Test Valley Borough Local Plan 2006

6 MEETING ECONOMIC AND SOCIAL NEEDS

Other links in the Interactive Local Plan:

 

6.1 Introduction

6.1.1 The Council’s intention to meet the economic and social needs of the Borough is expressed in the objective of this chapter which is:

To meet the needs for housing, employment, community facilities, tourism and infrastructure in ways that support viable communities, maintain a robust local economy and maintain the high quality environment of the Borough.

6.1.2 This objective is addressed in two ways in the Plan:

  • Firstly, this chapter contains general policies to encourage and/or control particular types of development. These policies will be used by the Council to assess planning applications for particular uses; and
  • Secondly, in Chapter 10 and 11 specific sites have been allocated for certain types of development. These policies deal with particular site-specific issues, but the more general policies of this chapter will also be used to assess applications on allocated sites.

6.1.3 The main topics dealt with in this chapter are:

  • Housing;
  • Employment;
  • Community facilities;
  • Tourism; and
  • Infrastructure.

6.2 Background

Regional Context

6.2.1 In Test Valley the regional context is provided by Regional Planning Guidance for the South East (RPG9).75 The key themes of regional guidance 76 are:

  • Urban renaissance and the concentration of development in urban areas. The Government’s aim is to improve the quality of life in the towns and cities of the South East by encouraging good design, fostering social inclusion and promoting economic development;
  • Economy in the use of land. The Government promotes the more efficient use of urban land through redevelopment and encourages higher density development, a diversification of the housing stock and the concentration of major development in accessible locations such as town centres;
  • Integrating land use and transport. Transport needs should be fully taken into account in the location of new development and greater emphasis should be given to walking, cycling and public transport;
  • Rural development. The Government recognises that the countryside should be protected but also that measures are needed to sustain and enhance the economic and social viability of rural communities.

6.2.2 RPG9 also provides guidance on the overall level of housing provision in the South East and its distribution.

Strategic Context

6.2.3 In Test Valley the strategic context is provided by the County Structure Plan.77 The Structure Plan reflects the themes of regional planning guidance and the vision is to promote Hampshire as “a prosperous and attractive area where social and commercial needs are met in ways that, while minimising the need for travel, improve the quality of life and sense of community for present and future generations.” 78

6.2.4 The Structure Plan provides more detailed guidance on the distribution of housing in Hampshire and provides strategic guidance on other issues such as the settlement pattern, the protection of the countryside, employment, transport, recreation, leisure and tourism.

6.3 A Strategy to meet the needs of Test Valley

Concentrating Development in and Around Existing Settlements

6.3.1 In Chapter 3 of the Plan (Shaping the Settlement Pattern) the basic principle is established that development and redevelopment will be encouraged within settlements but will be strictly controlled in the countryside. The concentration of development within existing settlements reflects Government policy and helps to create more sustainable patterns of development both by making effective use of urban land and reducing the loss of greenfield sites. Where economic and social needs cannot be met within existing settlements, some greenfield sites have been allocated for development as outlined in Chapters 10 and 11. The main settlements in Test Valley are Andover, in the north, and Chilworth, North Baddesley, Nursling & Rownhams, Romsey, and Valley Park in Southern Test Valley. Specific proposals for Andover are included in Chapter 10 and proposals for Southern Test Valley are set out in Chapter 11. Meeting needs in the villages and rural parts of the Borough area is also important and the Plan includes policies in various chapters, which address this issue.

Housing

6.3.2 Andover is the largest settlement in Test Valley with a population of approximately 39,000. It is relatively selfcontained because of its isolated location with low levels of commuting to other centres. A high proportion of the population both lives and works in the town. A Major Development Area (MDA) is proposed for Andover in the Structure Plan to provide a sustainable solution to meeting the development needs of this part of northern Hampshire.

