B43 Chapter 8 - Housing

Housing Strategy

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Introduction

8.1

One of the stated objectives of the Local Plan is to minimise the provision for housing in excess of the Structure Plan requirement for about 8,700 new dwellings in North Norfolk in the period 1988 to 2006. Such an objective can only be satisfactorily achieved if the opportunities for permitting further housing proposals are severely restricted. The excess provision for housing in North Norfolk, as of mid-1997, is detailed in Fig. 10 below.

Fig. 10: Provision for Housing in North Norfolk as of 30 June 1997

	Dwellings
a) 18-year Structure Plan requirement for North Norfolk District (1.7.88 - 30.6.2006)	8,700
(b) 9-year completions to 30.06.97 plus dwellings under construction	7,086
(c) Sites with full planning permission	1,714
(d) Sites with outline planning permission	611
(e) Sites with planning permission less 10% for sites not coming forward* [(c)+(d)]-10%	2,093
(f) Replacement dwellings granted planning permission on 'new' sites from 01.07.96 to 30.06.97#	22
(g) Total provision [(b)+(e)-(f)]	9,157
Excess provision [(g)-(a)]	457

Notes:

* As recommended in the Roger Tym & Partners report 'Housing Land Availability', published by The Stationery Office.

# The Structure Plan housing requirement for North Norfolk District (1988 - 2006) includes an allowance for demolitions and other losses to the housing stock. From 01.07.96 this allowance is being supplemented by the Council's monitoring of replacement dwellings. 'New' sites are those with no history of planning permission recorded.

The Supply of New Dwellings

8.2

Owing to the fact that the Structure Plan requirement has been substantially exceeded with nine years of the Structure Plan period remaining (as of mid-1997), the Local Plan does not allocate any sites for residential development. However, it is unrealistic to propose a total ban on allowing further residential developments throughout the period of the Local Plan up to 2006. Within the restrictive confines imposed by the development strategy (Policy 1: Growth Towns, Policy 2: Small Towns, Policy 3: Large Villages, Policy 4: Selected Small Villages, and Policy 5: The Countryside), there is still scope for new housing sites to come forward (i.e. sites not benefiting from planning permission for residential development as of 30.06.97) that will not significantly conflict with the environmental objectives of either the Local Plan or the Structure Plan. Such sites are commonly known as 'adventitious' or 'windfall' sites.

8.3

Given the excess provision for housing in North Norfolk, it was not considered necessary to make an assumption as to the total number of proposed dwellings that will be permitted on windfall sites in accordance with the development strategy over the Local Plan period. The Council does, nevertheless, expect the number of dwellings to be significant, as evidenced by a survey of windfall sites in the Growth Towns, Small Towns, Large Villages and Selected Small Villages that were granted planning permission between July 1st 1995 and June 30th 1997 (see Fig. 11 below).

Fig. 11: Windfall Sites - July 1995 to June 1997

Period	Dwellings
01.07.95-03.06.96	142
01.07.96-30.06.97	153

8.4

In order to guide future residential development in accordance with the development strategy, the proposals map insets identify a number of sites over 0.4 ha, situated within the settlement boundaries, which had planning permission for housing on 30 June 1997. Only those sites where either development had not yet commenced or a significant number of dwellings remained unbuilt are shown. Where two or more such sites adjoin one another then they are shown as one site for presentational purposes.

The Density of Residential Developments

8.5

Many residential areas have their own intrinsic amenity and character that could be adversely affected by insensitive housing developments, especially in view of the increased dwelling densities often being proposed by developers. Although there has been a well-established trend towards higher dwelling densities over the years, it has recently become more pronounced as house builders respond to the demand for low-cost, one and two-bedroom houses and flats for first-time buyers.

8.6

This trend is expected to continue given Government advice on the location of new housing development contained in PPG 13. This, in paragraph 3.3, requires local authorities, through their local plans, to:

- 'concentrate higher-density residential developments near public transport centres, or alongside corridors well served by public transport (or with the potential to be so served) and close to local facilities; and

- set standards to maintain existing densities and where appropriate increase them'.

8.7

Therefore, whilst encouragement should be given to higher densities of residential development in appropriate circumstances, it is important to ensure that excessive site densities that are detrimental to the amenity and character of the surrounding area are not permitted.

