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Chapter 9 - TOURISM, ENTERTAINMENT & THE ARTS

9.1 INTRODUCTION

9.1.1 Policies in this chapter are concerned with tourism, entertainment and the arts, which embrace a wide range of activities. These include arts, culture and entertainment (ACE) facilities which range from high culture to popular entertainment. These activities include the visual arts (art, sculpture, photography), the literary arts (books and publishing), and the performing arts and entertainment (music, film, theatre, dance, radio, television / video), as well as including popular entertainment such as bingo or ice shows. This chapter also encompasses hotel development. It is the intention of this chapter to include only those facilities open to visiting members of the public.

9.1.2 With the exception of theatres, land uses encompassing the above facilities will generally fall within the D2 use class (assembly and leisure) and are covered by policies in this chapter. However, policies applying to indoor sports facilities falling within the D2 use class are covered by the open space chapter. Special policies apply to assembly and leisure uses within the Wembley Regeneration Area inset plan chapter. A number of D1 uses (non-residential institutions) attract large numbers of visitors but are most conveniently covered by the Community Facilities chapter. Special policies towards development with a mix of land uses are set out in the Built Environment chapter.

9.1.3 Tourism and associated arts, culture and entertainment facilities are playing an increasingly prominent role in the London economy, with long term economic benefits. They also have an important role to play in the local economy, providing both direct and indirect employment opportunities, as well as supporting a wider range of local services and facilities that can be used by local residents. Thus tourism and ACE facilities can contribute significantly to achieving local objectives, in particular:

• The vitality of the community;
• The local economy by direct employment;
• By maintaining and improving the attractiveness of the area to commerce and industry; and,
• By enhancing the life and tourism of the Borough's town centres.

9.2 BACKGROUND

9.2.1 Brent's premier visitor attraction is Wembley Stadium, to be rebuilt as the New National Stadium, and the associated facilities of Wembley Arena, Conference Centre and Exhibition Halls. The 'Asian jewellery' quarter in Ealing Road also attract visitors on a regional, national and international basis compared with most of Brent's other visitor attractions which attract more local visitors. Local visitor attractions in Brent include the Welsh Harp and Fryent Country Park, the Sunday Market in Wembley, the Kilburn Tricycle Complex and the Brent Arts Centre, Gladstone Park.

9.2.2 Adequate hotel accommodation is important to serve both tourists and business visitors to Brent. The government has set a target, in RPG3, for 10,000 additional hotel rooms in London, based on forecasts of demand (predominantly from overseas visitors), between 1995 and the end of 2000. The Department of Culture Media and Sport in their Tourism Strategy ‘Tomorrow’s Tourism’ speaks of a further 10,000 rooms between 2001 and the end of 2009. Even if this growth does not materialise, hotel development in Brent may still increase. This is due to pressure for hotel development in Central London being pushed out towards Boroughs' with good transport links, such as Brent. There are a significant number of hotel rooms in outstanding permissions in the Wembley Stadium Area.

9.3 STRATEGIC CONTEXT

9.3.1 Government policy on tourism, entertainment and the arts is set out at a national level in Planning Policy Guidance notes on Town Centres and Retail Developments (PPG6) and Tourism (PPG21). Of particular importance is PPG6 which emphasises the 'sequential approach' to selecting sites for development attracting significant numbers of people. Strategic policy is also included in Strategic Guidance for London Planning Authorities (RPG3) issued in May 1996. The key features of these guidance notes relevant to tourism, entertainment and the arts are set out below.
PPG6 Town Centres and Retail Developments (June 1996)

9.3.2 PPG 6 emphasises the sequential approach to selecting sites for development attracting significant numbers of people, including leisure uses and hotels. This is summarised in paragraph

9.3.4 of the Town Centres & Shopping chapter. The need for a plan-led approach to promoting development in town centres, both through policies, and the identification of locations and sites for development, is emphasised.
PPG21 Tourism (November 1992)

9.3.3 PPG 21 recognises that the planning system should facilitate and encourage tourist provision while tackling any adverse effects of existing tourist activity in a positive manner.

RPG3 Strategic Guidance for London Planning Authorities (May 1996)

9.3.4 RPG3 makes reference to the ability of arts, culture and entertainment activities to contribute significantly to the life and attractiveness of London, as well as being important employers of labour in their own right. Boroughs' are asked to identify areas where these activities can be concentrated, and ensure that policies maintain a quality environment (to further enhance and encourage such activities). Particular emphasis is placed on the need for Boroughs to demonstrate flexibility in dealing with applications, in particular where mixed uses would be beneficial. The guidance points out the considerable opportunities for arts related activities to be located in and around town centres, but that out of centre, car-dependent leisure and entertainment facilities should be discouraged. The guidance also stresses that the Wembley Stadium complex is an area capable of accommodating high volumes of spectators to major events because of its good accessibility to public transport.