6.3.3 The southern part of the Borough lies in close proximity to the major urban areas of Southampton and Eastleigh / Chandler’s Ford and the issue of meeting development should be considered in this wider context. The strategic housing requirement has two elements, a baseline requirement identified in Policy H2 and a reserve requirement set out in Policy H4 of the County Structure Plan. The baseline requirement can be met without the need for any new greenfield allocations (Figure 6.2). A site at Romsey (Abbottswood) is identified as a reserve site for 800 dwellings.

6.3.4 In rural areas housing will only be permitted which meets clearly identified rural housing needs. The Plan includes policies relating to rural market and affordable housing, housing for agricultural workers and sites for gypsies, travellers and travelling showpeople.

Employment

6.3.5 This plan takes account of strategic employment needs through policies which seek to protect existing employment sites and industrial estates from other forms of development (Policy ESN 15). In order to meet the employment needs of the increased population at Andover, additional employment land has been identified at Andover Business Park and Walworth Estate (Policies AND 04 and AND 03). In Southern Test Valley new employment opportunities will be provided by policies in Chapter 11 to support research and development uses at University of Southampton Science Park (Proposal STV 01); safeguard land at Adanac Park, Nursling for major corporate development (Proposal STV 03); and retain storage and distribution uses at Nursling Estate (Proposal STV 05). The provision of local employment opportunities in rural areas is encouraged through polices on farm diversification (Policy SET 08), the reuse of existing rural buildings (Policy SET 09) and the small-scale redevelopment of existing employment sites (Policy SET 07).

Community Facilities

6.3.6 Policies in this chapter seek to enhance the role of Andover and Romsey Town Centres by encouraging major generators of travel demand to be located within or close to them. This chapter also seeks to protect more local community facilities and recreational areas and facilities. The proposed MDA at Andover will increase the population sufficiently to justify the provision of higher order facilities in the town centre and investment in other improvements to enhance the quality of life for residents and raise the profile of the town. Chapter 10 includes proposals to provide more retail floorspace in the town centre (Proposal AND 07). In Southern Test Valley a new supermarket off Latimer Street, Romsey has recently been constructed and a new outdoor sport’s facility is proposed at Ganger Farm to the north and east of the town (Proposal STV 09).

Tourism

6.3.7 This chapter contains policies, which generally encourage tourism-related developments within settlements and permit small-scale tourist attractions and accommodation in the countryside, subject to certain criteria. Infrastructure

6.3.8 Policy ESN 30 establishes that developers should provide the necessary transport and other infrastructure as part of any development scheme. Where there are specific infrastructure requirements relating to allocated development sites, these have been detailed in the site-specific proposals for Andover and Southern Test Valley. This chapter also includes policies relating to specific types of infrastructure developments such as telecommunications (Policy ESN 31) and renewable energy schemes (Policy ESN 32).

6.4 Housing

6.4.1 The Council needs both to have a framework to make planning decisions about proposals for housing development and to ensure that sufficient land is identified in the Borough to meet the overall need for housing.

This section includes policies setting out criteria against which proposals for housing development can be judged. It includes polices relating to:

  • the retention of existing residential units;
  • the conversion or sub-division of buildings to housing;
  • infill housing on vacant or sub-divided plots within built-up areas;
  • housing types, density and mix; and
  • particular forms of housing development such as affordable housing, agricultural workers’ dwellings, accommodation for the elderly and sites for gypsies, travellers and travelling showpeople.

6.4.2 Specific sites, which have been allocated or safeguarded to help meet the overall need for housing, are shown on the Proposals and Inset Maps and are described in more detail in Chapters 10 and 11.

