Sustainable tourism

Policy POSP12: Sustainable tourism

  1. Sustainable tourism in the Broads will be strengthened by the creation, enhancement and expansion of high quality and inclusive tourism attractions and related infrastructure, in accordance with the policies within this Local Plan, and by:
    1. Encouraging an appropriate network of tourism and recreational facilities throughout the Broads;
    2. Ensuring proposals will enhance the existing tourism offer, benefit the local economy and are of a suitable scale and type for the proposed location;
    3. Protecting against the loss of existing tourism and recreation facilities by supporting appropriate development and change when this is proven to be needed;
    4. Supporting diversification of tourism where economically and environmentally sustainable;
    5. Promoting low-impact tourism which seeks to protect or enhance the special qualities of the Broads which visitors come to see, enjoy or experience. Development proposals for visitor accommodation and visitor attractions that would have an adverse impact on the Broads’ landscape, heritage assets and natural environment will be refused;
    6. Locating tourism development where it is easily accessible by a variety of modes of transport including by water. Consideration will be given to the establishment of tourism facilities in less accessible locations where it relies on a specific geographically located resource to justify this location; and
    7. Seeking improvements to the quality of existing visitor accommodation/attractions and broadening the range of accommodation/attractions provided.

Reasoned Justification

The World Tourism Organisation and United Nations Environment Programme define sustainable tourism as ‘tourism that takes full account of its current and future economic, social and environmental impacts, addressing the needs of visitors, the industry, the environment and host communities’.

The Broads attracts more than 7 million visitors a year. Boating, cycling, canoeing, fishing, visiting the heritage of the area, walking and wildlife-watching are just some of the ways visitors and those living here enjoy the area. One of the Authority’s statutory purposes is to promote understanding and enjoyment of the Broads in ways that are beneficial to, and integrated with, conservation and navigation interests. Tourism brings more than £400 million into the local economy every year but needs sensitive management to make sure the fragility of this special landscape is not adversely affected.

The economic viability of the Broads’ tourism industry relies on a healthy and attractive natural and built environment and opportunities to engage in a range of appropriate recreational activities. The Authority encourages quiet forms of recreation on land and water, based on the area’s distinctive beauty, culture, traditions, history, and wildlife. In other words, it supports tourism and recreation that does not damage the Broads’ environment or people’s enjoyment of it. It is vital to ensure that enjoyment of the area is combined with an awareness and understanding of the special qualities of the Broads. That being said, some festivals and more extreme sports may be acceptable in certain locations and for limited periods of time.

The Broads Authority adopted a Tourism Strategy and Destination Management Plan for the Broads in 2016. An updated version should be adopted by the Broads Authority by end of 2024.

The leisure sector is a fast-changing industry and the patterns and popularity of uses change over time. Tourism businesses and visitors in the Broads are still adjusting to the new normal following the Covid pandemic of 2020/2021. Whilst initial trends following the lifting of restrictions on travel were encouraging, the recovery has also been affected by other factors. The global economy has slowed, fuel prices have been volatile and the domestic ‘cost of living crisis’ has reduced the disposable income for many families. International travel has been affected by industrial action, fuel prices, and the increasing effects of global warming which has contributed to irregular weather patterns. soaring temperatures, wildfires, and flooding in many popular destinations. These factors all create uncertainty for businesses and individuals.

The Local Plan helps to guide tourism and recreational development (including holiday/tourism accommodation) by making sure it is of an appropriate scale and location where the environment, infrastructure and facilities support and can accommodate the visitor impact. Detailed considerations about location are addressed in PODM36. Proposals should be of a suitable scale and type to protect the character of the townscape and landscape. The Authority encourages the use of brownfield sites in the first instance .

Shops, pubs, restaurants, moorings, water, electricity, and boating supplies are used by local communities as well as visitors. These services are all part of the essential infrastructure of a holiday destination. Proposals are encouraged to provide refuse disposal points and public toilets where appropriate, taking into consideration their ongoing management and maintenance.

Provision of facilities that enable visitors and residents to experience, explore, and enjoy the Broads and access visitor destination points are guided by and driven in the main by the Broads Integrated Access Strategy. This is discussed in more detail in the transport section.

Assessment of tourism initiatives will include consideration of their accessibility. Small-scale highways improvements may be required to allow schemes to go ahead in an acceptable manner. Improvements need to be made to the cycle network around the Broads and also to provide access by modes other than the private car. New development should, where possible, support such opportunities. This could involve infrastructure for electric vehicle charging points (see policy PODM55 on EV charging points) and other new technologies.

Access to a number of the main tourist destinations in the Broads can be realistically achieved only by the use of the private car. However, future development should be located only where alternative means of access can be provided as part of the development, such as by water, close to train stations or bus routes. It may be the case that the scale of a new tourism facility could justify a new bus route or stop that will serve it.

