CITY AND COUNTY OF CARDIFF
Agenda Item No.
PLANNING COMMITTEE: 14th March, 2007
REPORT OF THE CHIEF STRATEGIC PLANNING & ENVIRONMENT OFFICER
Multi-Use Games Areas : Planning Guidance
Purpose of Report
1.
This report introduces guidance on Multi-Use Games Areas, which has been
prepared to assist Planning Committee in the consideration of applications for
such facilities.
Issues
2.
Planning Committee, in August, 2006, requested that guidance be prepared on
appropriate opening times and other planning considerations relating to the
provision of Multi-Use Games Areas (MUGA’s).
3.
MUGA’s are an increasingly popular form of outdoor recreation facilities, particularly
for young people. A number of such have facilities have now been constructed on
parks and open spaces, in school grounds, and at leisure centres .
4.
Planning applications for such facilities can give rise to a range of amenity
concerns, particularly where they are proposed in residential neighbourhoods. The
guidance note – which is attached at Appendix 1- identifies planning issues
associated with such facilities, and provides advice on opening hours, flood-lighting,
access, drainage, and proximity to residential properties.
5.
The guidance has been prepared in consultation with other service areas, including
Parks, Leisure and Schools. In order that the guidance has formal status, it is
proposed that it is incorporated into the forthcoming revision of the Open Space
Supplementary Planning Guidance
Achievability
6.
The guidance note identifies factors to be taken into account in the consideration of
planning applications and, as such, has no direct financial, property, personnel or
equal opportunity implications.
Legal Implications
7.
The report has no legal implications
Recommendation
Planning Committee is requested to note the guidance on Multi-Use Games
Areas and the intention to incorporate it in the revision of the Open Space
Supplementary Planning Guidance.
S Hannaby
Chief Strategic Planning & Environment Officer
6 March 2007
APPENDIX 1 – MULTI-USE GAMES AREAS GUIDANCE NOTE
Background Papers
Multi Use Games Areas Guidance Note
Status:
Version:
Author:
Date:
Draft
0.5
Andrew Ferguson
February 2007
1. Introduction
This report has been prepared to provide informal planning guidance on the
installation of Multi Use Games Areas (MUGAs) and the issues associated
with them.
Sport England defines a MUGA as:
‘A fenced, non-turf surfaced area, marked out, and an adequate size
for, at least two of the following sports: tennis, netball, basketball and
five-a-side football’
By definition, a MUGA is used for more than one sport and the performance of
the facility has to satisfy the often conflicting demands of the various sports.
MUGAs are usually surrounded by fencing ranging between 1-4m high.
A MUGA can operate on a managed or unrestricted basis. Managed facilities
must be pre-booked, while unrestricted ones operate on a first come, first
served basis.
This guidance does not focus on larger, commercial sports facilities. These
are generally used for one sport only and raise further issues such as
increased traffic generation, and planning issues related to ancillary facilities
such as changing rooms, club houses and parking arrangements.
Figure 1: Permitted development facility at Canal Park, Butetown, with low
fencing
2. Policy Context
Several national policies and planning policies provide guidance when
considering MUGAs and their associated issues.
Strategic Policy
Strategic documents such as Wales: A Better Country (2003) and Climbing
Higher (2005) aim to create sustainable communities and enable people to
live healthy, independent lives.
They advise that resources need to be focused on communities that are most
in need as people in poorer communities are less likely to participate in sport
and physical activity. Benefits of sport, in addition to physical health, include
emotional well-being, the engagement of young people and the
encouragement of community cohesion.
Cardiff Council’s recently updated Community Strategy ‘Proud Capital’ states
that people’s quality of life is dependent to a large extent on the environment
in which they live. Greater emphasis will be placed on encouraging grassroots
participation in sport, particularly among young people. The Neighbourhood
Improvement Programme is a local level delivery framework which aims to
improve environmental conditions and create safe, strong communities, with
emphasis on creating opportunities in deprived areas.
Planning Policy
Several planning policy documents are useful for policy/ reference purposes
in relation to MUGAs.