Regional and Strategic Context

6.4.3 Regional Planning Guidance for the South East (RPG9) provides guidance on the overall level of housing needed in the region, and its distribution, based on population and household forecasts. Provision should be made for an annual average rate of 39,000 net additional dwellings in the Rest of the South East (ROSE) 79 outside London for the period up to 2006. The annual average rate for Hampshire is 6,030 net additional dwellings. The Government intends that these figures be reviewed before 2006, but until such time as any different rate is adopted, it advises that the same rate should be applied in plans that extend beyond that date. 80

6.4.4 In the Structure Plan, the Borough has been divided into two housing provision sub-areas. Test Valley South includes the six parishes of Ampfield, Chilworth, North Baddesley, Nursling & Rownhams, Romsey and Romsey Extra. Test Valley North makes up the rest of the Borough, including Andover. This division of the Borough recognises the fact that housing in each sub-area meets different housing needs. Southern Test Valley contributes to meeting the need for housing in South West Hampshire, which reflects the proximity of the area to Southampton and Eastleigh / Chandler’s Ford. Housing in Test Valley North meets the housing needs of northern Hampshire in general and Andover in particular. The Structure Plan also identifies Andover as a location for a Major Development Area (MDA) which highlights its strategic importance as a growth area.

Meeting the Need for Housing in Test Valley

6.4.5 One role of the Local Plan is to determine the most appropriate locations for new housing development in the context of regional and strategic policies. This section includes polices relating to housing development which aim to ensure that the most effective use of land within settlements is made. It includes a policy to retain the current housing stock (Policy ESN 01) and a policy to encourage the conversion and sub-division of existing buildings to residential use (Policy ESN 02). The basic principle that redevelopment and development within existing built-up areas should be encouraged is set out in Chapter 3: Shaping the Settlement Pattern. Policy SET 01 encourages housing development on previously developed land within settlements. The housing stock needs to be diversified to meet the growing needs for single person households, small households and housing for special groups such as the elderly and disabled. Policy ESN 03 encourages housing developments to include a range of accommodation types and formats.

6.4.6 In determining how much additional greenfield land needs to be allocated in the Plan to contribute towards meeting overall housing requirements, the Council has taken account of the amount of housing that is likely to come from other sources as summarised in Figures 6.1 and 6.2 below.

6.4.7 The Government has set a national target for 60% of all new housing development to be provided on Previously Developed Land (PDL) and through the conversion of existing buildings by 2008.81 This 60% figure is also reiterated as the regional target for the south east in regional planning guidance.82 Give the rural character of the Borough (less than 5% being defined as built-up) and that the strategic housing requirement for the area assumes substantial greenfield allocations, it is unrealistic to expect that this national and regional target could be achieved for Test Valley. The Council will however seek to achieve the maximum contribution of housing it can from PDL sources and make its proportionate input to the target for the region as a whole.

6.4.8 To meet the strategic requirements for housing during the Plan period, the strategy of the Plan is to provide this in accordance with the sequential approach to housing site selection set out in Government guidance. 83 Account has been taken of the housing supply which can be achieved from PDL sources during the Plan period. This has minimised the amount of housing needed for greenfield allocations. These allocations have been made in the form of urban extensions to the largest settlements.

6.4.9 An Urban Capacity Study has been prepared in order to assess the potential for new housing development to be delivered from the intensification of PDL and through the conversion of existing buildings. The companion guide to PPG3: Housing was used to prepare the UCS and provided a basis for its methodology.84 The scope of the UCS has been limited to the largest settlements where the potential for additional housing is considered to be greatest. All the site included within the UCS are within settlement boundaries, where the principle of redevelopment is broadly acceptable under Policy SET 01. It is not therefore necessary for those site to be allocated for housing. The UCS will be monitored to assess what contribution housing on PDL will make to overall housing land supply. The results will be used to inform future decisions on how much greenfield land needs to be released to meet housing requirements.

6.4.10 PPG3 encourages the delivery of development through phasing policies. The provision of housing in Test Valley North comprises existing commitments, windfall sites and the implementation of the MDA. The two allocations are considered to be strategic and critical to the delivery of the overall housing strategy. To achieve their implementation they should be brought forward at the earliest opportunity and not be constrained by monitoring of other sites. In considering detailed proposals, the Council will assess the merits of phasing conditions with regard to the timing and scale of development.