Across the Broads there is considerable variation in landscape types and ecological sensitivity, with some areas more sensitive and vulnerable to change than others. Similarly, visitor pressure is not evenly spread across the system, with some areas being ‘honey pots’, particularly in the height of the season, while other areas remain relatively quiet. The aim is to distribute tourism throughout the Broads, while providing protection to sensitive and vulnerable areas. Development will need to be carefully sited and designed to protect and enhance the special features and character of the Broads. This could be achieved through using previously developed sites.

The term ‘tourism and recreation development’ also covers holiday/tourism accommodation. The role of land-based accommodation in supporting the local tourism and leisure economies in the Broads is increasingly recognised and further development can support this. Such accommodation can help to replace the bed spaces lost by the decline in the hire boat fleet, as well as offering alternative ways to enjoy the Broads and encouraging diversification of the tourism base. Policies will permit development to provide land-based accommodation for holiday use, subject to satisfaction of criteria set out in other Local Plan policies.

Reasonable alternative options

No policy

Sustainability appraisal summary

The following is a summary of the assessment of the policy and alternative(s).

A: Have a policy: 10 positives. 0 negatives. 0 ? Overall positive

B: No policy: 0 positives. 0 negatives. 10 ?

How has the existing policy been used since adoption in May 2019?

According to recent Annual Monitoring Reports, the policy has been used and schemes have been in conformity with the policy.

Why has the alternative option been discounted?

Given the attractiveness of the Broads to people and the attractions and accommodation that are in the area or planned for the area, it is prudent to have a policy.

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Policy PODM35: Sustainable tourism and recreation development

  1. General Location of Sustainable Tourism and Recreation Development
    1. New tourism and recreational development (including holiday/tourism accommodation of all types) will be permitted (subject to other policies of the Local Plan) where it:
      1. Is within or adjacent to a defined development boundary; or
      2. Is part of an existing visitor attraction/tourism site, group of holiday dwellings, boatyard or established sailing or similar club.
    2. For all proposals it should be demonstrated that the use of brownfield sites has been considered.
    3. In all cases the development must be satisfactorily accessed by sustainable means, which could include public transport, walking, cycling, horse riding or by water.
    4. Tourism and recreational facilities in all other areas not covered by (i) and (ii) will be permitted only where there is a clear and demonstrable need for the facilities to be situated in the proposed location and where:
      1. They are in accordance with the policies in this Local Plan;
      2. They do not involve a significant amount of new build development. New build development will only be of a scale that is compatible with the location and setting; and
      3. They do not adversely affect and wherever possible and appropriate contribute positively to water quality, dark skies, the landscape character, historic environment, protected species or habitats.
    5. The requirement to demonstrate a need to be located in areas other than (i) or (ii) does not apply to farm diversification development to provide tourist accommodation; see policy PODM32 on Farm Diversification.
    6. Intensive tourism and leisure uses, including static caravans, will not normally be permitted on greenfield sites.
    7. Overnight accommodation in Norfolk and parts of Suffolk will need to mitigate against recreation impacts (potentially through the relevant GI RAMS scheme). Mitigation for impact on Nutrient Enrichment (through a mitigation scheme) will be required in some parts of the Broads.
  2. Principles of Sustainable Tourism and Recreation Development
    1. Proposals for new tourism and recreation development, including within existing sites or attractions, will be positively supported where:
      1. They are in accordance with the policies in this Local Plan;
      2. There is proven sufficient capacity of the highway network;
      3. Sufficient car and cycle parking can be provided on site;
      4. They do not adversely affect - and wherever possible enhance - dark skies, the landscape character, historic environment, protected species or habitats;
      5. Proposals are of a high-quality design and are suitable for the setting;
      6. Navigation is not adversely affected; and
      7. Proposals are of a scale compatible with their location and setting.
    2. Regard will be given to the cumulative impacts of tourism and recreation proposals on landscape character, nature conservation value and local transport movement.

Reasoned Justification

The NPPF advises that Local Planning Authorities should support sustainable rural tourism and leisure developments that benefit rural businesses, communities, and visitors and that use and enrich, rather than harm, the character of the countryside, its towns, villages, buildings, and other features. The tourism sector plays a vital role in the local economy.

The tourism economy of the Broads is heavily dependent on the quality of the natural environment. Inappropriate development proposals, including for intensive tourism and leisure uses, can detract from the special qualities of the Broads upon which tourism relies. The Sustainable Tourism and Recreation Strategy for the Broads therefore aims to develop, manage, and promote the Broads as a high-quality sustainable tourism destination, in keeping with its status as an internationally renowned environment.