9.3.5 RPG3 also makes reference to tourism and the necessity to embrace opportunities vital to the future success of the capitals' economy. Measures to improve the quality of London's environment and transport systems will assist in making it more attractive to visitors, as well as encouraging a more positive approach to the enhancement of tourist sites and development of visitor facilities.

9.3.6 In respect of hotels, RPG3 asks boroughs' to encourage development for a range of accommodation in areas accessible to public transport, and which benefit the local economy. Boroughs' should consider the re-use of office space for hotels (in appropriate locations), and include proposals for conference and exhibition space on appropriate sites.

9.4 POLICY OBJECTIVES

1. To use new tourist and visitor attractions, hotels and ACE facilities as a base for regenerating the Boroughs' town centres where they can support and regenerate the local economy;
2. To promote new tourist and visitor attractions, hotels and ACE facilities, provided that such developments maintain the amenity enjoyed by nearby residents;
3. To protect existing tourist, entertainment and arts facilities in good locations and ensure that they are open to all of Brent's communities; and
4. To promote the provision of public art in the Borough.

9.5 BOROUGH STRATEGY

9.5.1 The planning issues that tourist, visitor and arts uses and hotels present: potential impact on residential amenity, traffic impact, etc., are addressed in a strategy to direct them to Brent's town centres in line with the 'sequential approach'. Edge-of-centre locations will only be considered if this is not possible. The development of large-scale tourist, visitor and arts uses and hotels will only be considered in out-of-centre sites in exceptional circumstances where an equivalent level of public transport accessibility can be achieved and the amenity of residents maintained. Smaller-scale tourist and visitor attractions, hotels and ACE facilities may be considered in residential areas where there is no unacceptable loss of residential amenity. Leisure facilities are particularly appropriate within some mixed-use development, as this can reduce the need to travel. The reduction of the need to travel, especially for large scale leisure uses, will only come about through the application of the plan's restraint-based parking standards and developments being designed to facilitate public transport, and being friendly to pedestrians and cyclists.

POLICIES AND PROPOSALS

9.6 LOCATION OF TOURIST, VISITOR AND ACE USES

Large-Scale Uses

9.6.1 Large-scale tourist, visitor and ACE uses will be encouraged to locate in town centres in line with the sequential approach to selecting sites for development. This is because town centres offer a wide range of supporting facilities and are most accessible in terms of public transport. Moreover, large-scale visitor attractions, hotel and ACE activities can play an important part in the regeneration of town centres and act as a magnet to other such facilities. They are generally not suitable in residential areas on account of the noise, traffic and parking problems they may generate. Large-scale tourist, visitor and ACE uses can be defined by either the area of floor space or by virtue of the number of visitors attracted to it. The sequential approach to development applies to change of use and extensions as well as new development.

9.6.2 The plan as a whole sets down preferred locations for major leisure developments in town centres, but recognises the particular role the Wembley Stadium Area may play in the provision of large-scale leisure facilities, in order that it can be regenerated to the benefit of the Borough and London as a whole. Policy TEA1 therefore needs to be read alongside policies WEM1 and WEM3 in the Wembley Regeneration Area chapter. The location of large and small scale hotel development are dealt with in policies TEA6 and TEA7 respectively.

9.6.3 Contributions will be sought from large-scale development to help provide facilities to meet the needs of the increased numbers of visitors to the area, such as extra sign-posting, improved pedestrian and cycling facilities, public toilets, and so on.

Small-Scale Uses

9.6.4 Small-scale tourist, visitor and ACE uses are often best located in town centres. However, it is recognised that this may not always be appropriate and that some sites with moderate or better public accessibility may be suitable. Proposals for small-scale tourist, visitor and ACE uses may therefore be located in residential areas but residential amenity should be protected.

9.7 PROTECTION OF EXISTING ARTS, CULTURE AND ENTERTAINMENT FACILITIES

9.7.1 There has sometimes been a difficulty in maintaining and creating the space for the carrying out of specific types of ACE activity, such as cinemas, theatres and visual arts. This is because of the competition from other land uses which can often outbid such ACE activities. The Council will encourage the development of new ACE proposals for these uses, and resist the loss of existing facilities, unless their loss is compensated for.

9.8 PUBLIC ART

9.8.1 Developments can benefit significantly from the provision of suitable works of art or artistic features. In recent years, the Council (through various types of regeneration funding) has managed to both fund works of public art as well as secure public art in developments within the Borough through planning obligations.

