London Borough of Richmond Upon Thames - Unitary Development Plan
Unitary Development Plan - Adopted 1 March 2005
 
   

Chapter 8

HOUSING

   
HSG 1 Overall amount of housing
HSG 2 Existing housing
HSG 3 Retention of residential use
HSG 4 Residential areas
HSG 5 Residential in areas of mixed use
HSG 6 Affordable housing
HSG 7 Mobility standards
HSG 8 Wheelchair standards
HSG 9 Supported housing
HSG 10 Hostels and homes
HSG 11 Residential density and mix
HSG 12 Backland and infill development
HSG 13 Conversions - suitability of property
HSG 14 Conversions - design considerations
HSG 15 Non self-contained accommodation
HSG 16 Condition of housing stock
HSG 17 Quality of the residential environment
HSG 18 Additional residential standards
HSG 19 Community facilities
HSG 20 Gypsies and travellers
   
8.1 Housing is, after open space, by far the largest user of land in the Borough. The number of dwellings rose from 65,540 in 1971 to about 68,900 in 1981 and to nearly 73,000 in 1991. When allowance has been made for the number of vacant dwellings due to people moving house, or for other reasons such as refurbishment, the number of households is slightly lower. Demand for accommodation, however, exceeds the number of dwellings available.
8.2 After a significant fall in the Borough's usual resident population from 175,578 in 1971 to 161,800 in 1981, the fall to 160,732 in 1991 was relatively small. Since1991, estimates indicate that the population has increased. Current national projections (by the Office for National Statistics) anticipate that the Borough's population will increase from a mid-year estimate of 179.9 thousand in 1996 to 226.0 thousand in 2016, with a commensurate increase in households. However, the projections do not reflect the impact of national or local policies, nor local housing provision, which is capacity-led.
8.3 The major problem for most households is the cost of housing in the Borough, which makes it extremely difficult to enter the private housing market. A first time buyer in the Borough generally needs twice the national average income, and as a result the Borough has the lowest proportion of first time buyers in London. Inevitably this makes finding suitable accommodation particularly difficult for young people, single parent families and households with lower incomes. Prices also make it difficult for both private firms and the public sector to attract and retain key workers.
8.4 In the past many of them have relied on finding a private rented home, or obtaining Council housing. However, after many years of decline, the choice of homes in the private rented sector is extremely limited, while the Council stock contracted as a result of established tenants taking up their right to buy option and severe financial restrictions which prevent new building. (The Council's housing stock was transferred to a newly formed Registered Social Landlord in July 2000). The only alternative source of lower cost accommodation is provided by Registered Social Landlords. However, these have limited resources, and are themselves seeking private sector finance. The problems are indicated by the fact that the Council is now dependent upon short term leasing and Bed and Breakfast accommodation to house homeless families.
8.5 The difficulties for people seeking to buy homes are exacerbated by the nature of the stock. The majority of dwellings in the Borough are 3- and 4-bedroomed family houses. Despite encouragement given to the provision and retention of smaller units, the choice of housing available for the increasing number of small households is limited unless they can afford to live in larger properties. One-person households, who accounted for over a third of households in 1991, may form over 40% of households by 2006.
8.6 The problems of purchasing suitable housing are particularly acute for those with special needs, such as the elderly, less mobile or people with disabilities. These groups often have low incomes, and are faced with a relatively limited stock of sheltered accommodation, or suitably designed or adapted property. 'Care in the Community' policy increases the pressure for specially adapted accommodation of all types rather than traditional residential institutions.
8.7 The Borough is an attractive residential area where there is normally considerable pressure for private house building. However, the demand is not only from residents but also from people living outside the Borough and the new housing only makes a marginal contribution to meeting local need. In recent years the private sector has completed more small units which will gradually increase the choice for one-and two-person households who could not afford larger homes. However, there will still be a significant number of households who will not be able to afford these units and will be dependent on some form of subsidised housing.
8.8 The extent to which any new housing can be provided is limited by the shortage of suitable land and the need for new development to be in character with the area. While on the one hand sustainability principles promote maximum use of urban land, especially in town centre areas, on the other there is increasing concern about the erosion of residential character through backland and other types of development at a higher density than that prevailing in the area. Conversion of larger houses into smaller units has also had an adverse effect on some areas due to increased activity generated and excessive on-street parking.
8.9 The condition of the housing stock has been improved over recent years. However, as about three-quarters of the stock is over 50 years old, the condition of some older dwellings is still of concern. The restrictions on Council spending, limit the Council's ability to give grants for work on private homes.
8.10 The main needs are therefore to provide a choice of housing, especially for those with difficulty entering the housing market (and in particular, affordable rented housing), to cater for special needs, and to redress imbalances between household types and the dwelling stock available.
   