Planning Policy Wales (2002) sets out the Government’s planning policies for
Wales. It includes guidance on sport and leisure facilities stating, that they
should be sensitive to the needs of users, attractive, well designed, well
maintained, safe and accessible to all. Consideration must also be given to
the effects of sport and recreation on neighbouring uses in terms of noise,
light emissions and traffic generation.
Technical Advice Note 16 Sport and Recreation (1998) provides additional
guidance on sport and recreational facilities. Synthetic surfaces, capable of
intensive use can help meet demands for sport facilities but they are not a
straight substitute for grass pitches. Noise generating sports facilities should
be located where activities can be carried out compatibly with other uses.
Opportunities may be available to use sites adjacent to an existing noise
generator such as a main road, or in locations screened by banks and trees.
Floodlit sports facilities may greatly increase the benefits to a number of
sports and make a facility viable. Where there are concerns about the impact
on amenity and the environment, any permission granted may need to be
subject to conditions. In this way recreation may be encouraged and
controlled in the interests of amenity and other environmental considerations.
This document is currently being reviewed and the draft document is currently
out to consultation.
Technical Advice Note 11 Noise (1997) provides guidance on how the
planning system can reduce the impacts of noise without placing
unreasonable restrictions on development. For noise generated from
recreational facilities, consideration must be given to how frequently the noise
will be generated and how disturbing it will be, and balance the enjoyment of
the participants against nuisance to other people.
The City of Cardiff Local Plan (1996) is the adopted development plan for
Cardiff and contains policies on recreation, leisure and tourism. Policy 45
states that proposals for sport and recreation facilities will be favoured if the
proposal is accessible by public transport and scale, design and amenity are
acceptable. The Council placed the Cardiff Unitary Development Plan on
deposit in October, 2003. However, following introduction of the European
Strategic Environment Assessment Directive in May, 2005, the Council
resolved with the agreement of the Welsh Assembly Government to cease
preparation of the UPD and commence preparation of a Local Development
Plan.
Figure 2: Typical MUGA layout
3. Planning Issues
Several planning issues need to be considered when determining planning
applications for MUGAs. Not all MUGAs require planning permission as they
can be installed in Council owned parks/ open spaces as an ancillary use
(Class A, Part 12, Schedule 1 of the General Permitted Development Order).
The erection of floodlighting over 4m would not constitute permitted
development and would require planning permission. Where MUGAs do not
require planning permission, it is advisable to consult Pollution Control on the
protection of residential amenity. MUGAs proposed for non-parks land are
considered as development and do require planning permission.
Scale: MUGAs vary significantly in size from smaller facilities with single
pitches to larger facilities with several pitches. The size of the MUGA varies
according to its uses and impacts vary with the size. Larger facilities have the
potential to attract more users which could increase activity and noise within
the area. Larger facilities may also be more visually intrusive and should be
sensitively designed.
Design and materials: MUGAs should be enclosed with durable welded
fencing to retain balls within the playing area and allow spectators to view the
game safely. All gates should open outwards for the safety of players and at
least two gates should be installed to allow users escape options. Perimeter
fencing should be visually permeable to provide improved surveillance. The
colour of fencing should have regard to the environmental context. In noise
sensitive locations, the materials chosen and the design should be strongly
influenced by noise reduction considerations. Fences should be fixed to
support posts to prevent excessive movement of fencing and rubber damping
pads should be considered.
Location: The location of a MUGA will depend on the requirements of the
facility and needs of the intended users. They are often located within school
premises, adjacent to leisure or community centres or within parks.
Proximity to residential development: Whilst planning policy promotes a
diverse range of sport and recreation facilities, it is important that these don’t
cause a significant loss of amenity to residents or neighbouring users. The
location of a MUGA should be sympathetic to its surroundings and any
adjacent infrastructure. Sport England recommends that it is advisable to
locate a MUGA at least 12m, and ideally more than 30m from houses.
Landscaping and mounding can be used to limit noise, floodlight impact and
to create effective physical or symbolic boundaries. Nearby residential
dwellings provide natural surveillance which is an important consideration.
