Greenwich Unitary Development Plan

3. HOUSING

GENERAL POLICIES AND POLICY CONTEXT

3.1

The Council recognises the major role housing plays in shaping the social, economic and physical character of the Borough. The general policies are:

SH1	To provide sufficient land to allow for the completion of at least 16,100 net additional dwellings between 1997 and 2016.

SH2	To ensure the development of balanced and mixed communities and to meet the varying needs of households, especially those with special needs, by providing a suitable range of dwellings by type, size and affordability.

SH3	To retain and improve the existing housing stock.

SH4	To provide a high quality sustainable residential environment and to ensure that new housing is built to a high quality design.

SH5	The scale of housing need in the Borough for affordable housing is such that the Council will seek to ensure that at least 35% of the dwellings provided between 1997 and 2016 are affordable to those on low and lower incomes.

SH6	The Council will facilitate the regeneration and renewal of South Greenwich to alleviate the physical and social isolation of the area and to enable the development of mixed communities and sustainable neighbourhoods.

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BOROUGH CONTEXT AND REASONS FOR PART ONE POLICIES

Households

3.2

Between 1991 and 2004 the number of households in the Borough increased from 86,500 to 93,200, reflecting the major housing developments in Thamesmead and on the Waterfront coupled with the continued rise in smaller households. This increase is expected to continue with an estimated 103,200 households by 2011 and 105,400 by 2016. From 1971 to 1991 average household size fell from 2.85 to 2.45 persons. However the most recent projections assume this will remain stable upto 2016. (GLA 2003 Demographic Projections Scenario 8.1).

3.3

The nature of these households is also changing. There is a significant growth in single person households such that they comprised 32% of households in 2001, estimated to rise to 34% in 2011 and to 36% in 2016. The increase in these households accounts for between 70% and 80% of the increase in the total number of households. The increase is largely made up of an increase in single person households between the ages of 30 and 64 who increase as a proportion of single person households from 35% in 1991 to 55% in 2016. In contrast the number of one person households of pensionable age declines slightly but as a proportion of one person households falls from 52% in 1991 to 33% in 2016. The number of lone parent households is expected to rise upto 2016. (Source: GLA 2000 Demographic Projections). There are about 12,000 people with disabilities in the Borough, whose housing needs require particular attention. There are people with mental health requirements and people with learning needs who wish to live independently with support in the community.

3.4

Housing needs are becoming more varied as a result of the changes in household and population structure shown above and in Part One. Add these to existing unmet need and there are formidable issues to be tackled in the next decade. This will increase the demand for affordable housing, accessible housing which can meet the needs of people with mobility difficulties; and for types of housing which provide support.

Housing Stock

3.5

Between 1991 and 2001 the number of dwellings in the Borough increased by about 7%, making housing the largest user of land in the Borough, occupying roughly 35% of all land. The London Housing Capacity Study (GLA 2000) carried out for 1997 to 2016 shows potential for 14,690 additional dwellings mainly from large sites (11,256 units), small sites (870 units), conversions (1,120 units) and windfalls (1,440). Over 70% of these dwellings had planning permission at the time of the study. If ‘non conventional capacity‘ – non self–contained accommodation (1,200 units) and a reduction in vacant dwellings (200 units) – is taken into account this potential increases to 16,100 dwellings (800 per annum). The latter figure is included in the London Plan as the additional housing provision figure for the Borough. Between 1997 and 2004 planning permission has been granted for 20,713 dwellings (net). At 2,589 dwellings per annum this significantly exceeds the annual capacity estimate. The planning permissions include 10,010 units on Greenwich Peninsula (in addition to those being provided at Greenwich Millennium Village), over 1,800 units at the Gallions Reach Urban Village and over 1,000 units in the Royal Arsenal. Residential completions between 1997 and 2004 totalled 8,198 units (net). At 1,025 dwellings per annum this is 27% above the capacity estimate, and it is anticipated it will be further exceeded as planning permissions are implemented.

3.6

The tenure of housing has changed with the 1970s with the proportion of public sector housing rising to 47% in 1981 followed by a decline to 38% in 1991 and to 29% in 2001, as a consequence of right to buys and stock transfers to housing associations. Owner occupation increased over the same period. In the 1980s the private rented sector declined but increased in the 1990s, while Housing Association / Registered Social Landlord stock expanded to around 5% in 1991, and to 10% by 2001.

3.7

Nearly one–third of the stock was built before 1919 and a further one–third was built between 1919 and 1939. Housing conditions in the Borough, particularly in the older properties, are of serious concern with one in ten dwellings in the private sector either in serious disrepair or unfit. Significant improvements are needed to the Council housing stock to bring it up to a good standard of repair with modern facilities. Poor housing conditions are often accompanied by a poor residential environment, both visually and physically, a lack of a usable amenity open space, and noise and air pollution.

Mixed and Balanced Communities

3.8

It is important that the large scale of new housing in the plan period provides mixed and balanced communities. This is recognised in PPG3 and Circular 6/98 which encourage local planning authorities to develop such communities. Developments should provide housing of different types, size and affordability. The aim should be that individuals / households are able to pass through all phases of life, if they so wish, within one community. New housing must also meet the varying needs of individual households. It must be aimed at meeting not only general housing need but also the specific housing needs of the population, e.g. minority ethnic groups, older people, people with disabilities, people with learning difficulties, and young and single people. The Greenwich Strategy aims to offer a range of homes that meet the lifestyle needs of all sections of our communities.