Monitoring Housing Land Supply

8.8

In its PPG on 'Housing' (PPG 3), published in March 1992, the Government advises that local authorities should aim to ensure the availability of five years' supply of housing land judged against the general scale and location of development provided for in approved structure and adopted local plans. This land should be genuinely available in practical terms.

8.9

In 1990, the Council agreed to join with the other Norfolk district councils, the County Council and the House-Builders' Federation (HBF) in undertaking a County-wide residential land availability study. The base date of the study was 30 June 1990. The study (published in June 1992) concluded that, based on the Structure Plan (Submitted Memorandum: February 1991), there was a 9 years, 5 months supply of housing land in North Norfolk.

8.10

In 1992, the same local authorities reviewed the 1990 study but, on this occasion, without the assistance of the HBF. The work on the 'Housing Land Availability in Norfolk Statement' concluded that in North Norfolk the actual housing land supply as of June 1992 was 16 years, 7 months. As a result, the supply of housing land in North Norfolk still comfortably exceeds the Government's requirement.

Policy 55: Monitoring Housing Land Supply - expired 27/09/2007
The availability of housing land will be monitored in order to ensure the maintenance of a five-year supply.

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Specific Housing Issues in North Norfolk

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Introduction

8.11

The Housing Strategy deals with the means by which the Council intends to conform with the housing provision requirement of the Structure Plan. The following policies concern more specific housing issues which the Council expects to arise in North Norfolk.

Affordable Housing

8.12

The Council's role as Housing Authority is changing. In particular, the Government is encouraging the Council to place growing emphasis on its role as an 'enabler' of private sector housing provision, both for purchase and for rent. House builders provide a variety of housing types at a range of prices. However, much of the market housing available is not affordable to a significant proportion of the community. The Council is therefore keen to promote the provision of 'affordable housing' by others so as to ensure that everyone in the area is adequately housed.

8.13

In its Circular 06/98: 'Planning and Affordable Housing', the Government defines the term affordable housing as 'both low-cost market and subsidised housing (irrespective of tenure, ownership - whether exclusive or shared - or financial arrangements) that will be available to people who cannot afford to rent or buy houses generally available on the open market'. In the Local Plan, the term 'local need for affordable housing' refers to that of people who meet the requirements of the Council's current Social Housing Registration and Allocation Policy subject to each policy's definition of the meaning of 'local'. Notwithstanding these individual definitions, where occupancy criteria are included as part of conditions or planning obligations relating to affordable housing permitted under these policies, a 'cascade approach' will apply. This means that should affordable housing affected by such conditions or obligations prove difficult to let or sell, then the term local as defined in each policy will be widened to include the whole of North Norfolk District. Given the limited opportunities for securing affordable housing provision in the Local Plan, it is not considered appropriate to widen the eligibilty criteria any further than this.

8.14

The essential feature of affordable housing - whether achieved through new house building or conversion - is that it is granted planning permission on the basis that secure arrangements have been made to ensure that the benefit of affordability will be enjoyed by successive as well as by initial occupiers of the property. The Government has made clear that it considers a community's need for affordable housing to be a material planning consideration that may properly be taken into account in formulating development plan policies.

8.15

In February 1993 consultants were commissioned by the Council to undertake a District-wide survey of housing need. This survey (see Part E, Annex 2) shows that there is a lack of affordable housing to meet local needs. Based upon evidence of need the Council has been able to indicate targets for the provision of affordable housing throughout North Norfolk.

8.16

In PPG 3, the Government offers two methods for achieving affordable housing in order to take account of different planning circumstances.

Affordable Housing on Large Housing Sites within Growth Towns, Small Towns and Large Villages

8.17

The first method covers the provision of affordable housing on large development sites in both urban and rural areas. The Government encourages local planning authorities to negotiate with developers for the inclusion of an element of affordable housing provided such provision can be supported by evidence of need. The 'affordability' of such housing achieved by this method is usually obtained by 'cross-subsidy' (i.e. the high value of one part of a development, whether for housing or another use, is used to offset a lower return on the affordable housing element). Alternatively, under the provisions of Circular 06/98, the local planning authority and the developer can agree that, on particular sites where a requirement for an element of affordable housing would be appropriate, it is nontheless preferable that a financial or other contribution should be made towards the provision of the element of affordable housing on another site in the local planning authority's area. Negotiation can apply to large housing sites that come forward during the period of the Local Plan, and to sites with planning permission that are the subject of revised proposals for an overall increase in dwelling density.