The policy directs tourism and recreational development to appropriate locations with the necessary infrastructure and facilities to support such development and accessible by a variety of transport modes. The settlements of the Broads provide the greatest potential for accommodating additional visitor numbers without detriment to the environment. These locations are also among the most accessible by public transport. To make sure the special qualities of the Broads are protected for future generations while maintaining the economic benefits of tourism, the Authority will support new tourism and recreational development in or adjacent to defined settlements, and on existing visitor attraction/tourism sites, groups of holiday dwellings, boatyards or established sailing or similar clubs.

Proposals for new tourism and recreation facilities outside these areas will need to be accompanied by a robust and comprehensive statement that demonstrates why the proposed facility needs to be located away from development boundaries and specific attractions (as described in i and ii of the policy) and provides evidence to justify the scale of development. This requirement does not apply to farm diversification projects providing tourist accommodation (which will be considered against other policies of the Local Plan). Due to the potential impact on the openness and special character of the landscape, facilities located away from development boundaries and specific attractions will only be permitted where the scale of built development would not have an adverse impact on the character of the local area and special qualities of the landscape. In addition, proposals that may have an effect on a protected site or species will only be permitted where a site level Habitats Regulations Assessment can successfully demonstrate that there are no adverse effects on the qualifying features of those habitats or species.

For the avoidance of doubt, where there is reference to new development, this includes conversion, new build, and temporary structures.

Reasonable alternative options

An alternative option would be to keep the original policy

No policy

Sustainability appraisal summary

The following is a summary of the assessment of the policy and alternative(s).

A: Keep original policy: 12 positives. 0 negatives. 0 ? Overall positive

B: Amended policy: 12 positives. 0 negatives. 0 ? Overall positive

C: No policy: 0 positives. 0 negatives. 12 ?

How has the existing policy been used since adoption in May 2019?

According to recent Annual Monitoring Reports, the policy has been used and schemes have been in conformity with the policy.

Why has the alternative option been discounted?

Given the attractiveness of the Broads to people and the attractions and accommodation that are in the area or planned for the area, it is prudent to have a policy. The amendments add clarification to the policy and factually reference to the GI RAMS and Nutrient Neutrality mitigation.

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Policy PODM36: Holiday/tourism accommodation – new provision and retention

New Holiday/tourism accommodation

  1. New holiday/tourism accommodation will be permitted where:
    1. It complies with the approach to locations for tourism and recreation development as set out in Policy PODM29;
    2. It will be for holiday use for short stay occupation on a rented basis for a substantial period of the year, not occupied on a continuous basis by the same people, and not used as a second home or for the main residence of the occupiers;
    3. The applicant provides clear evidence that the proposed holiday/tourism accommodation has been planned on a sound financial basis and considers demand for this type of accommodation in the area it is proposed; and
    4. A register of bookings is maintained at all times and is made available for inspection.
  2. When permitting new holiday/tourism accommodation, the Authority will seek to ensure that it remains available for short stay occupation on a rented basis by attaching an occupancy condition to restrict the sale of the property on the open market or use of the property for year-round occupation or as a second home.

Existing tourism accommodation

  1. Existing holiday/ tourism accommodation will be protected. Change of use to a second home or permanent residence will only be considered in exceptional circumstances where it can be fully and satisfactorily demonstrated that there is no demand for tourist accommodation. Marketing evidence must be provided which demonstrates that the premises have been marketed for a sustained period of 12 months.
  2. The conversion or redevelopment of hotels and guest houses to permanent residential accommodation will be resisted unless it can be demonstrated that the existing tourism use is no longer viable. Marketing evidence must be provided which demonstrates that the premises have been marketed for a sustained period of 12 months.

Static Caravans

  1. The extension, intensification, upgrading or replacement of existing static caravan sites will only be permitted where:
    1. The proposal is in accordance with other policies of the Local Plan;
    2. The proposal is compatible with the Landscape Character Assessment;
    3. Any associated buildings proposed are modest in scale and the visual impact of the proposal is minimised by appropriate siting, design, external materials, and colour; and
    4. Proposals are of a scale compatible with their location and setting.

General requirements

  1. The Authority will also seek a variety of accommodation types where they are appropriate to their location.
  2. Opportunities for appropriate relocation or redevelopment of existing holiday/tourism accommodation or related development which is currently resulting in harm to the special qualities of the Broads will be encouraged.
  3. Overnight accommodation in Norfolk and parts of Suffolk will need to mitigate against recreation impacts (potentially through the relevant GI RAMS scheme). Mitigation for impact on Nutrient Enrichment (through a mitigation scheme) will be required in some parts of the Broads.