Housing Need and Affordability

3.9

The Council‘s Housing Needs Survey (2002) found that a significant proportion of households in the Borough could not afford to buy or rent on the open market. This reflected that whilst entry level prices for home ownership range from £74,000 for a one–bedroomed home to £154,400 for a four bedroom property and minimum private rents were from £470 to £933 per month, average earned household income was only £19,699 per annum. The survey went on to identify affordable housing needs arising from the need to reduce the backlog of households in unsuitable accommodation (2,377 households, to be met at a rate of 475 households per annum over 5 years), from newly forming households (3,158 households per annum), minus the supply of affordable housing (2,287 households per annum). This gives a net affordable housing requirement over the next 5 years of 1,346 units per annum. Over the 5 years to 2007 there is therefore a need to provide an additional 6,730 affordable dwellings. The Study also shows that over 10 years the annual requirement for affordable housing is 1,109 units per annum, totalling 11,090 additional affordable dwellings by 2011. The analysis concluded that in terms of types of affordable housing, the priority need is for socially rented housing with a small element of shared ownership and that low cost market housing does not meet any housing need.

3.10

Lack of affordable housing has damaging consequences for both the Londonwide and local economy and local communities. ( Affordable Homes for London, London Pride Partnership 1998 / The Impact of High Cost Housing in Greenwich, LRC, 1989, The Report of the Mayor‘s Housing Commission 2000 ).

3.11

The London Plan sets out a strategic target that 50% of all additional dwellings should be affordable. The target includes affordable housing from all sources and not just those secured through planning obligations. Within the Mayor‘s 50% target, he proposes a split of 70% social rented and 30% intermediate housing. The London Plan states that targets in UDPs should be based on realistic assessments of need and supply. It recognises that such targets should be sensitive to the economic and social circumstances of different parts of London.

3.12

The affordable housing needs identified in the Housing Needs Survey – for both 5 and 10 years – exceeds the housing capacity identified in the Borough (800 per annum). It is anticipated that the capacity estimates will be exceeded but not at a sufficient scale to satisfy the affordable housing needs. It would be inappropriate, unachievable and not the role of the planning system, to seek 100% affordable housing. In these circumstances, the Council considers a 35% target justified, taking into account strategic housing need and the strategic housing target set out in the London Plan , Borough housing need and the fact that housing supply is on target to significantly exceed the dwelling provision figure in Policy S.H.1 (see para 3.5). This target is reasonably practicable given the Council‘s extensive and successful experience of negotiating for affordable housing which contributes to strategic and Borough needs and is supported by the Three Dragons / Nottingham Trent University report ‘Affordable Housing in London‘. It is recognised that where the economics of housing provision permit, for example on readily developable windfall sites, 50% affordable housing will be sought subject to Policy H14. This will also apply to greenfield sites in the Kidbrooke Development Area (See Policy H4 and reason) and the change of use of employment sites outside defined employment locations (See Policy J5 and reason), where a different approach to the levels of affordable housing is justified.

3.13

The Council‘s Housing Strategy (2002–2007) vision for housing is ‘In 2010 we want Greenwich to be a place where everyone is able to afford a decent home of his or her choice, and where people feel proud and able to contribute to the life of their local community‘. By this is meant:

Decent good quality homes : well designed and maintained, safe, secure, healthy, warm and dry, and part of a good quality urban environment;

Affordable homes : a range of housing options that are within people‘s ability to pay;

Appropriate homes : a balance of the right type, size and tenure across the Borough, for all types of households;

Well managed homes : within a clean, diverse and well maintained environment, whether public or private;

Homes for all : an inclusive community from which no one is excluded because of discrimination, or because a suitable housing option is not available.

POLICIES

Quantity Of Housing Policies

3.14

The two key areas of policy are to:

Provide new homes
Prevent the loss of existing homes and housing land

New Housing

H1	Residential development, including the change of use of existing buildings, will be acceptable on environmentally suitable sites, including sites allocated on the Proposals Map and in the Site Schedules, and where the residential use of the site would not conflict with other policies and proposals of the Plan. In the interests of achieving sustainable development, the re–use of previously developed land will be promoted to the extent that 90% of new dwellings will be provided on such land.

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Reasons

3.15

The increasing number of households and existing housing need combine to produce a requirement for additional dwellings in the Borough. The London Plan recommends a minimum provision of 16,100 dwellings between 1997 and 2016. As set out in paragraph 3.5, the rate of planning permission for new dwellings is on target to significantly exceed that figure and the rate of planning completions is anticipated to exceed it as planning permissions are implemented. The two most significant areas are the continuing development of Thamesmead (Policy W4) and the residential part of the mixed–use development of the Greenwich Peninsula (Policy W3). Brownfield sites have been prioritised such that they comprise the vast majority of sites and significantly exceed the 60% target in PPG3. The Borough has set a target that over 90% dwellings are provided on previously developed land. In the development of sites sustainable residential quality principles will be applied consistent with the location of the sites to public transport, car parking provision and the character of the area. (Policies H7 – H10). To enable the development of the allocated land the Council will grant planning permissions (the Schedules state where planning permissions have been granted already) and will use its powers and influence to overcome infrastructure problems constraining development. New community services should accompany major residential developments, (Policy C3). Small–scale ancillary and supporting commercial uses may also be appropriate. Developments of 15 units or more should provide a significant proportion of affordable housing (H14).

Preventing The Loss Of Housing

H2	Planning permission will not be granted for a change of use or redevelopment that would result in the net loss of residential accommodation except in the following circumstances:
	i.	Where it is not possible to achieve the required quality of provision through redevelopment without a net loss of dwellings;
	ii.	Change of use to another form of residential accommodation consistent with Policy H21 (Supported Housing);
	iii.	Change of use to guesthouses and bed and breakfast accommodation in accordance with the criteria in Policy T2;
	iv.	Change of use to local community services in accordance with the criteria in Policies C4 and C5;
	v.	Where a reasonable standard of accommodation cannot be attained in the larger town centres in accordance with Policy TC21.

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Reasons

3.16

It is important to safeguard the existing residential stock, as the need for housing remains, and to reduce the need to find replacement housing land. Where residential land or buildings are redeveloped the Council will normally insist that existing residential floorspace and units be replaced. However it is also recognised, particularly in the redevelopment of large estates, that a net loss of housing may occur as a result of an improved residential environment being created, notwithstanding the application of sustainable residential quality principles. The policy also sets out exceptions for changes of use to other forms of residential accommodation.

