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| A1 Appendix One - Housing
Supply |
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Background & Context |
| A1.1 |
This appendix contains details of the
various components of the housing land supply, based at 30th June
2002. It relates to Policy DS1 (Housing Land Requirement), and shows
how the Local Plan has met the requirement set out in Policy 42 of
the Lancashire Structure Plan to make provision for about 7,200 new
houses for the period 1991 to 2006. |
| A1.2 |
The City Council's approach to the calculation
of housing land supply is consistent with the advice in PPG3. The
key components of housing land supply are: dwellings constructed to
date; conversions and changes of use; unidentified sites; vacant dwellings;
clearance and replacement; New Town sites; and planning permissions. |
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Construction to date |
| A1.3 |
Since the base date of the Structure Plan's
calculations of the housing requirement is 1 July 1991, it is first
of all necessary to take into account any construction activity which
has taken place in the intervening period (up to 30th June 202). In
that time 4,797 new dwellings were completed and 466 new dwellings
created through conversion or change of use of existing buildings.
In addition, a further 274 dwellings were under construction. This
amounts to a total of 5,519 new dwellings since 1st July 1991. |
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Conversions and Change
of Use |
| A1.4 |
The monitoring of residential units created
through conversions and changes of use suggests that the typical annual
rate of 46 units per year is likely to prevail until 2006. This should
see a contribution of 110 dwellings from this source. |
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Unidentified Sites ('Windfalls') |
| A1.5 |
Paragraph 35 of PPG3 defines 'windfall
sites' as "those which have not been specifically
identified as available in the local plan process. They comprise previously-developed
sites that have unexpectedly become available". |
| A1.6 |
Paragraph 36 goes on to state that "authorities
should make specific allowance for all types of windfalls in their
plans. Allowance should be made on the basis of examining past trends
in windfalls coming forward for development and on the likely future
windfall potential as assessed in a capacity study. No allowance should
be made for greenfield windfalls". |
| A1.7 |
Careful monitoring of trend rates suggest
that, over the remaining four years of the plan period, a total of
some 386 dwellings will be completed on windfall sites. This will
comprise 230 on sites over 1.0 hectare, 112 on sites less than 1.0
hectare but more than 0.4 hectare and 44 on small sites less than
0.4 hectare. Evidence in support of this level of contribution is
forthcoming from the provisional results of recent studies undertaken
in connection with the National Land Use Database (NLUD) and urban
housing capacity studies. These indicate a significant reservoir of
previously developed land which should make a major contribution towards
meeting present and future housing requirements. |
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Vacant Dwellings |
| A1.8 |
PPG3 (paragraph 27) says that local authorities
"should also draw upon empty home reduction strategies which local
authorities have in place". |
| A1.9 |
The Council's Empty Homes Strategy (1996)
has the objective of reducing vacancy to a level of 4% from the present
level of 4.7%. Achievement of this modest target would bring in excess
of 400 dwellings back into occupation. Some element of this should
be included in the Council's calculation of housing supply (paragraph
27 PPG3) and it is considered appropriate to include half of the above
figure, i.e. 200 dwellings. |
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Clearance and Replacement |
| A1.10 |
This category relates to dwellings replaced
on the sites where clearance of other dwellings has taken place. Of
the dwelling requirement set out in policy 42 of the Structure Plan,
1,400 dwellings were needed as replacements for other dwellings to
be demolished during the plan period. |
| A1.11 |
Under the housing renewal system introduced
by the Local Government and Housing Act 1989, clearance seldom appears
as the best course of action to deal with unfitness because of the
introduction of market value compensation payments coupled with higher
property values. Clearance presently appears to be a solution only
when property is clearly beyond economic improvement. |
| A1.12 |
It is extremely unlikely, therefore, that
1,400 replacement dwellings will actually be needed in the plan period
and this will only be determined through regular and continuous monitoring.
