Chapter 3

HOUSING

INTRODUCTION

A3.1 Government guidance on housing (PPG3) promotes the concentration of most additional housing development within urban areas. In accordance with this strategy, the County Structure Plan indicates the need to make provision for 6500 dwellings in association with the urban area of Wellingborough between 1996 and 2016. Identifying sufficient land to meet this level of provision is a key objective of the Local Plan. To preclude unwarranted greenfield development, more efficient use of land will be promoted through the adoption of a sequential approach to the allocation of land; by managing the release of sites; and by the adoption of a minimum density for housing developments.

A3.2 Policies and proposals of the Plan are directed towards the creation of more sustainable patterns of development that seek to reduce car dependency by facilitating walking, cycling and the use of public transport between housing, jobs, local services and amenities, and by planning for mixed-use developments. High-quality living environments that create a sense of community and are safe, attractive, energy efficient and give priority to the pedestrian over the car will be promoted. Greater choice of housing will be sought through the creation of mixed and inclusive communities that offer a range of house sizes and types that meet the needs of the population, including the requirements of the elderly, the disabled, young people and those on low incomes.

HOUSING PROVISION

Identifying Housing Sites

A3.3 To comply with the advice in PPG3 (March 2000) and the provisions of draft RPG8 (March 2001) and the adopted County Structure Plan (March 2001), an urban capacity study has been undertaken from which 10 sites have been allocated. These sites, together with the allocation of the Wellingborough East Strategic Development Area, outstanding planning permissions and allowances for windfalls and discounting (refer to paragraph A3.21, below), are sufficient to meet the urban housing requirements of 6500 dwellings over the period to 2016. (refer to Figure 3.1, below).

A3.4 The selection of sites was based on a search sequence, starting with the re-use of previously developed land and buildings and other sites within the urban area (subject to protecting important open spaces and amenity areas), then identified urban extensions (termed Strategic Development Areas), then other urban extensions, and finally new development around nodes in good public transport corridors.

A3.5 Potential sites were assessed against the following criteria:

• the availability of the sites and their suitability for housing;

• the location and accessibility of the sites to jobs, shops and services by modes other than the car, and the potential for improving such accessibility;

• the capacity of existing and potential infrastructure including public transport, water, sewage and schools;

• physical and environmental constraints including flood risk, access and contamination; and

• the ability to build communities to support new infrastructure and provide sufficient demand to sustain local services and facilities.

In addition all potential urban sites and urban extensions were assessed against 23 checklist items in a Sustainability Appraisal.

A3.6 As part of the process of selecting housing sites, undeveloped allocations in the 1999 adopted Local Plan, including those on greenfield land, were reviewed. This process confirmed that, with the exception of Land off Senwick Drive and part of Burrow's Bush (Policy WE14 and Policy WE1 of the 1999 adopted Local Plan respectively), it was appropriate to include the sites in the Alteration. The Sustainability Appraisal also confirmed Wellingborough East as the most sustainable location for an identified urban extension. As this has more than sufficient capacity to accommodate the balance of requirements over and above that which can be met by existing urban area sites, there is no need to examine further down the search sequence identified in PPG3, RPG8 and the County Structure Plan - i.e. other urban extensions followed by new development around nodes in good public transport corridors.

Housing Sites

A3.7 Figure 3.1 (below) illustrates how provision is to be made for 6500 dwellings. The allocated sites are shown on the Proposals Map and specific policies relating to them are included in Chapter 9. A number of these sites are on the periphery of the town, retaining ease of access to the town centre by public transport, foot or cycle. The allocation of Wellingborough East as a Strategic Development Area (Policy U14) offers an exciting opportunity to secure, as part of a mixed-use development, the utilisation of an area that contains a measure of previously developed land; is well related to the town, town centre and railway; and offers the potential to revitalise the older residential area to its west.