6.4.11 In Test Valley South, no greenfield allocations are required to meet Policy H2 of the Structure Plan. The site at Abbottswood, Romsey has been identified to meet the reserve requirement under Policy H4 of the Structure Plan and will only be released for development if there is a ‘compelling justification to so’ 85. It is the responsibility of the Strategic Planning Authorities to determine when, and in which Borough or District, reserve sites should be released for development. Further detail on the mechanism for the release of reserve sites is contained in supplementary planning guidance. 86

Figure 6.1 Test Valley North Housing Land Availability
Structure Plan Policies
Policy H2 of the Hampshire County Structure Plan requires that provision is made for 6,160 net additional dwellings in Test Valley North between April 1996 and March 2011. Structure Plan Policy H3 also indicates that 3,000 of these dwellings will be in the form of a Major Development Area (MDA) at Andover.
The Need for Greenfield Allocations

The Need for Greenfield Allocations If 3,522 net additional dwellings can be provided from the sources identified above, the Plan needs to identify sufficient land to accommodate a further 2,638 dwellings for the period up to 2011. In the light of these figures the Council considers that an MDA at Andover of sufficient size to accommodate 2,600 dwellings is all that is required for the period up to 2011.

 

Figure 6.1 Test Valley North Housing Land Availability

    
  Dwellings Requirement dwellings

Baseline requirement of Policy H2 and MDA5 of the Structure Plan to 2011

   6,160
Dwellings completed by March 2003 2,397  
Dwellings with planning permission on large sites at April 2003 586  
RESIDUAL BASELINE REQUIREMENT 2003-2011   3,177
Dwellings likely to be built on large urban windfall sites 243  
Dwellings likely to be built on small urban windfall sites 296  
RESIDUAL REQUIREMENT TO BE MET BY ALLOCATIONS AFTER ALLOWING FOR WINDFALLS 87   2,600
The need for greenfield allocations:    
Major Development Area (MDA) at Andover 2,600 0

6.4.12 Before publishing this Plan, the Council produced a series of draft Planning Briefs (the “Beyond 2000” series) which identified a number of potential sites in Andover, Southern Test Valley and the rural villages which could be allocated to meet the need for housing in Test Valley. 88 The Council also produced an evaluation of the housing options it had considered. 89 The responses to this pre-deposit consultation were considered by the Council and taken into account in the preparation of this Plan.

6.4.13 Greenfield sites to meet housing needs at Andover, as outlined in Chapter 10, are proposed:

  • East of Icknield Way; and
  • at Picket Twenty.

6.4.14 The Council has made provision at Andover for approximately 2,600 dwellings, which will meet the requirements of Structure Plan Policy H2. Land at two locations is allocated: at East Anton / Finkley Down 2,500 dwellings are to be provided: and at Picket Twenty 1,200 dwellings. Together they will provide a range and choice of locations, which are well related to the existing built-up area of Andover.

 

Structure Plan Policies
Policy H2 of the Hampshire Structure Plan requires that provision is made for 2,730 net additional dwellings in Test Valley South between April 1996 and March 2011. Structure Plan Policy H4 indicates that land for a further 1,000 dwellings should be identified as a “reserve site” (or sites).
The Need for Greenfield Allocations

2,973 net additional dwellings can be provided from completions, allocations, commitments and like future windfall sites (based on past rates of development). The Plan does not need to identify any greenfield land to meet the housing provision figure in Structure Plan Policy H2. Part of the ‘reserve’ housing requirement of Structure Plan Policy H4 (about 200 dwellings) can also be met from completions, allocations, commitments and likely future windfall sites. The Plan therefore only needs to identify sufficient greenfield land to accommodate 800 ‘reserve’ dwellings.

