This chapter sets out policies for residential areas and development. It deals with both the quantity and quality of housing in the borough. The plan seeks to contribute to the creation of sustainable residential communities across the borough over the first fifteen years of the twenty-first century.

The plan recognises the importance of promoting development on urban sites that have been developed previously and are in need of renewal. These are called previously developed sites', as opposed to 'green-field' sites where green space should be protected.

Following from this, it is also recognised that residential densities can be increased, provided that this is done in conjunction with a design approach that provides attractive and environmentally friendly housing. Relatively high density development also needs to be on sites that are centrally placed for public transport. Clearly, development at very low density squanders land, but this does not mean that people should be crammed together. It means that development should be at reasonable densities, that protect open spaces and respect the need for privacy.

The most recent study on residential capacity (London Planning Advisory Committee 1999) indicates that 9,750more homes can be added to Ealing's housing stock in the period 2002 - 2017. This study is supported by the Government Office for London and forms the basis for the work on housing in the Mayor of London's 'Spatial Development Strategy' (The London Plan). Future capacity studies may cause the housing target to be revised upward.

The Ealing total implies that an annual average of 650 units can be expected over the plan period (see 'The London Plan', Table 3A.1). This figure will be regarded as a minimum target for residential development. It increases the Council's previously approved figure of 540 units per annum.

The target for development will be met from sites identified in the plan (there are approximately 60 sites for housing and mixed uses listed in Chapter 10) and 'windfall' sites which have not been previously identified. It will include both large and small sites, new development and conversions, self contained and non self-contained accommodation. It will also include vacant and underused property brought back into use.

The plan deals with the different types of development, from rear extensions to new residential estates. In addition, it covers hostels and institutional accommodation, flats over shops and starter homes for key workers. It proposes that housing should be accessible for people with disabilities and establishes wide-ranging criteria to secure a good residential environment.

Indeed the Plan establishes a good neighbour approach, promoting decent accommodation for those with no homes or in the worst environments, and considering all aspects of residential areas, including the need for children's play space and local services. It is intended to ensure a proper balance between homes, jobs, services, and the infrastructure needed within defined residential communities.

To increase the quantity of housing in accordance with the agreed strategic minimum target of 9,750 new dwelling units by 2017, ensure its satisfactory quality, and improve choice to meet the needs of all residents. Priority will be given to re-using empty property, converting existing buildings, and making best use of previously developed land.

Policies for Housing

London's economic success means that there is strong demand for housing from people who want to live and work in the capital. Supply cannot match demand and hence house prices have been driven up. This causes particular hardship for those with modest incomes. The government's theme of 'urban renaissance' is intended to promote a positive approach to housing supply, so that social inclusion is tackled and sustainable residential communities are created. In other words, the aspiration is an optimum supply of housing, where residential accommodation is matched by the provision of sufficient social and community facilities (leisure, education, social care etc), and easy access to employment opportunities.

On this basis, the Council will review the capacity of the borough to accommodate additional residential development, in the context of the housing provision figure indicated by the Greater London Authority in the Mayor's Spatial Development Strategy ('The London Plan', Table 3A.1). In Ealing, urban land uses are well established across the whole borough, and remaining green space is a valuable asset for recreation and amenity. On this basis, increases in housing supply will necessarily be achieved on previously developed land.

Given the level of need, it is important to retain existing housing wherever possible. This includes houses, flats, and non self-contained accommodation. The only exceptions would be when replacing existing housing with a greater or equivalent amount of residential accommodation, or when the local planning authority recognises that there is a particular need for a community facility (e.g. nursery or health care) for residents in the immediate locality.

Additional dwellings can be accommodated in residential areas through in-filling, redevelopment and conversion, particularly in areas with an overall low density. There is potential for better use of existing dwellings - including those which are under-used or vacant. Unwanted space in family homes or above shops can be adapted for subletting, and for conversion into self-contained units. Dwellings that have been vacated because they are earmarked for redevelopment can be made available for short-term use, pending demolition. In addition, there is the possibility of changing suitable non-residential premises to residential use, where appropriate standards of amenity can be provided. Similar considerations apply to the provision of residential development outside established residential areas.

The appropriate density for development containing a mix of both housing types will be assessed in relation to the proportion of the development in each category. The applicant will be required to submit sufficient detail on all outline applications over 185 hrh (75 hra). In any case, approval of development will not be dependent on the guidance in Table 5A, but on compliance with the policies in the plan.

In certain locations in the Borough, the density may be restricted by site constraints, or by the character of the area. Such locations include Conservation Areas, small infill sites, and particularly backland sites (see Policy 5.5), where development is unlikely to be acceptable if it exceeds two storeys or 150 habitable rooms per hectare. However, development below this density anywhere in the borough is unlikely to be acceptable, as it does not make optimum use of the site.

There may be greater scope for higher residential densities outside residential areas. These might be associated with the development of a mix of uses in the same building. Office blocks, which are no longer required in their original use, may have potential for conversion into residential blocks. Property in and near the main shopping centres and stations can be considered for higher density residential accommodation.