1. The 'windfall' allowance includes 119 dwellings in outstanding planning permissions at mid 2000. This figure has, therefore, been deducted from the number of dwellings in outstanding planning permissions in order to avoid double counting.

2. The estimate as to the number of dwellings that can be built on each allocated site is based on the net density set out in the site specific policies detailed in Chapter 9.

3. A 10% discount allowance, in recognition of the possibility that not all of the above sites will be developed during the Plan period, is included in Wellingborough East as a reserve area. This allowance has been applied to outstanding planning permissions and the allocated sites in Figure 3.1. The reserve area, which will need to be capable of accommodating the discount allowance of 516 dwellings, is not included in Figure 3.1 but is referred to in paragraph A3.21, Policy UH3, paragraph A9.52 and Policy U17.

The Windfall Allowance

A3.8 The 'windfall sites' allowance in Figure 3.1 consists of previously developed land and buildings that are not specifically identified in the Plan but unexpectedly come forward for housing development. These may, for example, include flats above shops or the conversion of factories that are incapable of adaption for modern day industrial or commercial use. In accordance with Government guidance (PPG3), however, no allowance is made in the Plan for windfalls on greenfield sites. Historic data indicates that 23.5 dwellings per year were, on average, provided on previously developed windfall sites of less than 0.4 ha in the town between 1992 and 2000. Continuation of this level of provision over the remaining Plan period results in an allowance of approximately 375 dwellings. Dwellings may also come forward through the regeneration of sites in the town centre of more than 0.4 ha. At present the numbers cannot be determined but the Council will take into account their contribution to housing supply over the life of the Plan when considering proposals for greenfield development.

Recycled Land Target

A3.9 PPG3 indicates that the Government is committed to maximising the re-use of previously developed land and buildings in order to promote regeneration and minimise the amount of greenfield land taken for development. A national target has been set for 60% of new housing to be built on such sites by 2008. Local planning authorities are advised to adopt a recycling target that is consistent with data taken from the urban capacity study for their area. At the regional level, Regional Planning Guidance for the East Midlands (RPG8) includes a target of 60% of additional dwellings on previously developed land and through conversions by 2021.

A3.10 Wellingborough has a limited legacy of derelict and vacant land and buildings. Of the sites allocated for housing in Figure 3.1, only those at Leys Road/Highfield Road and St John Street are entirely located on previously developed land. Of the remaining sites, those at Burrow's Bush, Doddington Road, Finedon Road and Wellingborough East do contain areas that have been previously developed but are predominantly greenfield sites. Accordingly, a more modest target than that set by the Government is appropriate. Based on the table in Policy UH3, targets of 25% over the remaining Plan period (2000 to 2016) and 25% for the period beyond 2008 are considered realistic. Notwithstanding this, however, the Borough Council is committed to the aim of giving priority to the re-use of previously developed land and buildings and will continue to seek out and encourage the use of such sites in order to reduce the need for greenfield land. Whilst the number of dwellings that have been vacant for over a year is relatively small (estimated at less than 200 in 1999 in the Borough), the Borough Council is committed to ensuring that such buildings are brought back into beneficial use. The Empty Property Strategy sets out a range of measures, including financial, that are intended to promote the re-use of redundant and empty buildings.

MANAGING THE RELEASE OF HOUSING SITES

Unallocated Sites

A3.11 Unallocated sites that emerge over the Plan period will be assessed on a similar basis to the 11 allocated sites in accordance with Policy UH1. The basic strategy is to ensure that, in determining proposals, previously developed land and buildings (brownfield) in the town should take precedence over other sites and that unwarranted greenfield development is precluded. Exceptions to this approach will only be made where a particular brownfield site has severe physical or environmental constraints, prohibitive costs of development or performs poorly in terms of sustainability. In such a case, the most sustainable of the readily developable greenfield sites in the urban area and Strategic Development Area will be favourably considered earlier when needed to maintain an adequate supply to meet the housing requirement. Judgements upon need will be made in relation to phasing requirement set out in Policy UH3.

