Explanation H1

Housing land requirements

5.11

The Regional Spatial Strategy for the North West (RSS) requires that Knowsley should provide for an annual average of 230 new dwellings starting at 1 April 2002. This figure is in addition to new dwellings that are needed to replace dwellings lost through demolition. The housing land requirements identified in policy H1 reflect the RSS requirement, and will cover the whole period from 1 April 2002 to 2016.

Housing clearance and renewal

5.12

The demand for public sector housing in Knowsley has fallen dramatically since the mid 1990s. This long-term trend is associated with demographic changes and the enhanced aspirations of residents for improved standards and choice of housing. Although the transfer of the former local authority stock to Knowsley Housing Trust in 2002 has provided additional resources to manage the stock in a sustainable way, there is a need for further decisive action to address fundamental problems of low demand for some parts of the stock.

5.13

To address these problems, the Knowsley Housing Trust embarked upon an extensive demolition programme in 2002. By September 2004, the Trust had already demolished approximately 600 dwellings and decommissioned approximately a further 900 in readiness for demolition. The precise scale, location, phasing and mix of the dwellings that are still to be demolished is subject to on-going review by Knowsley Housing Trust, and could therefore change as the Plan period progresses. It is anticipated that up to a further 2,500 dwellings are likely to be demolished in the period from 2004 to 2012.

5.14

The Council proposes that dwellings that are lost through demolition should be replaced on a 1:1 basis. This is justified by the current low rates of vacancy over the stock as a whole and will allow for the introduction of new housing of types and tenures which are better suited to local needs and aspirations. It will also slow down population loss and thereby preserve the viability of local services.

5.15

In most cases, it is expected that the demolition sites will be subsequently made available for redevelopment as housing sites. This recycling of the stock, to provide new housing that is better suited to current needs, will be a major priority over the Plan period. The dwellings which have been demolished, and those which may be demolished in the future, include a significant number of high-rise or walk up flats (of up to 18 storeys in height) and other forms of high-density housing. Given the very high density of many demolition sites, it will not always be possible (even if re-building takes place at 30 dwellings to the hectare or higher) to provide all the replacement dwellings on the same sites (some recent examples have achieved a “replacement ratio” of little more than 25% i.e. for every four dwellings lost on a site only one is put back).

Overall requirement and supply of housing land

5.16

The total housing land requirement for the period 2002-2016 will comprise 3,220 dwellings to meet the requirements of the Regional Spatial Strategy . In addition it is anticipated that (on the basis of the current and anticipated clearance rates) up to approximately 4,000 demolition losses will need to be replaced. It is therefore expected that a total of up to 7,220 new dwellings will be needed over the Plan period. These needs will be kept under review, particularly having regard to any variations which may occur in the demolition programme.

5.17

Table 5.1 below indicates the estimated sources of supply for housing development as at 1st April 2004. The sources of supply include existing completions up to 31st March 2004, planning permissions granted but unimplemented as at 1st April 2004, sites allocated in policy H2, and provision within the proposed Action Areas at North Huyton , Tower Hill, Kirkby and South Prescot (see policies H3 and EC5). In the case of North Huyton and Tower Hill, the precise sites will be identified following the completion of emerging master planning exercises for these areas. In the case of South Prescot, the number of dwellings will be partly dependent on the mix of uses for this site - however an outline planning permission has subsequently (in early 2005) been granted for 395 dwellings. A further site (that currently occupied by the Kirkby Sports Stadium) will, it is expected, become available following the opening of replacement leisure facilities in a more central location in Kirkby. The site of the current stadium (at a "gateway" location on the approaches to Kirkby from the M57) is identified as a Development Opportunity Site within which housing will (once the site becomes available) be considered appropriate either on its own or as part of a mix of other uses (see policy H4).