 

Figure 6.2 Test Valley South

   
  Dwellings Requirement dwellings

Baseline requirement of Policy H2 of the Structure Plan to 2011

   2,730
Reserve housing provision required by Policy H4 of the Structure Plan   1,000
Dwellings completed by March 2003 2,137  
Dwellings with planning permission on large sites at April 2003 81  
RESIDUAL BASELINE REQUIREMENT 2003-2011   512
RESIDUAL RESERVE REQUIREMENT 2003-2011   1,000
Dwellings likely to be on large urban windfall sites 208  
Dwellings likely to be on small urban windfall sites 142  
RESIDUAL REQUIREMENT TO BE MET BY ALLOCATIONS AFTER ALLOWING FOR WINDFALLS   162
Allocations:    
Former Romsey Brewery and Bordens sites (therefore no need to release Greenfield sites to meet baseline requirement) 405 -243
Reserve housing provision required by Policy H4 of the Structure Plan reduced by predicted overrun on baseline requirement (rounded up from 757)   800

6.4.15 Since the beginning of the current Structure Plan period (1996), over 2,100 dwellings have been built in Southern Test Valley, about 1,300 of which have been constructed at Valley Park. Because of this high level of development, Structure Plan Policy H2 for Southern Test Valley can be met without the need to allocate further greenfield sites. Considerable capacity for housing still exists on sites within existing settlements and two large previously developed sites, the former Romsey Brewery Site and the former Bordens / AEP Site in North Baddesley have been identified for housing in this plan (see Policies STV 02 and STV 06).

6.4.16 The Council has identified land at Abbottswood, Romsey as a reserve site for 800 dwellings to be brought forward if a compelling case can be made. The Council does not propose to identify any other land to meet the requirement for 1,000 ‘reserve’ dwellings as set out in Policy H4 of the County Structure Plan. It is considered that 200 of the shortfall can be provided from sites already identified as part of the housing land supply as at 2003 (Figure 6.2).

6.4.17 The Council will adopt a proactive role in meeting the strategic housing requirement, for example encourage landowners and developers to bring sites forward through its Urban Capacity Study.

6.4.18 There is no requirement for the Council to identify any land within the villages to meet strategic housing needs and no proposals are included in this plan. However, the Council recognises that a number of rural communities consider that current policies are not meeting their housing needs and would support opportunities over and above those provided by the rural exceptions policy (Policy ESN 05) and infill and redevelopment. The Council is proposing a new policy ESN 06 to provide a framework for supporting community lead initiatives. Such initiatives will need to be justified and have the support of the community, the preparation of a village or parish plan is one approach the council would recognise as an appropriate mechanism for achieving that.

Long Term Housing Needs

6.4.19 The South East Plan when it is approved will provide strategic guidance to 2026. The Council through the preparation of policy documents within its Local Development Framework will bring forward proposals to meet any strategic requirements for development. This plan, when adopted, will provide the policy framework for decision making until such times as it is replaced.

   

ESN 01:

RETENTION OF THE EXISTING HOUSING STOCK

Redevelopment or change of use which would result in a net loss of dwelling unit(s) (or loss of a significant amount of residential floorspace) will not be permitted unless it (they) cannot reasonably be retained.

6.4.20 The existing housing stock needs to be retained in order to maintain the number and variety of dwellings available to meet housing demand. This is particularly important in relation to types of housing that meets specific needs, such as sheltered accommodation for the elderly. Any significant loss of housing stock could also increase the pressure for the release of greenfield sites.

6.4.21 Any proposals for the redevelopment of existing housing sites, either alone or in combination with sites in other uses, should not reduce the number of dwellings on the site (or sites) in order to maintain and increase the overall supply of residential properties in the Borough. Except in cases where the loss of dwellings does not compromise development, the net loss of housing units on a site will only be permitted if the residential use could not reasonably be retained. For example, it would be appropriate to permit the net loss of residential properties in order to implement essential infrastructure schemes or proposals of strategic importance, or where there is a positive community benefit.

   

ESN 02:

CONVERSION TO RESIDENTIAL USE

Within settlements the conversion and sub-division of buildings to residential use including upper-floor space above shops, will be permitted provided that:

  1. the continuation of any non-residential use is not viable and /or there is no market demand for that use, or in the case of vacant non-residential properties, the previous use; and
  2. conversion can be achieved without adverse impact on the character of the building and its contribution to the street scene.