A3.12 In terms of the sequential approach set out in Policy UH1, it should be noted that the Plan should be read as a whole and decisions will be subject to other relevant policies such as nature conservation sites (Policies G17 and G18), environmentally important open space (Policy G19), important amenity areas (Policy L5), existing employment sites (Policy E4) and development in primary and secondary shopping streets (Policies C1 and C2).

A3.13 In terms of criteria for assessing the suitability of potential housing sites, examples of infrastructure services and facilities required will include public transport and, where appropriate, modal interchanges, water and sewerage, other utilities, schools, health and community facilities and open space. Constraints to development will include flood risk, land stability and contamination - including locally occurring radon and arsenic.

Promoting the Development of Windfall Sites

A3.14 The need to recycle urban land is recognised as a priority and the emergence of previously developed sites in the town for housing will, in accordance with Policy UH1, normally take precedence. Policy UH2 is introduced to encourage greater provision of housing in the town centre on sites where mixed-use developments are appropriate. This policy will compliment a number of others in the Plan, providing for housing on windfall sites through, for example, the conversion of upper floors of commercial properties, the subdivision of existing dwellings, and the conversion of older industrial and commercial premises where proposals are in accordance with Policy E4.

Phasing

A3.15 Having identified sites for allocation and the basis upon which windfall sites will be assessed, Policy UH3 is introduced to specify the order in which development of these sites will take place over the Plan period. This is necessary in accordance with the 'plan, monitor, manage' approach of PPG3 in order to control the pattern and speed of urban growth, ensure that new infrastructure is co-ordinated with new housing development and deliver the authority's recycling target.

A3.16 The approach adopted is that of phasing over 3 phases from the base date of April 2000: 2000-2006; 2006-2011 and 2011-2016. This is appropriate in the light of the relatively small contribution expected from windfalls (between 6 and 7%), a significant proportion (20%) of the total comprised either of sites in outstanding planning consents or the residue of partially complete development areas and that 50% of development is likely to be within Wellingborough East.

A3.17 The essential complement to the phasing will be regular monitoring and review - discussed also in paragraph A3.22 et seq, below. A number of sites are identified as 'strategic' as they are fundamental to the strategy and will therefore be carried forward in monitoring. Designation is either because sites have a high brownfield element or are large sites which require certainty to encourage prior investment or are an outstanding planning permission or otherwise provide certainty of supply in the early years of the Plan.

A3.18 Monitoring may point to significant and persistent variations in supply, as defined in paragraph A3.24. This may, for example, occur if windfall developments are higher than expected or because of underestimated constraints upon a site allocated to a particular phase. In such circumstances the need for review will be assessed in accordance with Policy UH4. The Borough Council may consider the need for compulsory acquisition of allocated sites, or associated land, where necessary to secure compliance with the planned development programme.

A3.19 In the table incorporated into Policy UH3 substantial 'tailing off' of development in the latter years has not been allowed for as draft RPG8 advises that despite strategies for adjacent regions indicating that there will be less migratory pressure on the region in general, Northamptonshire will continue to be an attractive location for development. Milton Keynes has been identified as an area for possible major development within Regional Guidance for the South East. The potential for this and development within the wider sub region is to be studied across regional boundaries, to examine the Corby/Bedford/Milton Keynes/Northampton quadrangle (The Milton Keynes and South Midlands Study). The Wellingborough East Strategic Development Area, as a strategic location in the Oxford-Cambridge arc, could be expected to play a role in the accommodation of further planned growth in the medium to long term in Northamptonshire arising from the Milton Keynes and South Midlands Study or other sub regional studies. Such growth would be subject to the sequential approach and the need to avoid undue impact upon the settlements of Finedon, Irthlingborough, Rushden and Irchester.