The high demand for housing in the South East of England, and in West London in particular, means high prices and a lack of affordable housing. This means ever increasing housing need, affecting many of the vulnerable groups who are traditionally catered for by social housing. It also affects other people who are not regarded as being in priority need, but who cannot afford to pay Ealing prices for accommodation. Accommodation for these groups is defined as intermediate, as opposed to social, affordable housing (see definition in Glossary). Increased provision of affordable housing is essential in combating social exclusion and for the economic welfare of West London. The ratio of social to intermediate housing should be determined having regard to the circumstances of the area and the Mayor of London's assessment of a 70/30 balance (The London Plan, Policy 3A.7).

Affordable Housing - i.e. housing available to households that cannot afford to buy in the housing market in Ealing (see Glossary extract overleaf) - should be provided wherever possible. Indeed, this is a requirement of government policy (in Circular 6/98 and PPG3) and has been taken up as planning policy at both regional and London-wide levels. Affordable housing will be sought from all possible sources and not just proposals subject to legal agreements.

The London Plan has a strategic target that 50% of all additional housing should be affordable (The London Plan, Policy 3A.7). This includes affordable housing from all sources and not just that secured through planning obligations. It comprises all types and tenures of housing, and includes 100% affordable schemes by registered social landlords, intermediate housing and non-self contained accommodation, gains from conversions and bringing vacant properties into use, as well as new housing. The achievement of affordable housing will be closely monitored against the total output of additional housing towards the London Plan target of 30,000 homes per year (The London Plan, Policy 3A.1). This overall target of 50% of all additional housing is an appropriate basis for planning in Ealing.

Affordable housing will also be sought on other sites, if these are artificially below the development threshold because of a high proportion of large units, or the phasing of the development.

Where a developer controls a number of development sites in the borough which are above the size threshold for affordable housing, the 50% target relates to the total number of units, with the actual number per site to be agreed with the Council.

It should be noted that the Council will seek affordable housing where sites are developed in stages, which, when developed as a whole, would provide 15 or more dwellings. The same approach will be taken in cases where consecutive proposals for housing on the same site cumulatively take the total development over the threshold.

Consideration of housing need in Ealing also indicates that 50% of the units on all eligible sites should be affordable housing. This is consistent with research findings published by the Three Dragons and Nottingham/Trent University on behalf of the Greater London Authority, and used in the preparation of the London Plan. It is expected that the 50% target will be forthcoming in all cases, provided that this does not prejudice the viability of the development project as a whole.

The Council wishes to increase the proportion of dwellings accessible to people with disabilities, in line with the boroughs needs.  This is estimated to be 10% of residents having some form of disability, thereby affecting 33% of households. The policy extends to new residential buildings and conversion schemes.

Ultimately, the range of dwelling types will depend on any constraints imposed by site characteristics, and the potential to achieve a viable residential project. However, it is not expected that this will normally require more than marginal adjustments to the desired range. Effectively, the advice of the Council's Housing Group will be sought in respect of the priorities arising from the local housing needs profile. The Council's latest advice on the range of housing types needed in relation to local needs is set out in the Supplementary Guidance on Affordable Housing.

The range negotiated on a site will be sensitive to population change - e.g. increases in smaller households indicate a need for more smaller units, large (perhaps extended) families pointing to a requirement for a particular proportion of large units. It will generally be expected that both conversions and new development in the private sector will place greater emphasis on small units than registered social landlords are able to do. Conversely, large units that contribute to housing need are more likely to be provided by the social housing sector. In general terms, and in the interests of sustainable residential communities, the Council will resist the over-concentration of particular dwelling sizes in different parts of the borough. This will be beneficial in encouraging more vitality in areas and maintaining the viability of community facilities such as health centres and schools.

The Council recognises the needs of a variety of groups; particular consideration will be given to family accommodation, the needs of women, elderly people, minority groups, people with disabilities and students.

Promoting the construction of extensions to overcrowded dwellings, where this would comply with safety, environmental and building standards;

Approaches to residents and owners, including information on financial aid and guidance on acceptable schemes;

Providing for this type of dwelling in the Council's own programme of development and acquisition, and encouraging Housing Associations to do the same;

The Council will facilitate development which is intended to improve the design quality and sustainability of defined residential areas, and will seek to bring poorer residential communities up to the standard of the best.

Good Living Conditions for Residents

The authority is concerned to achieve a satisfactory layout of buildings and spaces in respect of aspect, daylight and sunlight. This should prevent overlooking or overshadowing.

Adequate space for children to play is required in all residential development. The authority will normally expect developers to provide separate play space for any development with 10 or more child bed-spaces, to at least a standard of 3 square metres of fully equipped play-space per child bed-space. Further information on these requirements is provided in Table 3F in Chapter Three.

Good Architectural Quality

Housing accounts for the vast majority of new development. Government guidance indicates that it should be designed around the needs of people, and make architectural reference to the locality. Developers are invited to think imaginatively about design and layout.