 

FRAMEWORK FOR POLICIES
 

NATIONAL AND REGIONAL PLANNING CONTEXT

8.11 Government planning policy guidance on housing is largely contained in Planning Policy Guidance Note 3: Housing (PPG 3 March 2000). This states that the planning system must provide an adequate supply of land for housing, taking account of market demand and of policies to encourage home ownership and the provision of rented housing, provided this is compatible with the interests of conservation. Economic growth should not be frustrated through a lack of homes for those wishing to take up new job opportunities.
8.12 Perhaps the most significant change in the Borough between the 1981 and 1991 Censuses lay in the proportion of the population in the higher socio-economic groups, which increased by 9%. This may partly reflect changing work patterns, but must also reflect increasing affluence and the cost of housing in the area. It is recognised in Government policy that in a situation of competing claims on the use of land, one of the development priorities is housing to meet the needs of all sectors of society, and that social considerations will be relevant in looking at the need for affordable housing. The importance of priorities is also recognised in the Regional Planning Guidance Note 3: Strategic Guidance for London (RPG 3 1996), which points out that 'an excess of demand over supply of housing in London leads to a need to consider carefully the provision of all housing, including that for affordable and special needs.' (para. 4.3). Government policy also regards planning policy and implementation as appropriate measures for achieving housing which is affordable to all households. PPG 3 and Circular 6/98: Planning and Affordable Housing, set out the framework which should be applied nationwide.
8.13 PPG 3 Housing (March 2000) states that a community's need for a mix of housing types, including affordable housing, is a material planning consideration which should be taken into account in formulating development plan policies and in deciding planning applications. Both Circular 6/98 and PPG 3 press for the inclusion in UDPs of a policy seeking affordable housing on suitable sites in areas where there is a demonstrable lack of affordable housing to meet local needs.
 
 

STRATEGIC PLANNING CONTEXT
8.14 Strategic Planning Guidance for London (RPG 3 1996) remains the adopted regional guidance until superseded by the London Plan, time-tabled for publication late in 2003. RPG 3 expects boroughs to maximise housing provision, and to encourage well-designed housing of all types, whilst safeguarding the quality of the environment. It recognises that since demand exceeds supply, there is a need to consider carefully the provision of all housing, including that for affordable housing and special needs. In particular RPG 3 states that the UDP should:
  (a) provide for a net increase of at least 4550 dwellings (through new build, redevelopment at higher densities, conversions and change of use) between 1 January 1992 and 31 December 2006 to meet the Borough's share of London's housing requirements;
  (b) take account of the need for, and the ability to provide for, a range of housing types, from single persons' units and units for small households to family accommodation, including housing suitable for larger families;
  (c) subject to taking account of the need to make reasonable provision for business development, include a presumption against the loss to other uses of existing sites and buildings in residential use;
  (d) identify new housing opportunities, such as the renewal of run down areas and changes of use from offices and other uses; and take account of the benefits of conversions in providing a valuable source of units well-suited to the growing number of small households;
  (e) include policies for meeting special needs which will facilitate the provision of different types of specialised housing requirements;
  (f) include affordable housing policies based on an assessment of housing needs. Where boroughs consider that affordable housing can realistically only be achieved through subsidised housing, it should be clear how the relevant policies and proposals will address that need.
8.15 Strategic Planning Guidance (RPG 3) included figures for housing provision until 2006. This was supplemented by Regional Planning Guidance for the South East (RPG 9), in which Policies H1 and H2 provided for an additional 23,000 dwellings per year across London. This figure was based on both 'conventional' and 'unconventional' capacity, identified through a London Housing Capacity Study. UDP policies STG 6 and HSG 1 suggest that the Borough's conventional housing capacity to 2016 is 4860 units. The London Plan suggests that the Borough's total capacity, including unconventional capacity, is 5360 units.
8.16 The London Plan, published in February 2004, takes figures for future housing provision to 2016 while regarding them as minima. The housing policies of the London Plan place particular emphasis on the provision of affordable housing. They also include policies on increased densities, the retention of shared accommodation, and standards for wheelchair housing.
   
 

STRATEGY
 

THE COUNCIL'S HOUSING STRATEGY
8.17 In recent years, Government housing policy objectives have included the encouragement of home ownership and the promotion of more affordable housing, coupled with measures to strengthen the strategic role of local housing authorities which have become enablers rather than providers of housing. Government envisages that authorities will remain responsible for ensuring that the needs for housing in their areas are met, by the private sector alone where possible, with public sector subsidy where necessary. Local authorities have a continuing responsibility to house the homeless, whose numbers are significant mainly because of a shortage of affordable rented housing. Local authorities produce a Housing Strategy annually, usually for the following five years, which forms part of their submissions to Government. The Strategy identifies housing-related issues, states objectives, and establishes the priorities for action, both for the authority and other stakeholders, including an action plan to address those priorities.
8.18 One of the major recurring issues identified in housing strategies for this Borough is the continuing mismatch between the supply and demand for affordable housing. This leads to difficulties both in meeting housing need generally, and in meeting the Council's statutory duties under the homelessness legislation particularly. This difficulty is manifested in the year-on-year reduction in the number of affordable rented properties within the Borough. In order to address this issue, the Council's Housing Strategy has recognised the importance of promoting, encouraging and enabling other organisations to maximise the affordable housing being developed in the Borough. The main means of providing new affordable housing is through supporting schemes by Registered Social Landlords (RSLs). One of the continuing objectives of the Strategy is to make effective use of planning policies to increase the supply of affordable housing which accords with the Strategy's priorities. Other issues addressed by the Strategy are the management of demand for housing, the promotion and improvement of the quality of stock in all tenures, and support for independent living.
   
 

UDP STRATEGY
8.19 Planning powers are principally concerned with new house building and conversions, the physical character of new developments, and the quality of the residential environment. Planning authorities have a responsibility to encourage provision for the full range of housing needs, guiding private development towards the types of dwellings which contribute most towards such needs, and where possible enabling provision for those unwilling or unable to enter the private market. These factors, together with sustainability principles and the Government's desire to maximise housing provision, have implications for the density, size and design of units created.
8.20 The strategy of the Plan is based on retention of the existing stock of accommodation and the development of new housing and conversions to meet the strategic housing requirement while maintaining other uses and the overall character of the Borough. The Plan promotes less expensive housing through the retention of existing housing; requiring new developments to include small units; encouraging conversion of large under-utilised houses into self-contained flats but discouraging conversions of properties which are in multiple occupation and provide relatively cheap housing for rent. The Council will continue to advocate, and support other bodies in advocating, to Government that planning should have more powers to provide for local priority needs. The role of planning policy in providing affordable housing is significant and will continue to be crucial in meeting priority needs, in line with strategic policy.
8.21 The Plan also recognises the need to increase the stock of housing available to people with mobility problems, including people with disabilities, and also the elderly. The policies require dwellings to be built to appropriate standards, and encourage sheltered housing schemes where appropriate.
   