The Council has not, therefore, included any allowance for clearance
replacement in its calculations of housing supply. |
| A1.13 |
Recent demolitions of public sector housing
(Avenham and Moor Lane) have brought the total clearance figure to
666. However this figure is less than half of the 1,400 demolitions
incorporated in the LSP dwelling requirement, and whilst replacement
is underway in Avenham and subject to serious consideration on the
Moor Lane site, for purposes of calculating the housing supply, the
Council is content to include no allowance for clearance replacement. |
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New Town Sites |
| A1.14 |
When Central Lancashire New Town Development
Corporation was wound up at the end of 1985, it left Preston a legacy
of a large reservoir of housing land, which it had assembled to fulfil
the new town development as originally proposed and, indeed, approved
by the Secretary of State. This land was taken over, managed and disposed
of for development by the Commission for the New Towns (CNT). CNT
has been merged into English Partnerships (EP) who now manage the
land. |
| A1.15 |
When the Town and Country Planning (Residential
Development on Greenfield Land) (England) Direction 2000 came into
force in October 2000, English Partnerships confirmed to Department
of Transport, Local Government and the Regions (DTLR) that, in authorising
development under Section 7(2) of the New Towns Act 1981, that they
would operate formally within the requirements of the Direction. |
| A1.16 |
EP has only been given authority at this
stage to complete developments already approved under Section 7(2)
at Cottam. The greenfield sites at Walker Lane, Ingol have been removed
from EP's residential land disposal programme and development of this
land will not be pursued, but the outstanding areas of housing land
at Longsands Lane will be developed since they do not fall within
the remit of the Direction. |
| A1.17 |
These changes to the situation regarding
EP's land reduce its capacity to 330 dwellings. This number can be
regarded as a commitment but any further contributions from Cottam
will have to be subject to further applications to sequential testing
in accordance with PPG3. This means that although EP's undeveloped
sites at Cottam remain as commitments on the proposals map they will
not be released before 2006. |
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Planning Permissions |
| A1.18 |
The final source of supply, to be taken
as committed in the preparation of the Local Plan, is sites that presently
have valid planning permission for residential development. |
| A1.19 |
In its calculations, the Council has assumed
a "drop out" or "slippage" rate of 10% for planning permissions not
taken up because experience has shown that for a variety of reasons,
not all such sites are taken up with actual development. The figure
for sites with planning permission at 30th June 2000 had a potential
capacity of 767 dwellings. These are comprised of 200 at the Whittingham
Hospital site (i.e. the number that can be built in prior to the commencement
of the Broughton Bypass); 238 new build approvals on other brownfield
sites; and 284 permissions on greenfield sites. |
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Overall Contribution |
| A1.20 |
The cumulative contribution from the above-
mentioned sources is summarised in the following table. At 30 June
2002, the cumulative total is 7,300 dwellings which marginally exceeds
the LSP requirement for 7,200 dwellings. |
| A1.21 |
This total can not be regarded as definitive
because most of the component shares derive from estimates, with only
known completions and numbers under construction being facts. The
Council continuously monitors the various components of housing land
supply in accordance with the "plan, monitor and manage" approach
to planning for housing. |
| A1.22 |
Conversions, windfalls and clearance replacements
are all based on estimates at this stage; the density of development
on EP sites could be higher and the take-up rate for planning permissions
could vary. The Council, in making the various estimates, has been
careful, particularly in the extrapolation of trends, not to overestimate
the contribution expected from any one source. |
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| Source of Dwelling Units |
No. of Dwellings |
| Date |
30/06/02 |
| Completions since mid-1991 |
4779 |
| Dwellings under construction |
274 |
| Completions by conversion or change of use |
466 |
| Sub -total |
5519 |
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| Future Conversions and Change of Use |
110 |
| Small sites (under 0.4ha) |
44 |
| Windfall Sites (0.4 ha to 1.0ha) |
112 |
| “Brownfield” Windfall sites (over 1.0ha) |
230 |
| Reduction in Vacant Dwellings |
200 |
| On-site replacement after clearance |
N/A |
| Sub-total |
696 |
| Sites with approval under New Towns Act |
330 |
| Sites with Planning Permission |
767 |
| Sub-total |
1097 |
| Total |
7312 |
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Scale of Allocation Needed |
| A1.23 |
The housing supply figures at 30th June
2002 meet the LSP requirement of 7,200 for the period 1991-2006, so
no new allocations are required in the Local Plan. |
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