A3.20 Outstanding planning permissions (OPPs) are included within phase 1. Windfalls have been distributed on a pro rata basis between phases. Sites within the urban area with a 'brownfield' component were 'preferred' for phase 1 in accordance with the sequential approach but the small site at St John Street is unlikely to be available for immediate development and is therefore within phase 2. Hardwick Park, Redhill Farm and Wilby Way (which are essentially residual areas of existing development with no constraints likely to delay development), together with the Doddington Road (for which planning consent has been granted in principle subject to the signing of a S106 agreement) and Windsor Road sites, are within phase 1 to provide certainty early in the Plan period. Because of its size, the Strategic Development Area extends over all phases of the Plan. Other allocated sites fall within phases on the basis of the assessments discussed in paragraphs A3.4 and A3.5, above.

A3.21 A discount allowance to reflect sites not being realised during the Plan period is included in the table in Policy UH3 for outstanding planning permissions and the urban capacity sites. It is a relatively modest 10% in view of the limited number of sites identified. As a guide, the average lapse rate over the period between 1992 and 2000 was 13%. This has been backloaded over the phases to allow for the results of monitoring to be assessed. Subject to unanticipated windfalls emerging (judged on the sequential approach), it can be assumed that provision to compensate for the discount allowance should be within the Strategic Development Area. 10% of the total allocation in the Strategic Development Area (287 dwellings) is not included in the table in order to avoid double counting but a reserve area is included in Policy U17 to allow for unforeseen constraints within the principal allocation which dictate additional land requirements. The reserve area is therefore sufficient to accommodate the discount allowance in the table in Policy UH3 (229 dwellings) plus 287 dwellings for the Strategic Development Area itself.

Monitoring

A3.22 Monitoring is essential to ensure that housing requirements are being met in line with the phasing provisions and associated policies designed to support the strategy of the sequential approach previously described. The Borough Council has operated an annual monitoring system based on housing completions, new and outstanding consents and lapses for the urban and rural areas since 1976. This system has been refined and broadened to now identify, for example, housing progress and delivery rates for previously developed land and buildings and greenfield sites from various sources and locations (including allocated and windfall sites). In common with other districts in the county, monitoring uses a base date of 1st April.

A3.23 Subject to the caveat in paragraph A3.26, approximately 12 months before the end of each phase specified in Policy UH3, the Borough Council will assess variations between requirements and provision in terms of housing numbers and the sources/location of this provision. If such variations are not apparent and windfall sites referred to in Policy UH3 are not emerging, then the Plan will automatically roll forward to the next phase.

A3.24 Where significant and persistent variations do occur it will be necessary for the Borough Council to determine whether a review or replacement of the Plan is necessary or whether changes to the phasing or site allocation will suffice. The latter will be set out in draft supplementary planning guidance, subject to public consultation prior to adoption by the Borough Council. Significant variations will be considered to be cumulatively equivalent to at least one year's average annual completion rate (361) and persistent will be in excess of 50% of the length of any phase.

A3.25 The supplementary planning guidance approach will be appropriate where variations are the result of non policy factors such as the emergence of unanticipated windfalls which conform to the strategy of the Plan or where the provision of infrastructure or remediation of constraints for allocated sites are delayed from one phase to the next. Were the Strategic Development Area to be significantly delayed, however, a more fundamental review would be necessary as this site plays a pivotal role in meeting housing requirements. Similarly, were variations the result of the policies of the Plan failing to serve the strategy, or of changes in local circumstances (including major revisions to Regional Planning Guidance or the County Structure Plan), then an alteration or replacement of the Plan will be undertaken.

A3.26 Where monitoring reveals significant variations from targets and there is reason to conclude that this will not be a short-term trend, the assessment discussed above will be undertaken irrespective of the stage reached in a particular phase.

Policies H1 to H11 inclusive of the 1999 adopted Local Plan and paragraphs 3.7 to 3.33 inclusive remain unchanged by the Alteration.