9.8.2 It is the Council's intention, therefore, that in new developments the provision of art or artistic features should be considered as a matter of good planning practice. The Arts Council suggest that on development a sum of up to 1% of the development cost is set aside to provide works of art, craft or decoration. Given the lack of public art in Brent and the need to improve the public realm of the Borough, particularly in town centres, the Council applies a public art policy in suitable developments. This is not intended to impose pieces of sculpture on an unsuspecting public. Public art can take a variety of forms: examples include sculpture, paintings, murals, street furniture, metalwork, floor, wall and window designs such as tiling, paving and stained glass. The design and execution of public art should fully involve the local community in which it is located, and be properly related to the wider public realm or buildings in the area.

9.8.3 In view of the integral part that ACE can play in the economic and social regeneration of the Borough, it is appropriate to consider the provision of ACE uses in most large scale mixed commercial developments. The Council will, in appropriate circumstances, secure such provision through the use of planning obligations.

9.9 SHORT TERM USE OF VACANT BUILDINGS FOR ACE ACTIVITIES

9.9.1 The Council recognises the important role local voluntary and community groups play in the arts. The Council has identified a shortage of buildings for non-commercial ACE activities such as art studio space. It has attempted to help various community arts groups to find premises. The problem of voluntary groups finding suitable accommodation has been exacerbated by new financial arrangements which have accompanied Local Management of Schools and which have increased hiring costs beyond a level that many local arts groups can afford.

9.9.2 It may prove possible for the Council to lease out some of its buildings for ACE uses and to encourage the private sector to do the same where premises could be made available on a short-term basis pending future proposals. Such short-term or temporary occupation of buildings for ACE purposes will of course be encouraged only when the particular use in question is acceptable in terms of its impact on the surrounding area. Where this is the case, other policies in the plan may nevertheless preclude a permanent planning permission for the ACE use (for example: strategic employment areas requires land and buildings generally to be retained for employment purposes). In such circumstances it may, however, be possible to grant temporary permissions for occupation by ACE uses of buildings that may otherwise lie vacant for a period of time.

9.10 HOTELS

9.10.1 For the purposes of this plan, the definition of Hotels covers uses within the C1 (hotels) use class, such as commercial serviced accommodation including guest houses and bed and breakfast establishments open to visiting members of the public on a short stay basis. Many premises described as 'hotels' in Brent are in fact in use as accommodation for homeless persons. This is a separate hostel use covered by policies within the Housing chapter (Policy H27).

9.10.2 At present there are 15 mostly small-scale hotels operating in the Borough, and a number of larger hotels in Wembley. Further hotel development will be considered favourably where it is located in town centres or at the edge of town centres, where it has good public transport accessibility or where this can be achieved. Other appropriate locations include the National Stadium Policy Area (see Wembley Regeneration Area chapter). Large-scale hotels are also considered acceptable where they adjoin a public transport interchange because of the excellent public transport accessibility (See also policy TRN6). In addition to setting out locational criteria, policy TEA6 requires that proposals for large-scale hotel development also comply with the Council's coach and taxi parking standards, that the proposal does not have an adverse effect on the residential amenity or character of the area, or does not result in the loss of accommodation best used for permanent residential purposes.

9.10.3 The locational requirements for small-scale hotel developments are different as they impact less on surrounding areas and do not require such a high level of public transport accessibility as large-scale developments. Small-scale hotel development may be more suitable in residential areas, subject to impact on residential amenity. A minimum floorspace limit is necessary to prevent the conversion of unsuitable smaller houses.

Access For Disabled People in Hotels

9.10.4 The Council wishes to ensure that all new hotel development in the Borough provides for the access needs of all, including disabled people. Part M of the Building regulations 1991 (1992 edition) required that one out of every twenty hotel bedrooms should be suitable for use by disabled people. This applied to new hotels and extensions to them. There was no requirement to provide higher access standards than exist in the main building if this is not the case. There was also no obligation to improve disabled access arrangements after carrying out alterations or if the hotel is created by conversion.
Because of the lack of existing provision of hotel bedspaces for disabled people, and the nature of the existing stock, the Council sought a comparable level of access for disabled people, when a building was altered, converted or created through a change of use, outside of the scope of the 1991 building regulations.
From 1 May 2004 the revised Approved Document Part M (2004 edition) of the Building regulations 2000 'Access to and use of buildings' applies to new hotels, extensions and materials alterations, including change of use of a room. Part M, 2004, Section 4.4 states 'A proportion of the sleeping accommodation in hotels, motels and student accommodation should be designed for independent use by wheelchair users. The remainder should include facilities that make them suitable for people who do not use a wheelchair, but may have mobility, sensory, dexterity or learning difficulties.'.

Foreword

Introduction

Strategy

Built Environment

Environmental Protection

Housing

Transport

Employment

Town Centres & Shopping

Tourism, Entertainment & the Arts

Open Space & Recreation

Community Facilities

Waste

INSET PLANS

Park Royal

Wembley Regeneration Area

Site Specific Proposals

Glossary

Borough-wide maps