 

OBJECTIVES
8.22
  • To seek the provision of sufficient dwellings to make a separate dwelling available for every household that requires it.
  • To seek the provision of dwellings of a variety of sizes, types, tenures and costs throughout the Borough to meet the requirements of all types of households, including single persons and those with special requirements such as the elderly, key workers, the less mobile, those on low incomes and the homeless.
  • To encourage the most effective use of the existing housing stock, of housing land and of the resources available.
  • To endeavour to ensure that all households have a dwelling which is in a fit state of repair, and that those requiring it have exclusive use of all basic amenities.
  • To maintain and, where necessary, improve the quality of the residential environment.
 

POLICIES FOR HOUSING
  HSG 1 - OVERALL AMOUNT OF HOUSING
8.23 The Council will seek to ensure that the strategic dwelling requirement for an increase of 4550 dwellings in the Borough between 1 January 1992 and 31 December 2006 is met.
     
8.24 Housing provision should meet the Borough's share of the additional dwellings needed in London over the 15 year period, and if possible exceed it, in accordance with RPG 3 1996. Provision over this level must not put unacceptable pressure on other land uses, and result in over-development out of character with the established residential areas. The findings of a London-wide study were published in the report 'London's Housing Capacity' by the GLA in September 2000. This estimated conventional capacity for 4860 additional dwellings in the Borough during the period 1997 - 2016. This includes sites identified in the Plan, an allowance for large windfall sites, and estimates for small sites and conversions. The study estimated a further 500 units of unconventional capacity, as defined by the Study.
  HSG 2 - EXISTING HOUSING
8.25 Existing housing should be retained and where necessary rehabilitated except:
  (A) where it is incapable of improvement or conversion to a satisfactory standard or where redevelopment would provide substantial housing gain. Any redevelopment must be compatible with policy HSG 11 and design policy BLT 11; and new backland /infill policy HSG 12, or
  (B) where the housing is within an area of mixed use and is to be redeveloped in accordance with policy HSG 5.
  HSG 3 - RETENTION OF RESIDENTIAL USE
8.26 Permission (whether temporary or permanent), will not normally be given for a change from residential use of any residential land or units or buildings or of that part of any building which has residential use, which can still be used with or without adaptation for residential purposes of any kind. Changes of use to housing from other uses will normally be encouraged as far as is consistent with other policies of the Plan. Applications for the change of use of a garage will be assessed on merit, taking into account any resulting loss of off-street parking and the impact on on-street parking.
  HSG 4 - RESIDENTIAL AREAS
8.27 In areas which are in predominantly residential use, and subject to policies protecting other uses, priority will be given to the provision of additional housing so long as this does not have an adverse effect on the character of the area. Land now in residential use will be retained in that use. Permission will not normally be given for redevelopment proposals involving a reduction in units. Non-residential uses will be allowed where they are on a limited scale, compatible with the residential environment, and it can be demonstrated that they are of benefit to the local community and normally could not be more satisfactorily located outside a residential area.
  HSG 5 - RESIDENTIAL IN AREAS OF MIXED USE
8.28 In areas of mixed use identified on the proposals map and in other areas where residential is not the predominant use:
  (a) land and buildings in residential use will normally be retained in that use, and rehabilitated, if appropriate;
  (b) on sites which are being redeveloped existing housing must normally be replaced, and on suitable sites an increase in housing will be required;
  (c) new residential development will be encouraged where it is compatible with the policies for other land uses, the need to preserve open space and with the maintenance of the quality of the physical environment.
  (Reasons for policies HSG 2, 3, 4 and 5)
   
8.29 The purpose of these policies is to maintain and increase the supply of housing, to cater for the Borough's needs and to contribute to the needs of London as a whole, in accordance with RPG 3 (1996). More housing is needed to cater for the expected increase in households, especially small households, to provide for those with special needs and to provide greater choice of housing. The increase in housing needs to be balanced against retaining residential character and the amenities of existing residents.
8.30 It is important to retain existing housing land and units in order to maximise the use of resources, retain residential character, and generally provide cheaper housing than would be provided through redevelopment (policies HSG 2, 3, 5(A)). Where redevelopment can be justified as providing a housing gain the density must be compatible with the established character of the area (policy HSG 11 and design policy BLT 11). Within predominantly residential areas the priority to housing will help to increase housing stock. Suitable non-residential uses which do not adversely affect amenity will be allowed (policy HSG 4). Policies HSG 2, 3 and 5 concern the retention of, and increase in, residential uses and units. Many dwellings which are vulnerable to proposals for change in use or redevelopment are in, or on the fringe of, areas of shopping centres and provide relatively cheap, small and often rented accommodation. In view of their contribution to the housing stock, the Council will require the retention of residential use, and where appropriate encourage owners of vacant units, including those above shops, to bring them back into use. In particular it will look for opportunities to pursue Government initiatives to encourage 'living over the shop', in line with RPG 3 (see para 8.14). An exception to policy HSG 3 may be considered where a change of use to a doctor's or dentist's surgery is proposed in accordance with policy CCE 6 and where such a change of use would be compatible with other policies in the Plan and with supplementary planning guidance (see "Guidelines for the location of doctors' surgeries").
  HSG 6 - AFFORDABLE HOUSING
8.31 Opportunities will be sought to maximise the provision of permanent affordable housing in any proposal which includes housing. The Council will encourage residential developments involving Registered Social Landlords, acting either on their own or in conjunction with the private sector, that will meet the needs of buyers or renters on low to middle incomes who are unable to gain access to the housing market. Affordable housing will be expected on sites:
  (a) capable of providing 10 or more units, or
  (b) of 0.3 hectares or more
  Such schemes will be subject to negotiation as to the appropriate amount of permanent affordable housing to be included. The Council expects that over the Plan period 40% of all new units will be permanent affordable housing. Provision will be made to ensure that housing remains permanently affordable for successive occupants. Where necessary, the Council will use its powers to restrict the occupation of property to people falling within particular categories of need. The long term management implications of a scheme should be taken into account and designed into a proposal from its inception (see para. 8.40 below). In exceptional circumstances, the Council may consider a financial contribution to its Affordable Housing Fund as an alternative to on-site provision on the basis set out in para 8.41 below.
   
