for a more detailed assessment of local standards in Scotland, included in section 5.5. The starting point for this consultation process was the local authorities, cited in PPG 17, who have made good progress with open space planning. Other contacts were made through recommendations from other telephone consultees. Telephone calls to the relevant council officers established whether standards had been set, the types of open space they apply to and if the standards are based on the NPFA 6 Acre Standard. Copies of the relevant Local Plan sections or policy documentation were provided. Table 27 below summarises the findings of the consultation.

Table 27: English Local Authority Open Space Standards

Organisation	Open Space Standard			Type of Open Space	NPFA Based
Bridgnorth District Council Local Plan Policy	Uses NPFA* Standards currently under review			Play space Amenity space	v
Cambridge City Council Local Plan Policy	Based on NPFA*. Equates to the following: Bed spaces = 160-180m ² Formal green space +150-180m ² Informal space +20-30m ² Children's play space			Play space Amenity open space	v
Enfield Council	No standards in place. Currently working on an open space strategy			-	-
Fareham Borough Council Supplementary Planning Guidance: Open Space	Uses NPFA* 1.6ha/ 1,000 people outdoor sport which splits into: 1.2ha/ 1,000 people of pitches. 0.4ha/ 1,000 people of other outdoor sports facilities 0.8ha/ 1,000 people of children's play space which splits into: 0.2ha/ 1,000 people of equipped children's play space. 0.6ha/ 1,000 people of informal play space. 0.4ha/ 1,000 people of other outdoor recreational space.			Sports facilities Play space	v
Forest of Dean District Council Local Plan Policy	Uses NPFA* Standards currently under review			Play space Amenity space	v
Greater London Authority Guide to Preparing Open Space Strategies March 2004	London's Open Space Hierarchy, based on indicative catchment for different sizes of parks.			Public parks Linear Open Spaces	X
	Over 400 ha	8km	Regional
	60-400 ha	3.2km	Metropolitan
	20-60ha	1.2km	District
	2-20 ha	400m	Local parks
	0.4-2ha	400m	Small local parks
	<0.4ha	400m	Pocket parks
	variable	where feasible	Linear Open Spaces

Organisation	Open Space Standard	Type of Open Space	NPFA Based
Greenwich Council Local Plan Policy	Uses old Greater London Council Hierarchy	-	X
Lewes District Council The Provision of Outdoor Playing Space as Part of New Residential Development Feb 2002	Based on NPFA* standards. The guidelines set out a detailed cost calculation for outdoor sports provision, informal play and equipped children's play provision per bed spaces. The document sets out the towns and villages with a shortfall in provision.	Play space Outdoor sports	v
Middlesborough Council Local Plan Policy	Uses NPFA* Applies Green Flag Standards for larger parks	Play space Amenity open space	v
Rugby Council Local Plan Policy	Based on NPFA* 20% of development area Standards currently under review	Play space Amenity space	v
Rutland County Council Requirements for The Provision of Open Space for New Residential Areas	Based on NPFA* Equates to 0.3ha of outdoor playing space per 50 dwellings.	Amenity open space Play space	v
Sheffield City Council Open Space in New Housing Development	15m ² play space for each family home. At least 10% of the site should be open space. 400m catchment area for children's play space and 1200m for youth / adult outdoors sports area.	Play space	X
Stockport Metropolitan Borough Council SPG 4 Recreational open space provision and commuted sum payments (updated Jan 2001)	Overall provision of 2.4 ha per 1000 population for active recreation. 1.7 hectares should be for formal sports provision, including: Pitches, courts and greens for public and private use for all age groups Athletics facilities Pitch and putt courses and similar facilities 0.7 hectares should be available within easy access of homes for casual play	Play space Outdoor sports Recreation and amenity open space	v
Wrexham Borough Council Public Open Space in New Housing Development	Uses NPFA*	Play space amenity green space	v

NPFA = National Playing Fields Association Six Acre Standard (minimum standard for outdoor play space of 2.4 hectares (6 acres) for 1,000 people).

6.10 Some local authority documentation provided a detailed breakdown of their open space standard, however, provided very little information to explain the process of arrival at the standard and application of it. A more detailed analysis of this process would be useful, however it was outwith the scope of this study.