6.4.22 Making better use of the existing stock of both residential and other properties for housing can help to increase the number and variety of properties available to meet housing demand. One of the objectives of the Council’s Housing Service is to bring empty homes back into use 90 and the Council is actively working to achieve this. Other possible sources include vacant commercial buildings and the upper-floor spaces over shops, although the Council also seeks to retain existing shop units and employment sites, which are, or can be made, economically viable. The provision of additional dwellings within and close to town centres is particularly important as new smaller properties can provide suitable and convenient housing for the elderly and people living alone, as well as bringing life, interest and security to a commercial area.

6.4.23 Where a proposal for the conversion or subdivision of a building to housing involves a change of use the Council will need to be convinced that the current use is not viable, or, in the case of vacant property, that there is no market demand for the previous use. The conversion or subdivision of buildings, especially historic buildings in town centres, can require substantial changes to the fabric of properties. Such changes need to be capable of being implemented without harming the character of the building or adversely affecting its contribution to the street scene. Conversions and sub-divisions can result in housing at high densities, which may be appropriate, particularly in town centres. However, the Council wishes to ensure that high quality living environments are created.

Housing Development Within Settlements

6.4.24 The regeneration of existing built-up areas is one way in which more sustainable patterns of development can be created. The re-use of previously-developed sites, reduces the need for greenfield development, but needs to be undertaken in ways which create or maintain well designed living environments. 91 Policy SET 01 in Chapter 3: Shaping the Settlement Pattern encourages the development and redevelopment of sites for housing within settlements, provided that: the site is not required for another use; the development respects the character of the local area; and does not adversely affect the amenity of the nearby population. Also any proposals for new housing development in built-up areas need to be undertaken in ways which do not compromise the potential to develop or redevelop other adjacent sites.

   

ESN 03:

HOUSING TYPES, DENSITY AND MIX

Development and redevelopment for housing outside the Residential Areas of Special Character, as defined on the Inset Maps, will be permitted provided that:

  1. it includes a mix of dwelling sizes and types to provide choice and meet the needs of the local community and contributes to creating mixed communities; and
  2. taking account of accessibility and proximity to local facilities, it makes efficient use of land achieving a minimum density of 30 dwellings per hectare.

6.4.25 This policy seeks to achieve a variety of accommodation types within substantial new housing sites and to meet local community needs by providing housing types that contribute to creating mixed communities on smaller sites. The policy applies across the Plan area apart from within the Residential Areas of Special Character where the primary objective is to retain their existing well-vegetated and low-density character.

6.4.26 The Council wishes to achieve a range of accommodation within communities, to provide a social mix, and to allow for changing accommodation needs at different points in the family cycle. It is also important to match the amount and type of new housing to the needs of local communities. At the national level, the number of households is going to increase and much of the increased demand will be for smaller properties. In Test Valley, the types of accommodation provided should reflect changing household formation patterns.

6.4.27 The availability of a range of house types within a housing market area and within individual communities can assist people to move more easily into the type of accommodation that suits their needs as their preferences and circumstances change. In some cases if changing needs can be met within the same community area, this can help maintain social networks and community cohesion.

6.4.28 The Council also wishes to ensure that efficient use is made of land within settlements and to achieve this a minimum density of 30 dwellings per hectare should be achieved. In areas that are highly accessible and close to local facilities, such as town centres and public transport corridors, it may be appropriate to have higher densities of 50 dwellings per hectare, or more. In all cases care should be taken to avoid over development, to ensure that schemes are well designed, and to ensure that the amenity of nearby residents is respected.

Affordable Housing

6.4.29 The Government recognises that the planning system has a key role to play in providing affordable housing. Affordable housing will usually be located within existing settlements and will be provided as part of development schemes for market housing. For the purposes of this Plan, the Council has defined what it considers to be affordable housing and this is set out in Figure 6.3.