Effective Use Of Dwellings

H3	The Council will seek to make good use of residential buildings and will particularly examine ways to encourage and assist empty residential accommodation back into housing use.

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Reasons

3.17

The effective use of existing residential buildings will not only enable a better use of resources but will assist in meeting the housing requirements of the Borough. In particular, empty residential properties should be brought back into housing use. The major problem is primarily with vacant properties in the private sector. The Council‘s Empty Homes Strategy sets out a coordinated approach to this issue.

Kidbrooke Development Area

H4	The Kidbrooke Development Area, as defined on the Proposals Map, is designated as a mixed–use, residential led, regeneration area. The redevelopment and regeneration of this area will be required to deliver the following objectives:
	i.	Creating a mixed neighbourhood and community integrated with the surrounding area providing a sustainable environment;
	ii.	Provision of a total of 4,400 dwellings which will include the replacement of 1,900 affordable homes;
	iii.	Creating quality open spaces;
	iv.	Providing a local shopping centre which acts as a commercial hub for the area;
	v.	An improved transport interchange and public transport to and from the area.
	vi.	On greenfield sites in the development area identified for housing development, in recognition of the economics of housing provision, 50% affordable housing will be sought.
	Development proposals will be expected to take account of the proposed masterplan which is to be the basis of a supplementary planning document. Any proposals which would be detrimental to the implementation of any aspect of the masterplan will be resisted.

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Reasons

3.18

In 1999 the Council and its partners were successful in a Single Regeneration Bid for the South Greenwich Area, ‘Building New Links‘. The bid has three strategic themes:

(1)

Tackling social exclusion and promoting opportunity.

(2)

Raising the level of safety.

(3)

Transforming housing and local infrastructure.

3.19

A key part of the third theme has been a land use reassessment of the land around Kidbrooke station including the Ferrier Estate. A masterplan that assumes redevelopment of the Kidbrooke Development Area has been prepared and has been subject to extensive consultation with both residents and landowners. The aim is to create a mixed neighbourhood, integrated with the surrounding area, which provides a quality and sustainable environment for its residents, workers and visitors. Kidbrooke is recognised as an Area of Intensification in the London Plan. The proposals provide for the:

Demolition of 1,900 homes on the Ferrier Estate
Development of 4,400 new homes, including 1,900 affordable homes
Development of a more traditional street pattern providing a safer environment
Creation of a new central park and better access to open space
Increased access to employment and training opportunities
Improvements to the road network and transport infrastructure, particularly to the north of the Borough
Development of new community, commercial and retail facilities as part of a new local centre around a transport hub.

3.20

The masterplan will be progressed as the Kidbrooke Development Area Supplementary Planning Document. It is vital that all developments contribute in an integrated way to the regeneration of this area. Therefore development proposals which seek to anticipate the masterplan and where they will be detrimental to the coherent regeneration of the area will be resisted. The reconfiguration of open spaces has led to proposals for the development of a limited number of greenfield sites. On these sites it is considered the economics of housing provision will allow for a target of 50% affordable housing to be pursued and this will be taken into account in applying Policy H14 in the Kidbrooke Development Area.

Conversions

H5	To protect small and medium sized family dwellings and the local environment, the sub–division of residential property will not be permitted where there are any of the following circumstances:
	i.	The original premises are less than 1,200 sqft (111.48 sqm) (net floor area) excluding any garages or less than 1,400 sqft (130 sqm) (net floor area) where they form part of a terrace.
	ii.	On street parking problems aggravate the safety and free flow of traffic and pedestrians in the area (see Policy M27).
	iii.	The character and appearance of the surrounding area and buildings is adversely affected.

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H6	The sub–division of residential property will be permitted if the following criteria are fulfilled:
	i.	Internal space and design standards are acceptable.
	ii.	There is adequate space for and access to dustbins which, in all appropriate cases, should be in suitably located and designed enclosures.
	iii.	Sound insulation is installed to alleviate the problems of noise both between the new residential units and between them and neighbouring dwellings, and sound insulation and ventilation treatment against road and railway noise is installed on noise sensitive facades.
	iv.	Adequate, safe and secure access to all dwellings is provided.
	v.	Each unit of accommodation is self–contained.
	vi.	Dwellings intended for families are provided on the ground floor or have direct access to a garden.
	vii.	Any extensions or additions are limited to an appropriate size and meet with the design Policies (D9 and D10).
	viii.	Car parking in the surrounding grounds meets the car parking standards and is dealt with sensitively (Policy M23).

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Reasons for H5 and H6

3.21

A further way of providing more new homes will be to allow the sub–division of dwellings. They can assist in balancing the type and size of dwellings to population needs, particularly small households. However, the existing stock of small and medium size family dwellings still have a vital and versatile role to play in meeting housing need and should be protected. The policy is tighter for terraced properties in recognition of the need to retain medium sized terraced properties for family accommodation in areas of conversion pressure and the greater difficulty of providing an acceptable standard of conversion (e.g. impact of noise, car parking).

3.22

For each application received reference will be made to existing conversions in each street, the nature of accommodation provided, the impact on the environment and the character of the area. Special consideration should be given to the division of the garden areas with the aim that all units have access to garden spaces. All conversions will be expected to be self–contained, meet internal space and design standards and provide a suitable mix of dwellings. (Policies H7 and H16). The Council has more detailed guidelines for standards of conversions in Advice Note No. 3. Changes of use to non self–contained accommodation are covered under Policy H.16.

Quality Of Housing Policies

3.23

The Council‘s policies aim to:

Achieve a high quality of housing design and environment.

ii.

Secure the improvement of sub–standard housing and improve residential environments.