Affordable Housing Schemes in the Countryside

8.18

While the above policy addresses the need for affordable housing in the larger settlements of North Norfolk, it fails to meet the requirements of those areas in and around the Large Villages and Selected Small Villages. In these more rural areas there are particular problems in securing an adequate supply of affordable housing, a situation that threatens the viability of many local communities. With such a concern in mind, the Government has introduced a second method of achieving affordable housing, specifically for villages, which it calls the rural 'exceptions' scheme.

8.19

The Government advises that a proposal for affordable housing to meet local needs is a material consideration that the local planning authority should take into account in making planning decisions. The Government therefore requires that such a consideration should particularly be taken into account in considering the release of small sites which development plans would not otherwise allocate for housing within or adjoining existing villages, and on which housing would not normally be allowed. In the Local Plan such sites apply only to those adjoining the Large and Selected Small Villages. Affordable housing achieved by this means is subsidised by the site in question being acquired for well below the market value for housing, since it would not otherwise be granted permission for housing development.

8.20

Proposals for affordable housing that are permitted in this manner should be regarded as additional to the provision required by the Structure Plan. Therefore, the total number of dwellings permitted by this means would not serve to increase the current excess provision for housing in North Norfolk.

Affordable Housing Schemes in the Selected Small Villages

8.21

The Council is also concerned that encouragement should be given to affordable housing schemes within Selected Small Villages whenever opportunities arise. Accordingly, it is prepared to allow residential proposals for more dwellings than would otherwise be permissible under Policy 4: Selected Small Villages provided that the excess is made up entirely of affordable housing. Any such proposal will only be permitted in accordance with Policy 58: Affordable Housing in Selected Small Villages.

Housing Suitable for People with Disabilities

8.22

The Council's 1993 Housing Needs Survey indicated that over 5,100 households contained one or more persons with a disability. The vast majority of these people (85%) suffered from a physical disability. Government guidance in PPG 3 does not permit the Local Plan to impose detailed standards on the internal design of housing that can meet the needs of the disabled. Nevertheless, it is the Council's intention to ensure, as far as possible through the planning system, that new housing, provided it is on suitable sites, will be accessible to the disabled - that is with access suitable for visitors with wheelchairs. This measure alone could provide significant benefits. For example, the Access Committee for England (ACE) estimates that even among wheelchair users, some 50-75% of people can manage without their wheelchairs inside their homes.

8.23

Sites suitable for housing with this special access provision will normally be located close to shops and public transport, and be in an area of level ground. Occasionally, there may be overriding reasons why such sites are considered unsuitable; for example, where conservation demands for architectural conformity would make it impractical to provide satisfactory level access to the dwelling.

Policy 59: Housing for People with Disabilities - expired 27/09/2007
Subject to site conditions and location, the Council will seek to negotiate that all new dwellings with a ground floor entrance should be built with access suitable for visitors with wheelchairs.

Wheelchair Housing

8.24

Wheelchair housing is suitable for people who are permanently dependent on wheelchairs for mobility. It generally needs to be on one level, and in addition to easy access it should have sufficient space to allow for full wheelchair manoeuvre throughout. However, very little of this type of housing is available in North Norfolk. To redress this imbalance and enable people with disabilities to have a choice of different types and tenures of housing in the future, a proportion of new general-purpose housing should be suitable for adaptation to wheelchair housing (in accordance with the standards set out in 'Wheelchair Housing' - HDD Occasional Paper 2/75, DOE 1975). The 1993 Housing Needs Survey showed that there were almost 600 households across North Norfolk that included one or more persons with disabilities who were permanent wheelchair users.