Residential amenity needs to be balanced against surveillance of the facility.
Opening Hours: Planning conditions are generally imposed to restrict opening
hours of MUGAs, to reduce their impact on residential amenity. Effective
management is vital to ensure the restrictions are adhered to. The English
Sports Council recommends a curfew of 10pm for floodlit MUGAs. However, a
curfew of 9pm is considered more reasonable, as it gives residents
reasonable respite from noise whilst accommodating needs of users. This
principal has been used for previous MUGAs within Cardiff and there have
been few complaints of anti-social behaviour following completion.
Noise: MUGAs are predominantly intended for use by young people. As a
result, there can be concern over possible noise disturbance during unsocial
hours.
Floodlighting: Floodlights can significantly increase the opportunities for sport
by extending hours of use outside the summer months. This can improve the
viability of certain projects which rely on income from midweek hire to cover
operating costs. However, in assessing applications for floodlighting, the local
authority should ensure that local amenity is protected.
Drainage: Generally, MUGA surfaces should be porous to prevent pooling.
They can be advantageous in areas which have poor drainage, as they can
be used intensively reducing pressure on grass pitches. However, caution
must be used when placing MUGAs in these areas as surface run off could
exacerbate poor drainage on surrounding land. Where ground conditions are
suitable, MUGA surfaces should be drained via sustainable drainage
techniques.
Transport: The majority of MUGAs are intended for the local community and
especially young people. This should limit car use as the majority of users will
travel on foot. The MUGA should be accessible by a variety of transport
modes to ensure the project is sustainable.
Trees: Whilst trees adjacent to a site may provide shelter and privacy, their
roots can threaten the facility itself by distorting or cracking the surface.
Overhanging branches can also cause problems, as dripping water, leaf sap
and bird droppings can create a hazardous playing surface. Consideration
should be given to surrounding the MUGA with a clear ‘sterile area’ to
eliminate potential hiding places, with landscaping beyond this area
progressively graded in height, to maintain good sightlines. Trees should not
be located where they may compromise any primary or secondary lighting
benefits.
Figure 3: Porous surface at St Paul’s Primary, Grangetown, with high fencing
4. Other Issues
Whilst not within the remit of the planning system, several other factors should
be considered when looking at MUGA applications as they can impact upon
the success of the completed facility.
Management of facilities/ supervision: The question of management often
relates to whether the MUGA is a place for young people to congregate, or
participate in organised sport. Open access facilities are more likely to attract
informal use for young people. Critical to the success of any facility is an initial
assessment of the likely use of the MUGA. Where a MUGA is located in
isolation from a managed facility, consideration should be given to supervision
and amenity/ security lighting.
Maintenance: Continued maintenance of a facility is important if a MUGA is to
retain users and not decline, particularly its surface and lighting. The MUGA
should be subject to regular inspection to ensure that it is in a safe condition.
Amenity lighting: Where MUGAs are illuminated, the installation of amenity
lighting along access routes should be considered to avoid contrasting lighting
conditions when users leave the facility at night. These lights should provide
high levels of uniformity, high colour rendering index (whiter light) and low
glare thereby increasing safety.
Equal Opportunities: Most MUGAs are created for football and basketball use.
Men are more likely to use this type of facility and emphasis needs to be
placed on creating facilities which encourage female use.
Figure 4: Common equipment specification- predominantly for male usage
5. MUGA Advantages and Disadvantages
A MUGA has the potential to have both positive and negative impacts on the
surrounding community. Not all impacts will be realised but the likelihood of
each should be considered when determining an application.
Advantages
Disadvantages
Increasing sports participation within Impact on the character of the
a community
locality/ residents quality of life
Regenerating the community
Potential increase in noise/ anti-social
behaviour
Initiating social inclusion
Increased light pollution
Improving local health
Reducing crime and anti-social
behaviour within an area
Provide an all weather intensive use
facility
Figure 5: Larger MUGA at Grange Gardens, Grangetown, with floodlighting
6. Guidance and Key Recommendations
It is recommended that this informal guidance note is taken into account when
considering planning applications for Multi Use Games Areas. It should also
be considered when deciding whether to install a facility which doesn’t require
planning permission.