Housing Design

H7	New residential development, redevelopment or conversions will be expected to achieve a high quality of housing design and environment. In considering proposals the Council will take into account the key relationships between the character of the area, site location and public transport accessibility, car parking (Policies D5, M26 and M28) and housing densities (Policies H8 and H9) and give particular regard to:
	i.	The achievement of the Building Research Establishment‘s ‘EcoHomes‘ excellent rating, which addresses a wide variety of environmental issues (Policy D1)
	ii.	The design of the development is consistent with Policies D1–D3.
	iii.	Safety and security of residents and public (see Policy D7).
	iv.	Landscaping the environment around the dwellings.
	v.	Dwellings intended for families should normally have direct access to a private garden (see H11).
	vi.	Dwelling mix is consistent with Policy H15.
	vii.	Aspect and orientation.
	viii.	Privacy of adjoining occupiers.
	ix.	An acceptable level of noise insulation being achieved by means of sensitive design, layout and in developments vulnerable to transportation noise and vibration. (Policy E3).
	x.	The provision of new housing to Lifetime Homes standards. (Policy H17).
	xi.	Waste recycling. (Policy E15)
	Developments over 25 units should be accompanied by a Design Statement (Policy D2).

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Reasons

3.24

A key objective of PPG3 ‘Housing‘ (2000) is to promote good design in new housing developments to create a high quality living environment where people will choose to live. It expects developments to:

create places and spaces for people which are attractive, have their own distinct identity but respect and enhance local character;
promote designs and layouts which are safe and take account of public health, crime prevention and community safety considerations;
focus on the quality of places and living environments being created and give priority to the needs of pedestrians rather than the movement and parking vehicles;
avoid inflexible planning standards and reduce road widths, traffic speeds and promote safer environments for pedestrians; and
promote the energy efficiency of new housing were possible.

3.25

The Borough has a number of contrasting residential environments. All new housing developments should both provide a high quality of design and contribute positively to these surroundings. The policy sets out the factors the Council will take into account to ensure these are achieved. The close interrelationship of these with the location of sites (Policy H1), public transport accessibility, car parking standards (Policies D5, M26 and M8) and housing densities (Policies H8 and H9) to create sustainable residential environments is acknowledged, as is demonstrated by the work on Sustainable Residential Quality commissioned by the former LPAC. Larger developments because of their extent and impact are expected to be accompanied by a Design Statement which show how the proposals take into account urban design principles. New housing development should incorporate in design and layout, protection against transportation noise and/or vibration and where appropriate other noise, to preserve the amenity of future residents. (Policy E3). The Building Research Establishment‘s ‘EcoHomes‘ rating is a flexible and independently verified environmental assessment method, with environmental performance expressed on a scale of pass to excellent. To achieve sustainable development, developers are encouraged to attain the excellent standard. A post–construction validation report will be required by planning condition. Residential developments on the Greenwich Peninsula and the Gallions Ecopark in Thamesmead are already being built to such a standard. Further details are available at www.bre.co.uk/ecohomes . Extensions to residential properties are considered under Design Policies D9 and D10.

Density

H8	H8 When considering proposals for housing developments the Council will give priority to securing a high quality environment for residents and making the best sustainable use of land, having regard to the location of the site, to the individual characteristics of the site and the character of the surrounding area. Densities which will be considered appropriate are set out in Policy H9.

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H9	Subject to Policies H7 and H8, the Council will permit development at the following densities:
	i.	150– 250 HRH (60– 100 HRA) for dwellings for families.
	ii.	170– 300 HRH (70– 120 HRA) for non–family dwellings.
	iii.	200 – 450 HRH (80– 182 HRA) for non–family dwellings on sites in the Borough‘s Major and District Centres (See Table TC1) or with immediate access to a network of good public transport facilities.
	iv.	Over 450 HRH (182 HRA) for non–family dwellings will be accepted in exceptional circumstances, on sites of high public transport accessibility, where it can be demonstrated that the design is of exceptional quality.
	The above ranges will be applied to mixed residential developments in proportion to category.

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Reasons for H8 and H9

3.26

The density policies seek to secure a sustainable use of housing land consistent with achieving a high quality environment. Within that context the appropriate density on a site is based on the relationship between the location of the site, public transport accessibility, car parking standards and the character of the surrounding area. A distinction is made between different household types, e.g. single people, older people and families. In applying this policy it is recognised that many areas of the Borough, particularly in the south, are suburban in character and have lower levels of public transport accessibility. This approach is consistent with the guidance contained in PPG3 and the London Plan which emphasise making the best sustainable use of land and achieving higher densities at places with good public transport accessibility.

3.27

The policies recognise that densities should be higher at places with good public transport accessibility, principally the Borough town centres and in those areas of the Waterfront well linked into public transport. For the purposes of the policy, a key factor in assessing public transport accessibility will be ‘Public Transport Accessibility Level‘ (PTAL). Sites with good public transport accessibility would have a PTAL of 4, and sites of high public transport accessibility would have a PTAL of 5 or 6 (See Policy M13). The score for each site will need to be assessed on an individual basis. For sites with good / high public transport accessibility, car parking standards should be lower enabling a higher density development where this would not exacerbate on street parking problems in areas of the Borough where such car parking is at capacity. The Policy recognises that there may be exceptional circumstances, for sites with high public transport accessibility, where densities outside the ranges indicated may be justifiable. Such schemes must demonstrate exemplary urban design. An example of such a site is the exceptional and unique circumstances on the northern Greenwich Peninsula. In contrast, it is also recognised that to preserve the residential character of some Conservation Areas, a lower density may be appropriate.