Figure 6.3: Definition of Affordable Housing
AFFORDABLE HOUSING

Affordable housing is defined as: “housing that is available for people whose income level means that they are unable to access housing locally on the open market. For the purposes of this plan this comprises:

  • subsidised affordable housing which has the benefit of Social Housing Grant either for letting at affordable rents or for sale on shared ownership basis; and
  • discounted market housing which is offered for sale, the proposed sale price being determined as affordable based on average local incomes at the time of application."

6.4.30 The Government also allows for the provision of "rural exception housing," which is the provision of smallscale, affordable housing developments in or adjacent to rural villages, to meet a clearly identified local housing need. Such developments will only be permitted as exceptions to the Plan and it is essential that they do not set precedents for further private housing in the countryside.

   

ESN 04:

AFFORDABLE HOUSING IN SETTLEMENTS

On housing sites of:

  • 15 or more dwellings (or sites of 0.5 hectares or more) within or on the edge of settlements with a population of 3,000 or more; and
  • 5 dwellings or more (or sites of 0.2 hectares or more) within or on the edge of settlements in the rural area with a population of less than 3,000;

the Council will negotiate provision for up to 40% of the dwellings to be affordable. Proposals should seek to ensure that:

  1. the proposed mix of housing meets the identified need;
  2. the affordable units are dispersed throughout the development;
  3. units are restricted in perpetuity to occupation by households in housing need;
  4. units are made permanently available at the earliest opportunity, in line with the physical progress of development of the site.

In assessing the suitability of such sites for the provision of an element of affordable housing, the Council will take into account:

  1. site size, suitability and the economics of provision; and
  2. the need to achieve a successful housing development

6.4.31 A housing need study of the Borough was undertaken on behalf of the Council by David Couttie Associates limited in 2002. Based on the study a net requirement for 6,248 affordable homes has been identified. The figure is a significant proportion of the total amount of housing identified in the Structure Plan to be provided within the Borough to 2011. It is considered that it would be unrealistic to secure all of the identified need from development. An objective of seeking to minimise the increase in households in need is considered realistic. To meet the objective a target of 200 homes per annum is proposed for the period to 2011. It is based on assessment of the scale of development envisaged in the plan period and the availability of resources.

6.4.32 In such circumstances, it is proposed that affordable housing will be sought on sites with a capacity of 15 or more dwellings (or 0.5 hectares) in the urban areas of the Borough; and on sites with a capacity of 5 or more dwellings (or 0.2 hectares) in rural settlements. The lower threshold in the rural settlements reflects the character of the sites most likely to come forward (i.e. small-scale or infilling plots).

6.4.33 The Council will negotiate with developers for the inclusion of a proportion of affordable housing on all sites over the size thresholds specified in the policy above. The precise scale and form of provision on each site will be the subject of negotiation, but the Council will expect a minimum of 40% of housing on sites above the size thresholds to be affordable. For example: contributions may be sought from a town centre or edge of town centre site where the development proposed is for flats but the need is for family housing.

6.4.34 Developers should be able to demonstrate that the subsidised housing will be properly managed to achieve the aim of meeting local needs over the long term. It is essential that such schemes benefit successive, as well as initial, occupiers. This is often best achieved by the involvement of Registered Social Landlords, such as housing associations or trusts. Applicants will normally be required to enter into planning agreements to ensure that the housing is directed specifically towards satisfying identified housing need over a long period.