It is recommended that this guidance is incorporated into the forthcoming
revision of the Open Space Supplementary Planning Guidance.
Suggested opening hours: 9am-9pm. This provides ample time for sport
and leisure activities whilst allowing respite for neighbouring residents.
Facilities within 30m (without mitigating factors such as main roads, railway
lines, factories etc.) could have further reduced hours to limit the impact.
Conditions can be imposed to restrict access to the facility between certain
times (see appendix).
Distance from residential properties: MUGAs should be located at least
30m from the nearest residential property. Where other noise generators are
located in close proximity, the distances can be reduced. Larger sized
MUGAs (more than one pitch per sport) are likely to attract more users and as
such may need to be located further than 30m away from housing.
Alternately, sound barriers could be incorporated to limit the noise impact.
Floodlighting: Lit facilities provide more opportunities for sport, especially
during winter months, and should be encouraged. However, caution must be
taken to ensure lighting doesn’t negatively impact on local residents. Care
must be taken when a MUGA with lighting is proposed within 30m of housing,
although other factors may make this acceptable. Planning applications
should be accompanied by a lighting spill plan for the site and surrounding
area. Conditions can be attached to permission to restrict hours of operation,
or for a floodlighting scheme to be submitted prior to development
commencing (see appendix).
Access: The needs of disabled people will need to be considered in the
provision of MUGAs. Where a level approach is not available, a ramp (and
associated handrail) will enable access for people with pushchairs or
wheelchairs. It is essential that ramps are accompanied by a short flight of
steps (and associated handrail) for those who find ramped access difficult to
negotiate. Access roads must be wide enough to allow maintenance and
emergency vehicle access.
Drainage: MUGAs should have porous surfaces to enable surface water to be
removed at a rate which will safeguard against flooding. Care should be taken
to protect the installation from surface/ ground water from the surrounding
area.
Useful Websites
Communities and Local Government: www.communities.gov.uk
National Playing Fields Association: www.playing-fields.com
Scansis: www.scansis.no
Secured by Design: http://www.securedbydesign.com/pdfs/youthshelters.pdf
Sport England: www.sportengland.org
Sports Council for Wales: www.sports-council-wales.co.uk
The Central Council of Physical Recreation: www.ccpr.org.uk
The Football Association: www.thefa.com
Welsh Assembly Government: www.wales.gov.uk/index.htm
Appendix
Planning Conditions
PC 5 OPENING HOURS
No member of the public shall be admitted to or allowed to remain on the
premises between the hours of ______ and _____ on any day.
Reason: To ensure that the amenities of occupiers of other premises in the
vicinity are protected.
PC10b FLOODLIGHTING HOURS OF OPERATION
The floodlighting shall not be operated between _______ hours and ______
hours.
Reason: To ensure that the amenities of occupiers of other premises in the
vicinity are protected.
PC10a FLOODLIGHTING SCHEME
Prior to commencement of development a scheme shall be submitted to and
approved in writing by the Local Planning Authority to provide that
•
•
•
Light into neighbouring residential windows generated from the
floodlights shall not exceed 5/10*Ev (lux) (vertical illuminance in lux).
Each floodlight must be aligned to ensure that the upper limit of the
main beam does not exceed 70 degrees from its downward vertical.
The floodlighting shall designed and operated to have full horizontal
cut-off and such that the Upward Waste Light Ratio does not exceed
2.5/5*%.
The submitted scheme shall include an isolux diagram showing the predicted
illuminance in the vertical plane (in lux) at critical locations on the boundary of
the site and at adjacent properties.
The approved scheme shall be implemented prior to beneficial use and be
permanently maintained.
Reason: To ensure that the amenities of occupiers of other premises in the
vicinity are protected.
*delete as appropriate depending on which Environmental Zone the
development is within – see 5.RS.POL.001 ~ Light Pollution Guidance Note