Good architectural quality is a requirement of residential development and all other development in Ealing. The policy framework for this is included in the Urban Design chapter. It includes satisfactory landscaping, sufficient protection from environmental noise, and access for all. Development should ensure a secure environment both day and night - this will require particular consideration being given to the layout and lighting of footways, footpaths, streets and semi private areas, and the siting of car parking areas.

Good relationship to its setting

In a borough like Ealing, embedded in the Greater London conurbation, developers are encouraged to look for underused or vacant sites within residential areas. This is clearly a necessity if the housing requirements of the borough are to be met, but it creates special challenges for urban design.

Where infill development is proposed on backland sites, proposals will be evaluated on the basis of the criteria set out in Table 5F. Enough detail must be included in applications for backland or garden development to enable the criteria to be considered.

Sustainability Principles

Transport access, energy conservation and waste management (including provision for the collection and storage of recyclable materials and refuse) must be properly catered for in all residential developments. Policies for these aspects of development are set out in the Transport, Urban Design and Environmental Resources and Waste policies.

As far as transport is concerned, there should be easy access to housing development by public or other transport such as bicycles, e.g. through the provision of bus stop facilities and turning facilities where appropriate, and safe cycle routes and secure cycle parking. There should normally be off-street parking too. Service access is of course important, including access and turning space to meet the requirements of the London Fire Service, and for door to door collection vehicles for refuse and recycling materials.

Satisfactory design of buildings on 'sustainability principles' means incorporating energy and water efficiency features, and provision for the storage of waste to be recycled or collected for disposal. In addition, in the interests of the best use of previously developed land, permission will normally be withheld if the development would prejudice the development potential of adjoining land. Development outside residential areas on suitable sites will be considered, including mixed developments, subject to the provision of residential amenity, open space and the availability of educational facilities.

Existing demand and projected population change indicate a continuing need to increase the proportion of small units created through development.

Residential developments incorporating small units will be promoted in the network of shopping centres across the borough, as these are good locations for public transport and for local services. However, it is likely that space for private gardens will be at a premium, so non-family accommodation will be particularly appropriate. This type of use may be ideal as part of a mixed development, with retail or similar uses on the ground floor.

The Council recognises the housing demands of various vulnerable groups such as older people, households facing homelessness, and people with special needs. The policy on special housing is to facilitate provision to meet the immediate requirements of these groups.

The needs of households who may or have become homeless, are best responded to by the provision of affordable housing, and indeed by the supply of land for business and employment. However, there is also a pressing need for good quality hostel type accommodation, to provide temporary shelter for people who find themselves in this situation. The policy recognises that this type of accommodation is a legitimate component of a balanced (sustainable) residential community, and it is intended to assist the Council to meet its responsibilities to homeless people. It anticipates the requirements arising from the Housing Bill, which imposes a duty on local housing authorities to formulate and publish a homelessness strategy.

Standards for residential care homes for the elderly should comply with the above, though some flexibility is acceptable, provided the amenities of residents, staff or visitors and other local residents are allowed for in the scheme. Cars should not dominate the view from the resident's sitting room or be within 3 metres of any bedroom or dining room. Internal accommodation standards and garden space and other facilities described in supplementary guidance will be used to determine the suitability of the proposed home, in consultation with Social Services.

Where the development is for sheltered housing and residential care homes, it would be desirable for the site to be close to local facilities, including post office, dispensing chemist, primary healthcare facilities and public transport.

This policy is based on the government's requirements for the provision of sites for travellers. Any additional provision will be based on an assessment of need for accommodation in Ealing, as required by Circular 1/94, based upon up to date information regarding population trends and patterns of movement of travellers.

In addition, the provision of a travellers' site must be compatible with the existing and planned uses in the area. This of course includes environmental amenity in residential areas and the need to protect Green Belt, Metropolitan Open Land and public open space.

Families may need to extend their homes, to meet the changing requirements of children or elderly relatives, and to improve living conditions. In many cases, alterations to people's houses will be 'permitted development', which means that it will not require planning permission, except in Conservation Areas. Residents in Conservation Areas are likely to find that they require planning permission for alterations.

The policy set out above deals with situations where permission is required, and indicates how the authority will safeguard the environment for the occupants, for neighbouring residents, and for the wider community. Applications for residential extensions and alterations will be considered in the light of Policy 5.9, as amplified in Table 5G. The policy indicates the importance of the architectural quality of any change to a property and of taking into account the character of the area. A neighbourhood does not have to be specially designated as a Conservation Area for "character" to be an important consideration. For example, the Ravenor Park estate in Greenford owes its character to the predominance of (mostly pre-war) bungalows. The authority is committed to protecting this unique area by refusing development which would be out of character.

In considering alterations to the street frontages of residential property, including proposals for vehicle access, the Council will try to retain a reasonable front garden with some greenery, in order to prevent harm to the street scene. Wherever possible, the opportunity will be taken to encourage an improvement to the street scene. A planning application is usually required for a new vehicular access to flats and other property. However, it is only required for access to a single family house, where the street happens to be a trunk or classified road, or the proposal could give rise to conditions considered dangerous to highway users. Permission will also be required if the house is in a Conservation Area and is covered by an Article 4 direction.