6.11 The findings demonstrate that the majority of local authorities that were consulted based their open space standards on the National Playing Association Standard. However, some English local authorities have adopted the standard in principle, but have interpreted the standard to apply to either new residential development, or existing settlements or have changed the range of open spaces to which the standard applies. The range of quantitative standards applied varies enormously across local authorities, which does not appear to relate to locality.

Scottish Local Authority Open Space Standards

6.12 The literature review and telephone consultations also aimed to establish the extent to which Scottish local authorities have developed open space standards. The initial telephone consultation was based on our experience and work with local authorities on open space audits and strategies. Questionnaires sent to all Scottish local authorities asked questions about the use of open space standards and requested a copy of any standards used. Only a small number of the local authorities that ticked the box stating that they had set standards provided a copy of the standards. Table 28 below summarises the opens space standards provided by local authorities through the consultation and questionnaire process.

Table 28: Review of Scottish Local Authority Open Space Standards

Organisation	Open Space Standard	Type of Open Space	NPFA Based
Aberdeenshire Council Local Plan Policy	Based on 40m ² of public open space per house. Civic or town park, size 10,000-50,000m ², population 2,500+, housing 1,000+, distance 1,000-1,500m. Organised sports facility, size 7,500-15,000m ², population 1,000-5,000, housing 400-2,000, distance 1,000-1,500m. *Public Open Space Standards*: 501-1,000 houses, 20,000-40,000m ² mix of town park/ organised sports, community play area and neighbourhood green space. 2510-500 houses, 10,000-20,000m ² mix of organised sports, play area, neighbourhood green space. 76-250 houses, 3,000-10,000m ² mix of play area and neighbourhood green space. 5-75 houses, 200-3,000m ² mix of neighbourhood green spaces, contribution to existing spaces (pro rata).	Open space Public parks Sports facilities Amenity space	X
Aberdeen City Council Open Space Development Guidelines for Greenfield Sites March 2001	Based on 2.8ha of open space per 1,000 people. Sports pitches/ playing fields 1.6ha/ 1,000 people. Equipped play children's play space 0.3ha/ 1,000 people. Natural wild space 0.4ha/ 1,000 people.	Sports provision play space Natural Wild Space	v

Organisation	Open Space Standard	Type of Open Space	NPFA Based
City of Edinburgh Council Open Space and Ancillary Facilities for New Housing Development (Aug 2004)	4 acres (1.6ha) per 1,000 persons or 1 acre (0.4ha) per 100 houses in large developments. 10% of the site area in major infill housing developments. 20% of the overall site area of a new housing development Private gardens should be a minimum of 9m in depth Amenity landscaping must be greater than 1.5m wide Small play areas located 60m from home and larger, well equipped play areas 240m from home	Amenity landscaping Play space	v
Dundee City Council The Dundee Standard (derived from the Public Open Space Strategy)	Based on NPFA* and an area needs analysis. City is divided into 3 bands (city centre, inner suburbs and outer suburbs). Each has own requirements and an emphasis on quality, not just quantity. Based on a hierarchy of provision so a city park should be within 400mm, neighbourhood park in the vicinity and local park within easy walking distance.	Public parks Play space	v
East Dunbartonshire Council Modified Open Space Policy (2004)	Play spaces - minimum size of 100m ², thereafter 0.2-3ha per 1,000 population (eg 10 houses = 100m ²). Local parks - minimum size of 180m ², thereafter 1.5-1.8ha per 1,000 population (eg 25 houses = 1700m ²). Quality guidance includes design/ layout, landscaping, funding/ maintenance, safety, access network, management plans, dog exercise areas, fencing, accessibility to play areas and signage.	Play space Public parks	v
East Renfrewshire Council Open Space in New Residential Development	Private gardens = 1.5 times the ground floor area of the house. Minimum of 15m ² per dwelling (up to 20 houses) of amenity space. Play areas: LAP per 20 houses, min 6m2 per dwelling size 50m from houses served. LEAP per 50 houses, min 6m2 size per dwelling, 200m from houses served. Minimum of 20m2 per dwelling (>20 houses) of amenity space. Flatted development - minimum of 30m2 per dwelling. Kick pitch per 100 houses, min 12m2 size per dwelling, 500m from houses served.	Private gardens Amenity open space Play space Recreational space	v
Falkirk Council Local Plan Policy	2.8ha / 1,000 persons or 68m ² per dwelling. Derived from the Falkirk District Council Standard.	Play areas Open space	v
Glasgow City Council Residential Greenspace Standards (2001)	Target of 5ha per 1,000 population. 0.7ha children's play per 1,000 population to be accessible within 90m (Open Space without equipment), 300m (Local Play Area), 1000m (District Play Area). 1.7ha for outdoor sport per 1,000 population to be accessible within 500m for kick-about and 1000m for playing pitches. 0.5ha amenity green space per 1,000 population to be accessible within 400m. Provides alternatives for off-site and on-site provision.	Play space outdoor sport amenity green space	X