8.32 Although there is considerable pressure for private housing schemes, the units that are built are generally too expensive for residents on lower incomes. The level of need for affordable housing is indicated through the relationship between incomes and house prices. A survey of residents in 1996 showed that 69% of responding households had a single income of under £20,000 and 56% had a joint income of under £25,000, the approximate levels required for a 100% mortgage on a one bedroom flat in the Borough costing £60,000 (average prices at the time were £77,000). In 2000 the Council commissioned a special Housing Needs Survey, which also demonstrated that the level of need for affordable housing was so great that it exceeded the amount to be built to meet the strategic dwelling requirement. However, it would be both financially unrealistic and unsatisfactory in meeting the full range of housing need and demand to require the proportion of affordable housing implied by this research. The aim to provide 40% affordable housing overall, seeks to ensure that the level of affordable housing is realistic and does not preclude provision of housing to meet the full range of needs and demand. In addition to affordable (i.e. subsidised) housing, developments will be expected to provide a reasonable number of one bedroom units, in accordance with policy HSG 11 (B).
8.33 For the purposes of Circular 6/98:Planning and Affordable Housing, which is set in a nationwide context, '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. (para.4). The Minister for London has subsequently stated that 'plan policies will need to define what the authority considers to be affordable - having regard to the relationship between local income levels and house prices.' RPG 3 also recognises that in many London boroughs, and particularly where the price of market housing is beyond the reach of a considerable proportion of households, affordable housing may realistically only be achieved through the promotion of subsidised housing.
8.34 The Plan defines affordable housing as 'Housing which meets, and will continue to meet, the needs of people who are otherwise unable to enter the housing market.' Although low cost market housing schemes assist people entering the housing market in some areas of the country, they are not regarded as providing affordable housing in this Borough, since they cannot provide for those in most housing need, and it is not possible to ensure that the benefit of this type of housing is enjoyed by successive occupiers. This conclusion is supported by the findings of the Housing Needs Survey 2000. Details of housing need are set out in the Council's Housing Strategy and in the current priorities for the use of public resources, which should be taken into account when planning proposals are being prepared. Those most in need include those accepted as homeless, those with special needs, and other households with needs points on the Richmond Housing Register.
8.35 While social rented housing remains the only option for a substantial number of households, there is a concern to provide for those whose needs may be met through key worker and shared ownership housing. Such accommodation should be genuinely affordable for those most needing it. The Council considers that the proportion of 40% affordable housing overall should be sub-divided between 30% social rented housing, normally suitable for families, and 10% housing for key workers and shared ownership. There is no detailed definition of 'key workers' in national guidance. They are described in the Council's supplementary planning guidance as those on low to moderate incomes who provide key services to the public, whether in the public or the private sector. They would include health service workers, postal workers, social workers, teachers and bus or coach drivers. (See also the Council's Key Worker Housing Strategy).
8.36 Where appropriate, conditions or agreements will be sought to maintain the affordable nature of the housing in the long term, and/or to restrict the occupation of the property to particular categories of need, such as newly formed households, households with special needs or households requiring rented accommodation. The Council will generally seek to involve Registered Social Landlords (RSLs), in affordable housing schemes. In general, eligibility criteria will reflect those of the Council and the RSL.
8.37 The Council will consider all housing applications in the light of their contribution to the Borough's housing needs, to ensure that every opportunity is taken to provide affordable housing. Regular monitoring will show what proportion of affordable housing is being achieved at any time during the Plan period. Planning briefs for individual sites will indicate the proportion of permanent affordable housing likely to be appropriate. On sites capable of satisfactorily providing ten units, taking account of other policies in the Plan, or of 0.3 ha. or more, whichever is the less, the Council will negotiate with developers to maximise the amount of permanent affordable housing to be provided, taking into account the Borough's overall needs, as well as site considerations. The proportion of affordable housing should be reflected in floorspace, as well as the number of units. On smaller sites, provision of affordable housing will be a positive material consideration.
8.38 Circular 6/98 regards a site as suitable for the application of affordable housing policy if it is of 1 ha. or more, or if the number of units proposed is 25 or more. Where a local planning authority is able to demonstrate exceptional local constraints through the planning process, the threshold can be lowered to 15 units or 0.5 ha. (para 10.1)). However, national planning guidance on thresholds is in an advanced stage of review. Such emerging guidance can be a material consideration in terms of PPG1. The adopted UDP had a threshold of ten units, and the Council considers that, in order to increase the delivery of affordable housing, it is appropriate that in this Review the threshold is 'capable of ten units', given that changes in circumstances since that time, particularly in relation to the level of need and the size and characteristics of available sites, serve to strengthen, rather than weaken, the Council's case.
8.39 The threshold is expressed in terms of the capability of the site, in order to overcome attempts to evade thresholds, either by lowering densities, or by failing to provide the mix of units advocated in policy HSG 11, including an appropriate proportion of small units, or by phasing development, or by submitting subsequent applications on the same site or adjoining sites, or by incremental acquisition of sites.
8.40 In accordance with Circular 6/98, the Council expects affordable housing to be provided on-site. Where appropriate, it should be integrated with other housing on the site. However, the Council recognises that consideration should be given to the subsequent management of affordable housing. In most cases this will have implications for design and layout which should be taken into account from the outset, such as the future occupants (probably family households in need of suitable size accommodation in accordance with Housing Corporation standards); the potential level of service charges, which could necessitate separate servicing; and good management practice, which would involve any flats being in blocks of less than, say, twelve.
8.41 In exceptional cases, where the Council accepts off-site provision of affordable housing, a Section 106 Agreement would be sought whereby a financial contribution to the Council's Affordable Housing Fund would enable equivalent provision to be made elsewhere. The amount involved should take account of the value-for-money approach and other financial constraints under which RSLs operate and would be the subject of negotiation. The amount would be applied to the same ratio of private:affordable housing as would have been provided on-site, e.g. if one: three of all units on site would have been affordable, then the formula should be applied to one third of the on-site total. All contributions made to the ring-fenced Affordable Housing Fund are re-used as Local Authority Social Housing Grant (LASHG) funding, for purposes under the Housing Act 1985, either for new affordable housing or for bringing existing private properties back into use as affordable housing in pursuance of housing and planning objectives. As an alternative to financial contributions it may be possible to 'match' a site for off-site provision, where it is in the ownership or control of the same developer involved in the affordable housing site. In such cases, an agreement would need to be drawn up to ensure that the affordable housing was built before, or in conjunction with, the market housing element. Information on the Fund is available from the Council.
8.42 Affordable housing provision will be expected in relation to sheltered housing schemes, equivalent to that stated elsewhere in the policy, but the Council would not expect a proportion of the scheme to be taken over or managed by a RSL. The affordable housing could be in the form of either:
  a) a separate construction on the same site, or
  b) an allocation on a separate 'matched' site as outlined in the preceding paragraph, or
  c) a contribution to the Affordable Housing Fund as described in the preceding paragraph, using floor-space as well as the number of units as a guide.
8.43 The design of affordable housing should take into account the need for sustainable development and the benefits of lifetime homes (see HSG 18, BLT 11).
  HSG 7 - MOBILITY STANDARDS
8.44 In addition to the provisions of the 1999 edition of Part M of the Building Regulations, which applied to new dwellings from 25 October 1999, residential units created by conversion should also be designed to these standards where appropriate and practicable.
  HSG 8 - WHEELCHAIR STANDARDS
8.45 On developments of ten or more housing units, 10% of housing units should be specifically designed for, or capable of easy adaptation to, wheelchair housing.
     