3.28

Higher densities can play a role in sustaining local services and transport. They can also impose additional pressures on such services particularly where development, either on its own or cumulatively, is of a significant scale and intensity. Developments in the latter category will be expected to assess what these additional pressures are and demonstrate how they are to be met and / or mitigated. (See Policy C3)

3.29

For the purpose of density calculation, habitable rooms include all separate living rooms, including bedrooms, but excluding bathrooms, toilets, landings, halls and lobbies. Kitchens will be counted as habitable where they have an overall floor area greater than 13 sq. m. The net residential area, (as defined in PPG3 Annex C), should be used for density calculations. For mixed–use schemes the calculation should be made by applying the same proportion of residential floorspace to total floorspace of the scheme to the site area of the scheme.

Backland and Infill Development

H10	Residential development on backland and infill sites will only be favourably considered where all the following criteria are fulfilled:
	i.	There is no unreasonable reduction in the amount of amenity space enjoyed by existing residents, especially for those in houses with the shared use of a garden.
	ii.	There is no unreasonable loss of privacy from overlooking adjoining houses and/or their back gardens.
	iii.	There is no unreasonable increase in noise and disturbance from traffic gaining access.
	iv.	There is no significant loss of wildlife habitats, particularly trees or shrubs which would adversely affect the appearance and character of the area.
	v.	The character of the area is maintained with particular regard to the scale, design and density of the development.

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Reasons

3.30

The pressure for land for new housing in the Borough means that infill and backland sites are increasingly considered for housing development. However, the sensitive nature of these sites requires development only to be allowed where it will not adversely affect the local environment and where it will not lead to over development. In addition, it is important to safeguard the interests of residents in surrounding houses by ensuring that residential amenity such as garden space, privacy and the character of the area is maintained. In the Borough‘s tight urban fabric the opportunities for an acceptable form of this development are increasingly limited as the number of available sites decreases.

Amenity Space and Gardens

H11	In new residential schemes and conversions developers will be expected to provide sufficient amenity space to meet the needs of residents. Family housing should normally have direct access to a private garden. In flats a terrace, good–sized balcony or enclosed communal gardens (not accessible to the general public) should be provided.

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Reasons

3.31

Gardening, sitting out, children‘s play, clothes drying and DIY are among the various activities for which a garden or some form of private outdoor space is essential. Gardens have an important role to play in encouraging biodiversity and generally raising the environmental quality of an area. New developments and conversions should aim to secure some usable private amenity space for all households. Dwellings with direct access to private gardens are the most appropriate form of provision for families with children.

3.32

As a guide, a minimum garden area of 50m 2 in family housing should be provided. This is in addition to any space occupied by front gardens, which serves a different, though important function. Sizes and layouts of gardens should take into account the character of the local area, privacy and security. There may be scope for a lower level of private amenity in some locations, for example, in developments adjacent to public open space or on conversion schemes where site constraints may affect the ability to provide the desired level of amenity space.

3.33

The Council will seek an agreement with developers in accordance with Policy SC2, to put into place mechanisms and initial funding for future management and maintenance of communal amenity space.

Children‘s Play Areas

H12	In residential developments that include over 50 units of family housing, suitably equipped and well designed children‘s play areas should be provided.

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Reasons

3.34

Children make up around 20% of the Borough‘s population. All children benefit from having access to safe, communal play space. This provides opportunities for recreation, exercise and social contact.

3.35

The National Playing Fields Association (NPFA) recommends minimum standards for children‘s outdoor play space of between 0.6 – 0.8 ha (1.5 – 2 a) per 1000 population. This includes 0.2 – 0.3 ha for outdoor equipped playgrounds for children of all ages and 0.4 – 0.5 ha for casual or informal play space within housing areas. Play space should be distinguished from open space, a separate requirement dealt with elsewhere (Policy O9). NPFA Standards apply regardless of whether people have access to good–sized gardens or not. Play areas offer opportunities for social development for adults and children, which gardens do not. In areas where amenity provision is poor, standards above the minimum will be needed. Provision should cater for a range of ages: the size and type of facility taking into account existing provision and the population profile of families nearby.

3.36

Walking time is an important factor determining whether a play area will be used by a particular age group: very young children do not walk far. NPFA propose three types of play areas: local areas for play (LAP), less than a minutes walk away; local equipped area for play (LEAP); and neighbourhood equipped area for play (NEAP). Each incorporates features designed to encourage use within an appropriate age group. NEAPs can be incorporated in a park or area of open space; a large development may require several LAPs.

3.37

Design and siting of play areas should take into account accessibility, safety, including proximity to main roads, railways, waterways and other potential hazards, and visibility. Play areas should be located so as to minimise conflict and allow for a level of informal supervision. Further guidance can be found in The Six Acre Standard: Minimum Standards for Outdoor Playing Space published by The National Playing Fields Association (2001).

3.38

In some locations, the Council may accept the provision of a play area in a nearby area of public open space rather than within the development itself, where more beneficial to the local community. Alternatively, a financial contribution towards enhancing existing, nearby provision may be acceptable.

3.39

Where the children‘s play area is principally of benefit to the occupiers of the development itself, the Council will seek to make legal agreements with developers in accordance with Policy SC2, to put into place mechanisms and initial funding for future maintenance.

Housing Improvement

H13	The Council will encourage the improvement or refurbishment of the housing stock in areas where it is particularly needed along with upgrading the overall environment.

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Reasons

3.40

There is concern over the growing deterioration in the housing stock. Sustainable development emphasises the renewal and continued use of such properties. In response, a programme of improvement is needed that recognises that disrepair is not only concentrated in some areas but is more widespread throughout the Borough. The Private Sector Improvement Areas In Greenwich‘ report (LRC 1995) identifies such areas, in particular Plumstead. Where area based initiatives are pursued they should be linked to environmental improvements (see Policy D32). The Council‘s Housing Strategy Statement sets out the targeted programme and resources needed for renewal of both Council stock and other property in the Borough. This has and continues to be integrated with improvements taking place as part of wider regeneration programmes. See also Policy H2 on the redevelopment of housing.

Variety Of Housing Policies

3.41

To ensure a sufficient variety of housing is available for the different types of households and to provide mixed and balanced communities, the Council‘s policies will be to:

Provide a well–integrated mix of decent homes of different types and tenures to support a range of household sizes, ages and incomes.