5.18

In interpreting table 5.1, it is important to stress that the numbers for proposed "new build" dwellings are "gross" and should be offset against demolitions which have or are expected to occur in the Plan period. For example, of the housing completions which occurred between 1st April 2002 and 31st March 2004, and the existing planning permissions as at 31 st March 2004, 376 were on sites which previously had dwellings on them. Within the sites allocated for development in policy H2, 307 dwellings have either recently been demolished or are scheduled for demolition in the near future. Within North Huyton , the plans include over 1,150 demolitions, meaning that the net provision proposed in this area is expected to be no more than 300 new dwellings. Within Tower Hill Action Area in Kirkby approximately 60 existing dwellings have been demolished.

TABLE 5.1

* Notes:

1. Sites with planning permission as at 1 st April 2004 are listed in Appendix 4.

5.19

Table 5.1 also includes an allowance of 1,500 for "windfall" provision. Some of this allowance will, it is anticipated be taken up by redevelopment of future demolition sites and it is therefore not easy to predict precisely what this allowance should be. However, the figure of 1,500 is considered reasonable given recent rates of windfall provision on brownfield sites in past years and the anticipated scale of the demolition programme outside the Action Areas.

Release of housing sites

5.20

The release of sites for housing development will be guided by the principles set down below.

Avoiding an over- or under- supply

5.21

This will mean ensuring that the rate of development, when averaged out over the period 2002 to 2016 (or any five year period within it), does not significantly differ from the rate of 230 per year net of demolition replacements. In assessing any planning application for housing development, the Council will have regard to the rate of development and demolitions that have taken place from the 1 st April 2002 and the volume and nature of the land supply (in sites which are allocated and/or with planning permission), and how these compare with Regional Spatial Strategy requirements and the other priorities listed in policy H1.

Provision of a good choice of sites to meet housing needs

5.22

The Council will seek to ensure that, at any one time, an adequate stock of land is available to meet different housing needs, at the right time, in terms of tenure, type, affordability and location. Planning applications which meet an identified need (e.g. for the elderly or for special needs housing) will in many cases be supported. With regard to point 4 in Policy H1, the Council would - subject to compliance with other development plan policies - favourably consider a proposal to meet a specific and urgent housing need if it would provide housing for the elderly, less mobile or other special needs group in accordance with the Council's Supporting People, Homelessness and/or Housing Strategies.

Promotion of regeneration within existing residential areas and Action Areas

5.23

Two of the most significant areas of change in the housing stock will be at North Huyton and Tower Hill, Kirkby (see policy H3). As referred to above, these areas are designated as Action Areas in this Plan, within which current master planning exercises are aiming to transform the built form. In North Huyton , for example, approximately 1,150 dwellings will be demolished and 1,450 new dwellings provided. Regeneration of the housing stock is also a priority in other regeneration areas with similar but less severe problems, including other parts of Kirkby, Stockbridge Village , parts of Huyton, Whiston and South Halewood , and as part of the regeneration proposals for South Prescot. The release of land for housing will therefore be managed in such a way as to support and encourage the regeneration of these areas.

A sequential approach to site release

 5.24

In accordance with Planning Policy Guidance note 3 “Housing”, the sources of land supply identified primarily use existing buildings or previously developed (“brownfield”) land, in preference to greenfield land. The Council has carried out an urban capacity study, which together with similar studies produced by other authorities on Merseyside (see footnote) identifies the potential capacity of brownfield development land across Merseyside as a whole (as at April 2003). Taking account of the findings of this study (and of the other sources of land identified above), the Council considers that there will be sufficient land from primarily brownfield sources to meet housing needs through to 2016.

5.25

Greenfield housing developments will only be permitted where it has been clearly established that they would form a necessary and supporting element of wider regeneration proposals which would bring significant economic, social or environmental benefits for the community as a whole. Examples of where this may be the case are the proposed Action Areas in North Huyton and Tower Hill, Kirkby. It is anticipated that the emerging master planning exercises for these areas (described elsewhere in this chapter) could include, in the context of the overall proposals for demolition and rebuild, a relatively limited amount of development on surplus greenfield areas. This is likely to be necessary to enable the comprehensive remodelling of the housing stock, and the transformation of the design and layout of these areas that is considered to be needed. It is anticipated that any loss of existing poor quality open spaces in these areas will be offset by significant investment in and enhancement of the greenspace network.