8.46 In applying this policy the Council will use its own standards for wheelchair housing. The Council's wheelchair standards are defined in supplementary planning guidance 'Design for Maximum Access'. The terms 'mobility housing' and 'wheelchair housing' are defined in the glossary.
  (Reasons for policies HSG 7, 8)
8.47 In November 1998 Part M of the Building Regulations, which concerns access and facilities for people with disabilities, was extended to apply to new dwellings, with effect from 25 October 1999. The aim is to enable people with disabilities to visit a dwelling and use the principal storey, and to enable occupants to cope better with reducing mobility, although not necessarily to facilitate fully independent living for all people with disabilities.
8.48 Several of the standards in the Building Regulations differ from those in the Council's supplementary planning guidance 'Design for Maximum Access', while the matter of turning circles is omitted altogether. It remains to be seen how the Regulations will work through in practice, and whether the Council will see a need for additional mobility or 'adaptability' standards to be applied.
8.49 The Building Regulations do not include housing designed with the potential to be occupied by people using wheelchairs. As there is limited provision of such housing, it is important to retain a planning policy which will increase the stock locally. It is in the longer term interests of meeting local needs to increase provision as much as possible, in pursuance of policy STG 1 and to enable people to continue living independently when they develop mobility problems, rather than move to special or communal accommodation.
8.50 Evidence of need comes from several sources. The 1991 Census showed the Borough had the highest proportion of elderly people anywhere in London, which has implications for various kinds of special housing requirement, including adaptable and wheelchair housing. The need to provide adaptable housing has been increased by policies for independent living and care in the community, and the limit on grants for adaptations since the Housing Act 1989. Demand for adaptations has increased annually. The register of people with physical disabilities, which is generally regarded as a gross undercount, currently (June 1998) holds nearly 2000 people. About 45% had severe or very severe disabilities, requiring the use of a wheelchair for at least part of their daily lives.
8.51 Wheelchair housing is needed for people generally confined to wheelchairs. In view of the additional cost in providing wheelchair standards, it is appropriate that they should only be required on larger sites. There may occasionally be overriding reasons why certain sites are unsuitable, for example isolated or hilly sites, or where there are overwhelming conservation reasons for architectural conformity which would make it impracticable to provide a satisfactory level access to the dwelling.
  HSG 9 - SUPPORTED HOUSING
8.52 Where there is a clear need, the Council will encourage the retention, improvement and new provision of supported housing and housing for people with special needs
     