8.25

Since there is an additional cost in providing the more generous space standards required, it is appropriate that wheelchair housing provision is only sought in larger schemes of twenty or more dwellings that are on suitable sites. In such schemes the Council will seek a fifteen per cent quota of dwellings to be provided as wheelchair housing, as a basis for meeting the identified need for this type of accommodation. Sites suitable for wheelchair housing will normally be located close to shops and public transport, and be in an area of level ground. Occasionally, there may be overriding reasons why such sites are considered unsuitable; for example, where conservation demands for architectural conformity would make it impractical to provide satisfactory level access to the dwelling. Alternatively, developers may consider that it is preferable to give a financial contribution towards the provision of wheelchair housing on a different site in the local authority area.

The Conversion of Dwellings into Flats

8.26

The conversion of dwellings into flats can often enable a more efficient use of large properties that are worthy of retention and can provide an opportunity for their renovation. However, conversions do need to be controlled so that the amenity and character of residential areas is protected.

8.27

Harmful effects on individual neighbours through noise, disturbance and loss of visual amenity can be avoided by carefully-designed layouts and attention to detail. Such an approach will have the added benefit of ensuring a reasonable standard of accommodation for future occupiers of the flats. In order to make an informed assessment of these issues detailed floor plans of all proposals will be required.

Conversion to Houses in Multiple Occupation

8.28

Houses in Multiple Occupation (HMOs) are an important element of the housing market, providing housing for people who cannot afford a better standard of accommodation. However, they can exhibit some of the poorest housing conditions and are increasing in number in North Norfolk. In addition, their mode of occupation may give rise to a greater likelihood of noise problems which may cause disturbance to nearby dwellings in quieter residential areas. Problems of inadequate fire protection and lack of basic amenities may affect the house itself.

8.29

On the other hand, the development of HMOs in town centres can help to maintain their vitality and viability by increasing activity, while ensuring that buildings are kept in good repair. The residents will stimulate shopping, restaurants and cafés, and other businesses to serve them, and so in turn add to vitality. Moreover, town centre locations will provide residents with easy access to services, thus reducing the need to travel, and to public transport facilities. For these reasons, it is considered appropriate that HMOs should only be permitted within the designated Town Centres.

8.30

A HMO is defined by the Housing Act 1985, as amended, and the Housing Act 1996 as a house, or flat (whether purpose-built or converted) whose occupants do not form a single household. However, as conversions to self-contained flats are dealt with by Policy 61: Conversion into Flats, Policy 62: Houses in Multiple Occupation is solely concerned with houses let out as rooms or 'bedsits'.

8.31

Both the Planning and Environmental Health Departments of the Council have responsibilities with regard to HMOs. Whilst planning is concerned with the quality of the environment, environmental health seeks to improve the physical conditions of HMOs through the implementation of the Housing Act 1985, as amended, and the Housing Act 1996. These Acts empower the Council to identify and monitor HMOs, to set and implement standards of fitness, and to monitor and control the overcrowding and management of HMOs. The Council has adopted comprehensive standards which all HMOs are required to meet, and in order to make an informed assessment of these and other issues detailed floor plans of all proposals will be required. (NB: Certain categories of Houses in Multiple Occupation are required to be registered under the Council's Registration Scheme which contains control provisions.)

Tandem Residential Development

8.32

'Tandem' residential development is the siting of a dwelling immediately to the rear of an existing dwelling and, in most cases, sharing the same access. Lengthy rear gardens are particularly susceptible to such proposals. This type of development is generally unsatisfactory because of the difficulties of access to the house at the rear (especially by service vehicles) which can lead to a variety of access arrangements, and because of the disturbance and loss of privacy and amenity suffered by the house in front and other adjoining properties.

Policy 63: Tandem Residential Development - expired 27/09/2007
Development proposals for tandem residential development will not be permitted unless there would be no significant detrimental effect on the amenity and character of the surrounding residential area, including adjacent dwellings.

Extensions to Dwellings in the Countryside

8.33

Very large extensions or poorly designed and located ones, individually and collectively, can damage the amenity and character of the Countryside and contradict the policy of restraint on general building in this area. Therefore, whilst householders should be allowed some scope to adapt and extend their homes to meet their particular requirements, it is necessary to be more restrictive towards extensions in the Countryside than in the designated settlements.