5.26

In the 1990s (prior to the publication of Planning Policy Guidance note 3 "Housing" in 2000) a significant proportion of the planning permissions granted for residential development in Knowsley were on greenfield sites. At the start of the Plan period (1 st April 2002), much of the land supply committed by existing permissions was still greenfield . This meant that in the two-year period up to 31 st March 2004, only approximately 50% of completions have been on brownfield sites. However, as the Plan period progresses, it is expected that the other, primarily brownfield, sources of provision will become more dominant, and that, over the Plan period as a whole, at least 65% of new development will be on brownfield sites. This would be consistent with the Regional Spatial Strategy , which requires that across Merseyside (excluding Liverpool ) at least 65% of all new homes should be on “brownfield” land.

Making efficient use of land

5.27

Planning Policy Guidance Note 3 “Housing” requires that (to ensure an efficient use of existing land and buildings) new dwellings should normally be provided at a minimum density of 30 units to the hectare. In considering any planning applications for housing development, the Council will expect this overall average to be maintained. It should be stressed however that:

•  For some sites (e.g. within or near town centres) higher densities of up to 50 or 60 dwellings per hectare will be appropriate;

•  In some exceptional circumstances, developments at lower densities may be required. Examples of where this may be the case include where the surrounding highway network constrains the number of dwellings to be accommodated, or in some circumstances where higher density development would damage the character of a Conservation Area.

Regulating windfall provision

5.28

Although table 5.1 anticipates considerable provision from windfall sources over the Plan period, it will be important to ensure that excessive releases from these sources (as defined in table 5.1) do not occur which could threaten the overall strategy in this chapter. Windfall releases on greenfield sites will be particularly discouraged unless (as referred to above) they form an integral part of wider regeneration proposals bringing significant social, economic or environmental benefits

5.29

Sources of brownfield windfall development can include the following:

•  The re-use or conversion of empty dwellings or other existing buildings;

•  The sub-division of existing dwellings to form flats;

•  The provision of dwellings to replace demolition losses on the same site;

•  The re-use or redevelopment of vacant industrial or commercial properties;

•  Housing or live / work development as part of wider regeneration schemes in town centres.

5.30

In some parts of Merseyside, there has been significant recent pressure for various forms of windfall development, such as the demolition of single or semi-detached pairs of dwellings or of existing uses such as public houses, often in suburban areas, and replacement by high-density development such as blocks of flats. Such development can be regarded as an efficient use of land and therefore in some respects compliant with Planning Policy Guidance note 3. However, if it takes place to an excessive and unforeseen degree it can have the effect of prejudicing the overall achievement of the Plan strategy.

5.31

Therefore, as part of its overall monitoring of the rate of new housing development as a whole, the Council will monitor the rate of release of windfall sites from brownfield sources. If it appears that windfall development is occurring at a rate which is threatening an over-provision, or diverting development pressures away from other priorities such as the regeneration of the Action Areas, constraints will be placed on the nature and the rate of release of “windfall” sites.

Procedures

5.32

The Council will monitor and manage the release of sites for housing development through decisions on planning applications. The way in which this is done must be sensitive to changing circumstances, such as variations in the rate of demolitions or of the rate of release of different types of housing development. To help it make decisions on planning applications, and to inform its wider regeneration functions, the Council will keep an up to date assessment of housing land availability and development trends. This will identify factors such as:

•  The overall rate of new development and demolitions (compared to RSS requirements);

•  Current site availability differentiated by type, location, market sector, quality etc.

•  Likely future trends in building and demolition rates;

•  The degree of “fit” between current site availability and the regeneration needs of the Borough.

5.33

The Council will produce a Supplementary Planning Document which will describe in detail the mechanism for controlling the rel eas e of housing land in accordance with the principles set out above.