Provide appropriate forms of housing for people with special needs.

3.42

The Council supports the contribution to housing variety that can be made by Registered Social Landlords and others which allocate dwellings on the basis of housing need, particularly those which seek to meet the needs of disadvantaged groups, including special housing needs. It recognises the key role they play, particularly the smaller specialist housing associations, in providing for special housing needs, e.g. supported housing, housing for single people, housing for minority ethnic groups.

Affordable Housing

H14	Housing and mixed–use developments with 15 or more units or residential sites of 0.5 hectare or more are expected to provide a significant element of affordable dwellings on site. The precise percentage, distribution and type of affordable housing will be determined by the particular circumstances and characteristics of the site and the development, the economics of housing provision, other planning objectives and the scale of need for affordable housing as set out in Policy SH5.

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Reasons

3.43

PPG3 'Housing‘ and Circular 6/98 'Planning and Affordable Housing‘ recognise that the need for affordable housing is a material planning consideration to be taken into account in formulating development plan policies and in determining planning applications. In the Borough most people who do not yet have their own separate dwelling cannot afford to buy or rent at market prices a dwelling suited to their needs (see para 3.9). Lack of affordable housing has damaging consequences for the local economy and the local community. The Council therefore intends that at least 35% of all new homes should be affordable to meet the needs of people who cannot afford to rent or buy at market price.

3.44

The policy, Circular 6/98 and the London Plan recognise that the precise proportion of affordable housing to be achieved is subject to negotiation on individual schemes taking into account the factors set out in the policy. In some instances, where the economics of housing provision permit, for example on readily developable windfall sites, 50% affordable housing will be sought (See also para 3.12 and Policies H4 and J5). To secure the affordable housing effectively in the long term, developers are encouraged to involve a registered social landlord to own and/or manage the affordable housing. This will be confirmed through the use of appropriate conditions and/or legal agreements. Where, exceptionally, a registered social landlord is not involved the Council will use conditions and / or legal obligations as appropriate to secure the future occupancy for people in housing need. The affordable housing that is provided should be distributed across the site to help create mixed communities.

3.45

The site thresholds for affordable housing are consistent with the Housing Needs Survey and the guidance in the proposed changes to PPG3 published in July 2003. The thresholds also apply to mixed use schemes including residential use where the 15 unit threshold is met.

3.46

Circular 6/98 suggests that affordable housing encompasses both low–cost market and subsidised housing that will be available to people who cannot afford to rent or buy houses generally available on the open market. Both PPG3 and Circular 6/98 state that it is for local authorities to define what is considered to be affordable based on local assessments. The London Plan recognises, and the Housing Needs Survey confirms, that in the Borough low cost market housing does not meet any housing need. Therefore for the purpose of this policy affordable housing is defined as housing to meet the needs of households whose incomes are not sufficient to allow them to access appropriate housing in the local housing market. In practice this is social rented housing and intermediate housing.

3.47

The provision of intermediate housing (including key worker housing) through shared ownership initiatives, sub–market renting etc also forms part of the affordable housing. To accord with the London Plan, it is proposed that the affordable housing, be provided as 70% social rented and 30% intermediate housing. However the Housing Needs Survey concluded that shared ownership, (which is a key element of intermediate housing), will only help a small number of households, with the greatest need being for social rented housing. In this context intermediate housing should form a component of the affordable housing, but the proportion will relate to the need to achieve mixed and balanced communities. Therefore in areas with a large extent of social housing, the proportion will be 30%, whilst conversely in other areas it will be lower. The intermediate housing will be secured through a legal agreement. The agreement will include an Affordable Housing Marketing Plan which will include the following objectives:

in respect of intermediate units with Social Housing Grant priority is to be given initially in equal proportions to households in the following income bands:

households with a gross income of between £18,000 – £25,000.

ii.

households with a gross income of between £25,001 – £30,000.

iii.

households with a gross income of between £30,001 – £36,000.

provided that the proportion of disposable income required to fund the purchase is no greater than 40%

in respect of intermediate units without Social Housing Grant and in respect of affordable housing discount for sale units, priority is to be given to households where gross income is up to £40,000 provided that the proportion of disposable income required to fund the purchase is no greater than 50%.

The application of the financial figures above will be subject to RPI indexation through the plan period (February 2004 base).

3.48

There is a presumption in favour of the on site provision of affordable housing where it is viable to do so. Only in the following exceptional criteria will off site provision or financial contributions be acceptable. Firstly, where the site / building configuration or layout makes the provision impractical. Secondly, where it would contribute to the provision of mixed and balanced communities, such as where affordable housing is already concentrated and where further affordable housing would not contribute to mixed and balanced communities. Any financial contribution will be reserved for the provision of affordable housing elsewhere in the Borough and secured through a legal agreement.

Housing Mix

H15	A mix of housing types and sizes will be expected in all developments including conversions, particularly on developments over 25 dwellings. The mix on each site will vary according to the location of the development and the character of the surrounding area. Both large and small units should be included and dwellings for families should have direct access to a garden. Factors such as schemes for special needs groups or where there is a poor external environment will affect the mix. Schemes with predominantly family housing should, as far as is practicable, be related to the adequate provision of accessible nursery and primary schools, local shops, play areas and amenities.

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Reasons

3.49

PPG3 'Housing‘ recognises that planning policies should be used to secure an appropriate mix of dwelling size and type in new developments and conversions to meet the changing composition of households in the area. It is recognised in particular that there is an increasing number of small households in the Borough but this does not justify new developments being overwhelmed by smaller dwellings. Rather the most satisfactory solution is for all new developments to have a proportion of small units and a mixture of dwellings for different household sizes. This will encourage the development of mixed and balanced communities. The mix will also be influenced by the location of development. Areas of good public transport accessibility, e.g. town centres, should have a higher intensity of development which may lead to a greater proportion of flats. Smaller dwellings can also be provided by conversions. Small units are defined for the purpose of this policy as one bedroom units and two bedroom units which include at least one single bedroom. Small units, including studio flats, should be of a good overall floorspace.