8.53 Current policies to provide care and support in the community and the wish of most people with special needs to live in their own accommodation mean that provision of appropriate housing is important, in addition to improvements in the accessibility of the stock generally. It is recognised that needs and priorities fluctuate; in particular, the Council's Housing Strategy sets out the priorities for affordable housing (see also policy CCE 7).
  HSG 10 - HOSTELS AND HOMES
8.54 The Council will give sympathetic consideration to proposals for residential hostels and homes, providing they are on a site and in a location suitable for that particular use. Other institutional proposals will be considered on their merits. Local colleges, hotels and other institutions will be encouraged to provide additional accommodation for their students and/or staff. Existing accommodation for students and/or staff should normally be retained.
     
8.55 With the decline in rented housing and the shortage of small units and low cost housing, hostels can meet the needs of some residents who may have difficulty finding alternative accommodation. It is important that hotels, colleges and other institutions should help to provide accommodation for their staff and students who would otherwise increase pressure on the Borough's cheaper housing.
8.56 The policy also recognises that there is a need in the Borough, as in all urban areas, for hostels and other establishments for the homeless and for persons in special need of help or supervision. Hostels and homes for the elderly or less mobile should comply with policy HSG 18. Under Class C3 of the 1987 Use Classes Order, a dwelling house may be used by up to six residents living as a single household, including a household where care is provided for residents. Although such accommodation may not require planning permission, registration with the Health Authority or Council's Social Services Department may be necessary.
  HSG 11 - RESIDENTIAL DENSITY AND MIX
8.57 (A) In considering the appropriate density and mix of dwelling sizes for any development the Council will take into account the need to use land as intensively as is compatible with the protection of the quality, character and amenity of the area, and the contribution to meeting housing need for all sections of the community. In particular the Council will take into account:
    (1) the size and shape of the site;
    (2) the prevailing character of the area;
    (3) access to facilities such as shops and public transport;
    (4) considerations of design;
    (5) the Council's environmental standards (especially policies HSG 17 and BLT 13 and BLT 15-18);
    (6) the effect on landscape quality and nature conservation;
    (7) the desirability of the type of development proposed in relation to local housing need, particularly the provision of housing to meet the needs of lower income groups, or special needs housing;
    (8) the adequacy of car parking provision and traffic implications.
  (B) Developments will be expected to provide a reasonable number of small units appropriate to the site (bedsits or one bedroomed units) and the Council will seek to negotiate at least 25% small units on appropriate sites. In town centres and other areas with high public transport accessibility and with good access to facilities such as shops it is envisaged the majority of units will be small. The need for small units is in addition to any provision for affordable housing under policy HSG 6.
     
8.58 The Council is aware of the growth in households nationally and that for sustainability reasons it is important that housing sites in urban areas are used efficiently. However, in determining appropriate densities, housing needs have to be balanced against the need to maintain the character of the area including features of nature conservation importance. The differences in established densities within the Borough, and the differing bulk and site coverage created by different designs, suggest it is inappropriate to rely on generally applicable standards. The policy is therefore primarily concerned to ensure that provision of housing is maximised without leading to a development which is intrusive and detracts from the character, quality and amenity of the area.
8.59 As well as providing affordable units (HSG 6) the other main priority of the Council is the provision of small units to widen the choice for the increasing number of small households, including the elderly, and to provide cheaper housing for those unable to afford larger homes. In considering the appropriate density the Council will take into account the contribution the development will make in providing accommodation for lower income groups; higher densities may be acceptable where the Council considers proposals will bring forward housing to meet this need, whether directly or indirectly.
8.60 The character of the town centres, their accessibility by public transport and the availability of facilities such as shops means that town centres and areas within walking distance of town centres, or otherwise well served by public transport, may be very sustainable locations for higher density development. The Council will expect schemes to be based on the provision of small units for one person households. However, schemes in town centres and elsewhere will need to be compatible with existing character.
8.61 Elsewhere schemes will still be expected to respect the density prevailing in the locality. Density is measured in habitable rooms per net hectare; habitable rooms exclude bathrooms and kitchens under 13 sq. m, with any room over 18.6 sq. m and easily divisible counted as two. Net residential areas includes access roads within the site, private garden space, car parking areas, incidental open space and landscaping and children's play areas (where provided). It excludes major distributor roads, primary schools, open spaces serving a wider area and significant landscape buffer strips.
8.62 The Council has published supplementary planning guidance on the factors to be considered in relation to small housing sites, including backland development.
  HSG 12 - BACKLAND AND INFILL DEVELOPMENT
8.63 In considering applications for residential development on backland and infill sites the following factors will be taken into account:
  (a) any significant loss in the amount of amenity space enjoyed by existing residents;
  (b) material loss of privacy as a result of overlooking adjoining houses and/ or their back gardens;
  (c) material or significant problems with vehicular access or a significant increase in noise and disturbance from traffic gaining access;
  (d) any significant loss of wildlife habitats, particularly trees or shrubs which would also adversely affect the appearance and character of the area
     
8.64 Backland and infill sites are under increasing pressure for housing development. As well as safeguarding the visual amenity of the area (see BLT 11) it is also necessary to have regard to local residential character, in accordance with PPG 3.
  HSG 13 - CONVERSIONS - SUITABILITY OF PROPERTY
8.65 The Council will encourage the conversion of suitable large dwellings to smaller units providing the scheme can be satisfactorily related to the environment, will not unduly affect the amenities of adjoining premises and a reasonable standard of accommodation is achieved. In considering the suitability of a property for conversion the Council will take into account:
  (A) (1) the size of the property and its physical characteristics, including layout and size of rooms;
    (2) on-street parking conditions and on-street parking restrictions; the adequacy of public transport and on-site parking proposed;
    (3) the amount of off-street parking which would be appropriate and its location, which must be acceptable in terms of policy BLT 28 and not unduly affect the amenities of adjoining premises;
    (4) the location of the property and the need to protect the established character of existing residential areas;
    (5) the effect on the amenities of adjoining premises;
  (B) the extent to which the property contributes to meeting a particular housing need, such as the need for non self-contained accommodation (policy HSG 15).
     