Organisation

Open Space Standard

Type of Open Space

NPFA Based

Highland Council
Development Plan Policy Guidelines: Residential Standards (Oct 2003)

Based on a standard of 60m ² public open space per dwelling. Including:

5-15 houses, 300-900m2 play space (unequipped).
16-75 houses, 900-4500m2 play space and kick-about pitch.
76-250 houses, 4500-15000m2 play space, kick-about pitch.
251-500 houses, 15000-30000m2 play space, kick-about pitch and full sized pitch.
501+ houses, 30,000+m2 play space, kick-about pitch, older children's play area and large park (incl. 2 pitches).

Play space
Private open space
Sports pitches

Stirling Council
Play and Informal Recreation Areas in Association with New Housing Areas (July 2004)

NPFA* 6 acre standard, which equates to 20m ² per household divided between informal play/ recreation space and equipped play areas.
The alternatives:

Off-site provision
On-site provision
Combination

Minimum value of the provision:

£550 per 2 bedroom dwelling.
£800 per 3-4 bedroom dwelling

Play space
Amenity green space

NPFA = National Playing Fields Association Six Acre Standard (minimum standard for outdoor play space of 2.4 hectares (6 acres) for 1,000 people).

6.13 The findings demonstrate the diversity in the interpretation of the NPFA standard and application of parts of the guidance set out in the NPFA publication. Some local authority standards state that they are based on the NPFA standard, but provide no details of how they have arrived at the calculations set out in the guidance. The recommended quantity of open space ranges from 1.6ha to 2.8ha per 1,000 population. Some standards are calculated using a quantity of open space required per 1,000 people, whereas others base it upon a quantity per household. The range of presentations of the standards makes it difficult to compare and analyse these standards.

Conclusions

6.14 Eight main themes emerged from the review of national standards from Scotland and the UK, which are as follows:

The range and availability of research into open space standards is fairly limited, with only parts of the Pan 65 typology covered by standards. For example, there is extensive research into the provision of semi-natural open space (English Nature and Woodland Trust), but very little research regarding parks and sports areas.
The National Playing Fields Association 6 Acre Standard is widely used / interpreted for all types of open space, not just outdoor play space, however with very little consistency and explanation. The standard provides detailed guidance for outdoor play space ( LEAP's, NEAP's and LAP's) but little information on the definition of 'outdoor sports space'.
There is no recognised qualitative standard for open space, only an award scheme (Green Flag Award for England and Wales).
The national open space standards developed by Rural Northern Ireland apply primarily to new residential developments, with policy statements on a variety of development issues such as outdoor recreation in the countryside and intensive sports facilities, for example.
Planning Policy Guidance 17 concluded that national open space standards should not be set, and that addressing the process by which open spaces are developed is key to the provision of quality of open spaces.
There is no common approach to the setting of standards in England, with some local authorities applying the NPFA 5 Acre standard to either new residential development or existing settlements.
Quantitative open space standards are the most commonly used, varying enormously across local authorities and ranging from 1.6ha to 2.8ha per 1,000 population.
Existing Scottish and English standards primarily apply to new residential developments.

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MINIMUM STANDARDS FOR OPEN SPACE

CHAPTER SIX CURRENT UK AND SCOTLAND OPEN SPACE STANDARDS