Policy H12 and paragraph 3.34 remain unchanged in relation to the rural area but in relation to the town are amended as follows:

HOUSING LAYOUT AND DESIGN

General Guidance

A3.27 To create a pleasant, safe, secure, accessible and more sustainable environment, planning applications involving aspects of housing layout and design must accord with Policy UH5. Other policies of particular relevance include Policies G1, G22, H5, H8, L7, T4 and T5.

A3.28 The minimum net density of 35 dwellings per hectare is required by the County Structure Plan to ensure the efficient use of land. Net density is defined within PPG3. It includes: access roads within the site; private garden space; car parking areas; incidental open space and landscaping; and children's play areas. It excludes: major distributor roads; primary schools; open spaces serving a wider area; and significant landscape buffer strips. All sites should seek to achieve this minimum, however it is anticipated that there will be some occasions where the requirement will not be appropriate when taking other material considerations into account. In limited cases, development at this density may prevent the requirements of the other criteria of this policy or other policies of the Plan from being met. This is most likely to be applicable on particularly small and irregular shaped sites, sites with Tree Preservation Orders or other environmental assets which need to be retained or sites with other particular constraints. Net density will however be expected to be as close to 35 dwellings per hectare as possible. Higher density development will be appropriate at places with good public transport accessibility such as the town centre, local centres, the railway station or along good quality public transport corridors.

A3.29 Whilst net densities of 35 dwellings per hectare are higher than many new housing estates built in recent years it does not equate to poorly designed development with low environmental quality and residential amenity. Higher density development not only represents a more efficient use of land, but can assist in sustaining local services and public transport and can lead to more energy efficient forms of development (eg. terraced housing). Developers should think imaginatively about designs and layouts and create places and spaces with the needs of people in mind, which are safe, attractive and have their own distinctive identity but respect and enhance local character. The aim is to give more attention to urban design and move away from overly prescribed standards. Government guidance emphasises the importance of placing the needs of people before the ease of traffic movement in residential areas. To achieve this objective Home Zones (residential streets in which the road space is shared between drivers of motor vehicles and other road users with the wider needs of residents in mind) will be strongly encouraged. The Council is committed to the national ambition that everyone should have the opportunity of a decent home. It has undertaken a housing needs survey and will keep under review the types and sizes of housing available in order to ensure that new developments offer a reasonable choice of housing and lifestyles for all.

A3.30 Settlement patterns and buildings established now will probably survive into a time when fossil fuel is likely to be less plentiful and when climate change more directly affects the local environment. Innovation in design and consideration of the anticipated lifetime of the building will therefore be important. Energy and resource efficiency are likely to be of increasing importance. Water resource use and protection of the water environment are particularly important. Some existing drainage systems may at times damage the environment and are not sustainable in the long term. Techniques to reduce these effects have been developed and are collectively referred to as Sustainable Drainage Systems (SUDs). They are a flexible series of options which allow a designer or engineer to select those that best suit the circumstances of a particular site. Where permission is granted for development employing these techniques the Council will seek to ensure that provision is made for the future maintenance of the sustainable drainage system.

A3.31 Section 17 of the Crime and Disorder Act 1998 requires Local Authorities to exercise all their functions with due regard to crime and disorder reduction. Local Planning Authorities can refuse applications where on the advice of the police they have significant concerns about the implications of a proposal on community safety. In order to show that such issues are properly taken into account applicants are strongly advised to obtain 'Secured By Design Certificates' from the police to accompany planning applications. This will be taken as sufficient evidence that adequate measures have been included within the design.

A3.32 It is recognised that not all of the criteria in Policy UH5 will be applicable in respect of every proposal. In addition, many of the objectives in the policy could be seen to conflict in certain circumstances. In determining applications the Borough Council will seek to ensure that an overall balance is achieved. Further guidance on the design and layout of housing development is available in Supplementary Planning Guidance.

Paragraphs 3.35 to 3.42 inclusive and the related Policies (H13 to H16 inclusive) of the 1999 adopted Local Plan remain unchanged by the Alteration.

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