8.66 The conversion of larger types of houses to flats can make an important contribution to meeting certain housing needs. It also provides the opportunity to create small units, increasing the choice for the Borough's small households. Sympathetic conversions means the familiar townscape is retained, and utilisation of existing resources is maximised.
8.67 However, it must be recognised that only certain types of property are suitable for conversion, and that there are some areas where conversions would be incompatible with the existing character of the area, or lead to unacceptable parking conditions. Policy HSG 13 is concerned with whether in principle it would be acceptable to convert a given property in a given location. Policy HSG 14 is concerned with the factors the Council would consider in relation to the design of a proposed conversion.
8.68 Part 1 of policy HSG 13 restricts the conversion of smaller houses which would result in the loss of units suitable for family accommodation and would generally be incompatible with the character of the street as a whole. The conversion of, for example, a small terraced house into two flats would lead to noise disturbance to the bedrooms of adjoining houses from first floor living rooms and would not be acceptable.
8.69 Under Part 2, applications for conversions will be assessed in the light of on-street parking provision in the area, the adequacy of public transport, the existence of a Controlled Parking Zone and the Council's current policy on the issuing of parking permits. Conversions will generally be resisted where they could generate or exacerbate on-street parking problems, double parking or congestion. In considering proposals under Part 3 involving forecourt parking or parking in rear gardens (especially where the approach is via a long access drive), the Council will need to be assured that they are compatible with the character of the area, and not significantly detrimental to the amenities of adjoining premises. Parking in rear gardens can be detrimental to amenities of adjoining dwellings. Many large properties do not have the space to provide suitable off-street parking and in many areas of the Borough severe pressures for on-street parking are leading to congestion and double-parking. Further conversions in areas of night-time parking stress will exacerbate the situation and will be resisted.
8.70 Parts 4 and 5 of the policy are concerned to protect the character of residential areas, and the amenity of adjoining properties.
8.71 Part B is to enable an assessment to be made of how best a property can contribute to meeting the housing needs of the Borough. If it is already meeting a particular need because it is, say, in multiple occupation, it may be preferable for it to be retained in that form, in accordance with policy HSG 15.
  HSG 14 - CONVERSIONS - DESIGN CONSIDERATIONS
8.72 (A) In considering proposed conversions the Council will take account of the following factors:
    (1) number of units in relation to size of property;
    (2) the size and layout of the property and its physical characteristics, in relation to this and adjoining properties;
    (3) level of daylighting and sunlight and avoidance of overlooking;
    (4) mix of unit sizes, and particularly the need to increase the supply of small low cost units for rent and owner-occupation;
    (5) access to private garden space;
    (6) environmental standards, particularly those set out in policy HSG 18, including refuse storage.
  (B) The Council will normally require the ground floor to be designed for family use, including access to a garden, and encourage mobility standards as set out in supplementary planning guidance.
8.73 In cases where the Council accepts that in principle a property is suitable for conversion (policy HSG 13), the Council will require the design of the conversion to provide a satisfactory standard of accommodation and contribute positively to its surroundings. Ground floors of conversions offer a particular opportunity to accommodate families, giving children access to a private garden in accordance with residential standards (policy HSG 18), and to accommodate the less mobile, for whom there is little choice of small, relatively cheap housing with ready access (see policy HSG 7). There may occasionally be overriding reasons why it is not possible to achieve mobility standards. Such cases might include listed buildings with little scope for alteration. For the purpose of this policy, the ground floor may not always be the lowest level of the building, but may be the level at which the conditions of the policy are best fulfilled.
8.74 Conversions should comply with current Environmental Health Division standards. The Council will issue supplementary planning guidance for flat conversions. Mobility standards are set out in supplementary planning guidance.
  HSG 15 - NON SELF-CONTAINED ACCOMMODATION
8.75 The Council will normally seek to retain existing non self-contained accommodation where it provides or is capable of providing satisfactory accommodation in terms of environmental health standards, unless it is seriously detrimental to the character of an area or to the amenity of local residents. The Council will consider favourably applications for new non self-contained accommodation provided that the proposals comply with policies HSG 13 and HSG 14(A).
     