Replacement Dwellings in the Countryside

8.34

The policy of restraint on general building in the Countryside applies to the establishment of new permanent residential buildings on sites occupied by structures not intended as permanent dwellings and which have become structurally unsound. However, it is reasonable to provide for the replacement of permanent residential buildings that are damaged or structurally unsound if the use of the building as a dwelling has not been abandoned. Well-designed replacement buildings should have no detrimental effect on the amenity and character of the surrounding Countryside; indeed, sometimes the amenity and character may be enhanced.

Agricultural and Forestry Workers' Dwellings in the Countryside

8.35

One of the few circumstances in which the Government considers isolated residential development may be justified is when accommodation is required to enable agricultural or forestry workers to live at, or near, their place of work.

8.36

In the great majority of cases, agricultural and forestry workers will be expected to find accommodation in nearby towns or villages, or in existing isolated dwellings. However, there will be some instances in which the demands of the agricultural or forestry work concerned may make it essential for one or more of the people engaged in this work to live at, or very close to, their workplace. If suitable accommodation is not available to meet this need then a new dwelling will be required.

8.37

In considering a proposal for a new dwelling the Council will want to establish, via a functional test to be undertaken by the applicant at his/her expense (and possibly a financial test if the functional one proves inconclusive), whether it is essential for the proper functioning of the enterprise for one or more workers to be readily available at most times. If the need for a new dwelling is agreed, then careful control of the siting, size and design of any new building is essential in order to protect the appearance and character of the Countryside.

8.38

Any planning permission granted for a new agricultural or forestry worker's dwelling will need to include a condition that ensures that the dwelling is not readily sold as general housing, and resulting in unnecessary development in the Countryside. Furthermore, the Government (in its PPG on 'The Countryside - Environmental Quality and Economic and Social Development' [Revised PPG 7], published in February 1997) makes provision for local planning authorities to apply other safeguards in respect of such permissions so that the concession that the planning system makes for agricultural and forestry workers' dwellings is not abused.

Removal of Agricultural and Forestry Workers' Occupancy Conditions

8.39

Changes in the scale and character of farming and forestry in response to market changes may affect the longer-term requirement for dwellings for which permission has been granted subject to an occupancy condition. The Government's advice on the matter (set out in Revised PPG 7) is that such dwellings should not be kept vacant, nor should their present occupants be unnecessarily obliged to remain in occupation simply by virtue of planning conditions restricting occupancy that have outlived their usefulness. Applications for the removal of occupancy conditions should be considered on the basis of realistic assessments of the existing need for them, bearing in mind that it is the need for a dwelling for someone solely, mainly or last working in agriculture in an area as a whole, and not just on the particular holding, that is relevant.

Residential Caravans

8.40

Caravans, mobile homes and other movable structures can provide permanent housing accommodation. They can also have an impact on both rural and urban environments in the same way as immovable forms of housing accommodation. Therefore, with a few exceptions, it is appropriate to treat proposals for residential caravans in a similar manner to those for new housing.

Gypsy Sites

8.41

The Government advises (in Department of the Environment Circular 1/94: 'Gypsy Sites and Planning') local planning authorities to assess the need for gypsy accommodation in their areas and make suitable locational and/or criteria-based policies against which to decide planning applications. The Council's frequent monitoring of gypsy visits to North Norfolk has shown that there is insufficient demand to warrant the provision of a permanent site for gypsies. Consequently, the Council has not identified such a site in the Local Plan. Any planning application for a permanent gypsy site will be decided having regard to the Structure Plan policy on gypsy sites and the policies of the Local Plan.

Sites for Travelling Showpeople

8.42

The Government advises (in Department of the Environment Circular 22/91: 'Travelling Showpeople') that local planning authorities should consider the needs of travelling showpeople when preparing their local plans. Showpeople are self-employed business people who travel the country holding fairs, chiefly during the summer months. Although their work is of a peripatetic nature, showpeople nevertheless require secure permanent bases for the storage of their equipment and, more particularly, for residential purposes. Typically, a site comprises areas set aside for the showpeople's accommodation - usually caravans and mobile homes - and areas where vehicles and fairground equipment can be stored, repaired and tested.

8.43

The Showmen's Guild of Great Britain has indicated that there is no current need for a site for travelling showpeople in North Norfolk, and therefore the Council has not identified such a site in the Local Plan.

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