3.50

There remains a need to provide for households with children, including family houses or ground floor flats with direct access to private gardens. The Greenwich Council Housing Needs Survey (2002) identified that of the total housing need between 2002 and 2007, 5% of the units provided should be three bedrooms and 20% four or more bedrooms. To create balanced and mixed communities including homes suitable for family use, it would be desirable for developments to include a mix where 35% of the total residential floorspace is allocated to units containing three or more bedrooms.

H16	Conversions and new residential developments which provide non self contained or bedsitter accommodation for non–family use will only be considered where they are of a satisfactory internal layout, are registered with the Council‘s HMO Registration Scheme and meet or are capable of meeting its standards, except where;
	i.	In terms of conversion, the original dwelling house is less than 1,200 sqft (111.48 sqm) (net floor area) excluding any garages or less than 1,400 sqft (130 sqm) (net floor area) where they form part of a terrace; or
	ii.	The proposal will lead to an over concentration of non self contained or bedsitter accommodation which is considered detrimental to the character of an area;
	iii.	The arrangements for car parking are inadequate.

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Reasons

3.51

The Council wish to set standards for the provision of shared home accommodation. It is important to have control over such forms of residential development yet, at the same time, help towards promoting the provision of a wide range of housing options.

3.52

Conversion of non self-contained units and bedsitting rooms (HMOs) does not increase the number of units available and may decrease it. It is important to retain a variety of accommodation for local needs and rented non self-contained shared accommodation and bedsits provide a source of affordable housing for young people and for others who are "non priority" homeless. However, HMOs should not lead to the loss of small and medium sized family dwellings for which there is a continuing demand and they should provide a satisfactory and safe standard of accommodation. Registration with the Council‘s scheme as operated by the Environmental Health Department achieves this. It is accepted that HMOs will have fewer car owning households but some level of provision is needed.

Lifetime Homes

H17	New housing should be built to Lifetime Homes standards. Conversions should aim to incorporate as many of the standards as practicable.
	Lifetime Home include the following access requirements:
	i.	Level or gently sloping approach and flush thresholds.
	ii.	Entrances illuminated. The main entrance should be covered.
	iii.	Distance from the car–parking space to the home to be kept to a minimum.
	iv.	Where car–parking is adjacent to the home, it should be capable of being enlarged to a width of 3.3 metres.
	v.	Where homes are reached via a lift, this should be wheelchair accessible.

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Reasons

3.53

Lifetime Homes are ordinary homes designed to accommodate the changing needs of occupants throughout their lives. They incorporate 16 standards as set out in the Joseph Rowntree report Designing Lifetime Homes . Reduced versions of these standards are required under Part M of the Building Regulations.

3.54

Because of their flexibility Lifetime Homes can meet a wider range of needs than other types of housing. Lifetime Homes are not 'special needs‘ housing: they offer greater convenience to everyone. At the same time, they enable people to stay in their homes if they become less mobile; enable people with disabilities to visit friends or relatives more easily; and expand people with disabilities‘ housing options, whose choice is currently limited. An estimated 32% of households contain a member with a limiting long–term illness (2001 Census). Lifetime Homes also respond to other groups housing needs more effectively, in particular, families with young children. Add to this the increasing number of older people – as more of us are living longer – there is a need to ensure a corresponding increase in the amount of housing accessible to the community as a whole.

3.55

Lifetime Homes because of their adaptability do not require structural alterations to be made should adaptations be needed later on; and because accessibility is built in from the start, these are less likely to be needed in the first place. By making better use of limited resources, Lifetime Homes can contribute towards the aim of sustainable development. In addition to standards indicated above Lifetime Homes comprise:

Width of doorways and hallways in accordance with Access Committee for England standards

Space for turning for wheelchair users in kitchens, dining areas and sitting rooms; adequate circulation space elsewhere

Sitting room / family room at entrance level

Ground floor bed space

Wheelchair accessible downstairs toilet, with drainage and service provision to enable a shower to be fitted

Walls in bathrooms and toilets capable of taking adaptations, such as handrails

Provision for a future stairlift and space for through floor house lift

Bath / bedroom ceiling strong or capable of being made strong enough to take a hoist

Bathroom layout designed to incorporate ease of access

10.

Living room window glazing to begin at 800mm or lower and windows to be easy to open/operate

11.

Switches, sockets and service controls at a convenient height, between 600mm and 1200mm from the floor

3.56

Lifetime Homes are a way of enhancing the quality, safety and accessibility of housing at little or no extra cost. Viewed over time, they are highly cost–effective. As the standards become more widely adopted, costs will fall. On some steep sites it may not be possible to achieve all the standards, such as level thresholds.

Sheltered Housing

H18	When considering proposals for sheltered housing for older people, the Council will have regard to the following criteria:
	i.	Sheltered developments should normally be located in residential areas not more than 200 metres from a local parade of shops having all of the services set out in Policy TC19 and be within easy walking distance of local amenities such as public transport and community facilities;
	ii.	Such developments should have good vehicular access for residents, ambulances, health care professionals and visitors and should make provision for car parking at the Borough‘s standard of 1 space per 3 dwellings;
	iii.	Such developments should comply with residential density policies;
	iv.	There should generally be a minimum of 20 dwellings and a maximum of 40 in each development with a resident warden. In smaller schemes without a resident warden adequacy of services provided will be taken into account;
	v.	A high quality of landscaping and sufficient amenity space is provided.

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Reasons

3.57

The provision of sheltered housing to meet the specific needs of older people is recognised. Recent years have seen an expansion in the range of such accommodation. However, provision should be well distributed to give older people the opportunity to be housed in their own local area. It is important that in the development of schemes, policy criteria are met so that schemes are appropriately located, designed and equipped.