8.76 'Non self-contained accommodation' is defined in the Glossary under 'House in multiple occupation'. Accommodation which is not self-contained provides a valued source of cheaper accommodation for young and transient groups in the population who have not reached a stage where they can buy, for people who are unable to gain access to other forms of housing and for people who would otherwise be homeless. Generally, such groups would not be given any priority for housing by the Local Housing Authority or by Registered Social Landlords.
8.77 In recent years, the amount of non self-contained accommodation in the private sector has diminished, both in this area and in other parts of London. Following its joint study 'Houses in Multiple Occupation in London' 1994, LPAC included in its Strategic Planning Advice for London (1994) a policy calling on boroughs to recognise the strategic importance of houses in multiple occupation in meeting London's housing needs. This was also recognised in Strategic Planning Guidance (1996). The retention of non self-contained accommodation is a way of ensuring that a stock of cheaper rented accommodation remains accessible to those groups who need it. Exceptions to policy will be considered in cases where conversions will result in units being retained and managed by a Registered Social Landlord or similar body, in furtherance of the Council's Housing Strategy.
8.78 In implementing the policy the Council will take account of the number of units provided and be mindful of accommodation which is seriously detrimental to the character of an area or to the amenity of local residents. This should not include problems arising out of management of a property. The Council's Housing Department operates a landlords' accreditation scheme which promotes good management practice. It will use its powers under the Housing Acts to ensure that proper standards of management, sound-proofing, amenities, repair, fire precautions and safety for houses in multiple occupation are enforced. Grants are often available to assist in meeting these standards.
  HSG 16 - CONDITION OF HOUSING STOCK
8.79 The Council will encourage the improvement of the condition of the housing stock. As a Housing Authority, the Council will work with its partners to secure the improvement of affordable housing.
     
8.80 The general age of the housing stock means that, unless a major effort is made to bring it up to standard, there could be more serious problems in the future. The improvement of existing housing, rather than its redevelopment, usually provides the most economic and practical solution and is generally preferred since it is less disruptive and minimises the utilisation of resources. Where appropriate, the Council will use its powers under the Public Health and Housing Acts to secure improvements in private housing. Improvements should include, where appropriate, measures to improve the energy efficiency of the existing stock.
  HSG 17 - QUALITY OF THE RESIDENTIAL ENVIRONMENT
8.81 In areas of poor residential environment the Council will seek appropriate improvements by tree planting, provision of open space, play space and off-street parking and by traffic management measures, when opportunities arise.
     
8.82 The quality of the environment in and around new residential areas is safeguarded to a large extent by density controls and planning standards (policies HSG 11, HSG 18 and BLT 13). Most areas of older housing are attractive and pleasant to live in. However, a few are congested and have very little space around the buildings. The Council will seek to improve the residential environment in these areas by pursuing policies CCE 10, BLT 27 and TRN 19 when opportunities arise. The Council will also, when finances permit, consider the need for some form of programmed area action, especially where poor housing is combined with a need for environmental improvement.
  HSG 18 - ADDITIONAL RESIDENTIAL STANDARDS
8.83 In considering proposals for residential development the Council will normally apply the following standards:
  (A) accommodation likely to be occupied by families with young children should have direct and easy access to a private garden;
  (B) residential accommodation in mixed development should have a separate access, preferably from the front of the building;
  (C) sheltered housing and other housing likely to be occupied by the less mobile or elderly people should be near to shops and public transport, should have appropriately designed entrances, staircases and lifts and should have adequate access for service vehicles and ambulances;
  (D) housing design should take into account the need for sustainable development and the benefits of lifetime homes.
     
8.84 The Council is concerned to retain and improve the quality of housing areas and to improve living conditions. Careful and considerate design to meet the needs of particular groups in the population are considered important. New housing should be designed to maximise the potential for energy generation from sustainable resources and to conserve resources generally (see policy BLT 11). The Council will continue to prepare supplementary planning guidance on standards to be met in and around residential development.
  HSG 19 - COMMUNITY FACILITIES
8.85 Larger residential developments will normally be expected to provide benefits commensurate with the scale of the development, including sporting, recreational, social or community facilities. All schemes will be subject to negotiation as to the appropriate level of contribution towards necessary education provision, provided a need arises directly from the development concerned which cannot be met by existing or planned provision. Contributions sought will be fairly and reasonably related in scale and kind to the proposed development.
     
8.86 It is in the interests of new and existing residents that good facilities are provided within new residential development. Where appropriate the Council will seek to enter into planning agreements under the Town and Country Planning Act 1990 Section 106, to secure appropriate facilities for public use. Currently Circular 1/97 provides the basis for negotiating such facilities (see also policy IMP 3). Where it can be demonstrated that residential development will generate significant demand for educational facilities for which the local education authority have no current programme to meet, the local planning authority may require a contribution from the developer to provide necessary facilities (see para 10.57). Contributions will only be required when a need arises directly from the development concerned which cannot be met by existing or planned provision and will be of a scale related to the size and type of development. Section 106 planning obligations would be sought and provision would be made within the agreements for reviewing the requirement to make such contributions at implementation or completion of the scheme. If for whatever reason the funds obtained have not been used to provide such facilities within a specified timescale following the occupation of the development, the contributions will be returned.
  HSG 20 - GYPSIES AND TRAVELLERS
8.87 The Council will seek to retain existing provision for gypsies and travellers. Any proposal for a new site should include provision for basic amenities and services, and will be assessed in relation to other policies in the Plan, especially those concerned with access, traffic generation and environmental impact.
     
8.88 The Council is aware of the needs of gypsies and travellers and fulfilled its statutory obligation under the Caravans Act 1968 (now superseded). The figures of the counts of caravans provided by the DETR show that the local authority site in the Borough has been able to accommodate an increase in capacity for caravans in recent years (from 21 in July 1995 to 30 in July 1999). Current provision, which is above average for London Boroughs, is considered to be adequate for expected needs. It is unlikely that the opportunity for further provision will arise; extreme care would be required in finding a location which conforms with other policies and minimises visual intrusion. Unauthorised parking of caravans will continue to be vigorously resisted.
 
 
London Borough of Richmond Upon Thames - Unitary Development Plan
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