Reasoned Justification

Tourism makes a valuable contribution to the local economy, and a statutory purpose of the Broads is to provide opportunities for the understanding and enjoyment of the special qualities of the area by the public. The provision of a sufficient level and range of holiday/tourism accommodation is essential for supporting the contribution made by the tourism sector to the local economy.

The policy seeks to secure and retain a supply of appropriately located tourist accommodation. The Authority will expect all new holiday/tourism accommodation to be available for lettings for at least nine months in any one year. To make sure new holiday/tourism accommodation is used for tourism purposes that benefit the economy of the Broads, occupancy conditions will be sought to prevent the accommodation from being used as a second home or sold on the open market. To ensure an adequate supply of holiday/tourism accommodation is retained, the removal of such a condition will only be permitted where the proposal is accompanied by a statement, completed by an independent chartered surveyor, which demonstrates that it is financially unviable or that any net loss of accommodation is necessary to allow appropriate relocation or redevelopment. Evidence of a robust marketing campaign of at least 12 months will be required that clearly demonstrates that there is no market demand for the premises - see the Marketing and Viability Guide produced by the Broads Authority for more details. The Authority will need to verify the content of such a report and may need to employ external expertise to do so (the applicant will need to meet the cost of this).

A second home is any property you own, in addition to your main residence, and which you do not rent out either for permanent or holiday purposes. A second home is a property which is not the 'sole or main residence' of any individual for Council Tax purposes. This may include a property that you use as a 'holiday home' for your own use. It may also include a property which the owner does not regularly occupy and where another property is defined as their 'sole or main residence.

Holiday/tourism accommodation includes dwellings, static caravans, hotels, B and Bs, campsites and glamping accommodation. They are let out to people to use for visits or holidays on a short-term basis, usually treated as for periods of up to three consecutive weeks. They are not permanently occupied all year round. The property is provided by the owner for the use and enjoyment of the guest during the booking period, as booked by the guest.

Proposals to redevelop an existing hotel or guest house that would result in the loss of more than five bed spaces available for holiday use will also be expected to be accompanied by a statement completed by a chartered surveyor, demonstrating that the existing use is unviable (see previous paragraph regarding marketing and independent review of viability assessments). The threshold of five bed spaces relates to the associated small-scale employment that such sized operations support. Cumulatively, the employees associated with operations of five or more bed spaces adds up to a significant amount around the Broads. Conversion or redevelopment of hotels and guest houses to a permanent residential use will also need marketing for 12 months in line with this supporting text.

Static caravans contribute to the provision of a range of accommodation in the Broads and can also provide a valuable supplementary source of income for farm businesses. Although there is a need to provide a range of tourist accommodation, the nature of this type of activity can have a significant visual impact on the appearance and character of the landscape. Applications for the extension, intensification, upgrading or replacement of existing static caravan sites will therefore only be permitted where the scale of the proposals and their visual impact is compatible with the character of the location and the wider Broads setting and landscape.

Holiday homes that will be occupied as second homes, in that they will not be available to rent as a holiday home but will be for the exclusive use of the owner and their family, are not considered as holiday/tourism accommodation for the purpose of this policy, but as new dwellings. The removal of occupancy conditions on holiday homes to permit permanent occupation, will be considered as proposals for new dwellings in accordance with the policies in the housing section of this Local Plan.

If a proposal is considered in the context of this policy to potentially have an effect on a habitat site, then it will need to be considered against the Habitats Regulations and a project level Appropriate Assessment undertaken. Indeed, in all of Norfolk and parts of Suffolk, the recreation impact of schemes needs to be mitigated and this is most easily done by paying the relevant GI RAMS tariff. And in some parts of the Broads, Nutrient Enrichment will need to be mitigated. Schemes may need to provide Biodiversity Net Gain.

Policy PODM13 on reusing historic buildings may be of relevance.

Reasonable alternative options

An alternative option would be to keep the original policy

No policy

Sustainability appraisal summary

The following is a summary of the assessment of the policy and alternative(s).

A: Keep original policy: 12 positives. 0 negatives. 0 ? Overall positive

B: Amended policy: 12 positives. 0 negatives. 0 ? Overall positive

C: No policy: 0 positives. 0 negatives. 12 ?

How has the existing policy been used since adoption in May 2019?

According to recent Annual Monitoring Reports, the policy has been used and schemes have been in conformity with the policy. There is one scheme that did however allow conversion to residential from an existing holiday/tourism accommodation.

Why has the alternative option been discounted?

Given the attractiveness of the Broads to people and the attractions and accommodation that are in the area or planned for the area, it is prudent to have a policy. The amendments add clarification to the policy and factually reference to the GI RAMS and Nutrient Neutrality mitigation.

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