Wheelchair Standard Housing

H19	In residential developments of 25 or more units at suitable sites and locations, the Council will seek to negotiate 10% of dwellings to be built to full wheelchair standard. In the case of private housing, the requirement may be provided as units capable of adaptation to full wheelchair standard without further structural alterations.

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Reasons

3.58

PPS1 states that Development Plan policies should address accessibility (both in terms of location and physical access) for all members of the community. As PPG3 makes clear 'developers should already be considering whether the internal design of housing, and access to it, can meet the needs of people with disabilities, whether as residents or visitors.‘ Access arrangements are in part covered under Part M of the Building Regulations and the need for wheelchair housing should decline as more of the general housing stock becomes accessible. However, there will still be some need for Wheelchair Standard housing. In addition to the Lifetime Homes Standards described above, its main feature is the larger space standards and wider doors which enable greater ease of access for wheelchair users.

3.59

People with disabilities‘ housing options are currently restricted because the majority of the housing stock is not accessible. There is, therefore, a need to increase provision and extend choice across a whole range of housing types, sizes and tenures. A mix of units should be provided within the proportion indicated above, preferably distributed across the site as a whole, rather than grouped together; though siting should take into consideration ease of access. Suitable locations include those where the site is level and surrounding area relatively flat, with public transport, shops and a range of community facilities close by.

3.60

Because of the additional cost in providing the more generous than average space standards required, it is appropriate that wheelchair housing is provided in larger schemes. In practice, it is likely that most Wheelchair Standard Housing will be provided as affordable housing. The Greenwich Wheelchair Site Brief (2002) gives further guidance.

H20	Planning policies for residential extensions may be relaxed to enable a person with a disability to continue living in their own home.

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Reasons

3.61

A person may become disabled but not wish to undergo the disruption of moving house. Where possible the Council wishes to enable them to adapt their present home. The Council would wish to exercise reasonable discretion in allowing an extension, for instance a ground floor bathroom and bedroom, to be added to a dwelling for the use of a person with a disability. (See Policies D9 & D10)

Sheltered Housing

H21	Proposals for residential care homes, hostels, cluster flats, refuges and other supported accommodation required by the local community will be given sympathetic consideration. In taking a decision the Council will have regard to all the following considerations:
	i.	Location in residential areas with good access to essential services, including public transport and shops.
	ii.	Impact upon the local environment and the character of the area, taking into account intensity and scale of use and whether the development would lead to an over–concentration of provision in the area.
	iii.	Extensions to existing properties should be consistent with Policies D9 and D10.
	iv.	Satisfactory vehicular access.
	v.	Provision of adequate private amenity space for clients.
	vi.	Compliance with relevant car parking standards.
	vii.	An identified local need.
	viii.	The size of the unit and the standard and suitability of the provision for the client group.
	ix.	The particular locational needs of the client group.

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Reasons

3.62

Some people, for a part or exceptionally for all their lives, need supported housing or residential care. Such accommodation needs to be provided if the appropriate range is to be on offer. Groups who may need such provision at some time include: the very young, older people, single people living in large lodging houses, or through time spent in long-stay hospitals for people with learning disabilities or those recovering from mental health problems, people with long term illnesses including AIDS and HIV, women escaping violence, lone parents, people with disabilities, young lesbians and gay men forced to leave home, young people leaving care and homeless people.

3.63

Nationally, in response to these needs, small hostels, including cluster flats and supported flats, are beginning to be part of the range of accommodation provided, replacing institutions, long stay hospitals, the large traditional lodging houses and resettlement units. In spite of the possible apprehension of local residents, small hostels and shared houses are essentially needed as part of the drive to provide care in the community. In order to maximise full integration in the community it is essential that wherever possible the accommodation should be distributed throughout the Borough, avoiding a concentration of schemes and preferably sited in residential areas. Over–concentration of any one type of provision can have a detrimental impact on an area, in terms of additional noise, visual intrusion and traffic generation and place additional stress on already over-burdened services. It is not compatible with the aim of achieving socially mixed communities and may undermine any systems of informal support between vulnerable and less vulnerable members of the community that emerge. Smaller scale schemes are more likely to fit in with existing residential communities. Whether or not a particular scheme will lead to over–concentration will be determined by taking into account the number, scale and type of provision and levels of need, for the type of scheme proposed, that exist in the immediate area. Proposals should also respect the privacy of special needs groups and enhance the opportunities for full integration. There should be good access to family, when appropriate, and essential services including shops and transport. Proposals which result in the loss of supported housing will take into account the continued local need for such housing.

3.64

In providing this accommodation measures must be taken to ensure that adequate space, privacy, amenity and design standards for special needs groups are maintained. In particular some exclusive provision needs to be made for women who may be reluctant to use mixed facilities. Generally proposals should adhere to the Housing Corporation‘s DoE approved "Design and Contract" criteria, and for residential care homes the 1984 Registered Homes Act, the associated regulations and the Greenwich Standards and Practice Guidance for Residential Care Homes (1993).

Travellers and Romany People

H22	The Council will seek to retain existing provision for travellers and romany people. Any proposal for a new site should include provision for basic amenities and services and will be assessed against the following criteria:
	i.	The local need for the provision.
	ii.	The suitability of the site for the proposed uses.
	iii.	Highway considerations.
	iv.	Access to local shops, services and facilities.
	v.	Compatibility with other polices of the Plan particularly in terms of environmental amenity and the need to retain open spaces.

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Reasons

3.65

The London Plan and Circular 1/94 'Gypsy Sites and Planning‘ advise that development plans should include policies and criteria for dealing with gypsy site provision. The Borough already has a dedicated permanent site for travellers at Thistlebrook which provides 40 pitches. The policy sets out the criteria by which the development of future permanent or temporary sites will be assessed.

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