   

ESN 05:

RURAL EXCEPTION AFFORDABLE HOUSING

In rural areas, within or adjoining settlements development for affordable housing will be permitted provided that:

  1. the proposal is accompanied by evidence which demonstrates there is an unmet need within the parish for accommodation by households unable to afford open market housing where a member of each household has either;
    1. been ordinarily resident in the parish or previously lived in the parish and has a strong family connection; or
    2. a demonstrable need to live by virtue of their employment in the village or its immediate surroundings; or
    3. a demonstrable need to live within the village either to support or be supported by a family member; and
  1. it is restricted in perpetuity to occupation by households with a member in housing need; and
  2. the proposed mix of housing meets the identified need

6.4.35 In rural areas, affordable housing may be permitted on sites within or adjoining settlements where housing would not normally be allowed. In order to justify affordable housing contrary to established policies of restraint, a local need for such housing within the parish would need to be clearly identified.

6.4.36 The policy will apply only in exceptional circumstances to meet the specific needs of rural areas, and is not intended to meet the needs arising from larger towns and villages, which can better be met by developments within those settlements. The policy applies to sites within or adjoining settlements where the current population is less than 3,000 or would remain less than 3,000 after the implementation of any outstanding planning permissions.

6.4.37 The focus on sites within or on the edge of settlements means that any new “rural exception housing” is likely to be within easy reach of facilities and, where it exists, public transport. It also helps to ensure against sporadic development in the open countryside. Full account of environmental considerations should be taken both in the siting of “rural exception housing” and its design, which should be in keeping with its surroundings and reflect local building styles.

   

ESN 06:

RURAL DEVELOPMENT

Development for housing, employment and community facilities in or adjoining settlements defined by policies SET 01 and SET 06 which contain schools, shops, community halls and access to public transport and have a population of less than 3,000 would be permitted provided that;

  1. the proposal is supported by evidence which demonstrates there is a need for the development to maintain and enhance the sustainability of the community;
  2. The proposals demonstrate how existing community facilities will be sustained as a result of the development or how any new facilities will be provided; and
  3. the proposal if it includes a residential element satisfies any existing need for affordable housing in the settlement or adjoining area, in accordance with Policies ESN 04 and ESN 05.

6.4.38 In the rural areas of the Borough, housing will only be permitted which meets clearly identified housing needs. The plan includes policies relating to market and affordable housing, and a new policy which could bring forward sites which meet specific needs particularly, which help maintain and sustain communities. The plan also has policies relating to housing for key workers, agricultural workers and sites for gypsies, travellers and travelling show people.

6.4.39 Policy ESN 06 is proposed to provide a framework, which would allow the Council to consider development, which will meet identified needs and support rural communities. It has been included to complement the Countryside Agency’s Vital Villages campaign, and in particular its parish plan initiative. 92

6.4.40 Policy SET 03 permits development only if there is a clear justification for an exception to the general policy of restraint. The Council considers that development, which meets the identified needs of a rural community, could provide sufficient justification for an exception to be granted

6.4.41 The policy would apply to those settlements defined in SET 01 and SET 06 which are served by existing facilities such as shops, schools, community halls and public transport. New development could help sustain such facilities promote expansion or support new provision. Other settlements without such facilities are not considered to be sustainable locations. Where there is an established pattern of shared facilities between communities, there is potential for proposals with them to be considered although they individually may not be served by all those identified in the policy.

6.4.42 Justification for the development should be comprehensive and consider all the relevant issues such as population, housing needs, employment and availability of social and community facilities and transport. The preparation of a Parish or Village Plan is an approach a community could adopt in order to provide the justification for new development. An alternative approach could be for proposals and the justification to be prepared by other interested parties in response to the preparation of parish appraisals.

6.4.43 The involvement of the community in the preparation of proposals is an integral element of the planning process. The Council has prepared a Statement of Community Involvement which sets out guidance for involving the public. Any proposals brought forward under the policy will need to satisfy the requirements set out in the Statement. The extent of public involvement and support will be important considerations in assessing its merits. However the Council will need to be satisfied that in all other respects the proposals were acceptable before taking account of the extent of public involvement and support.

   

ESN 07:

AGRICULTURAL WORKERS' DWELLINGS

In the countryside, a new agricultural or forestry workers’ dwelling, or the change of use of a non-residential building to an agricultural or forestry workers’ dwelling will be permitted provided that:

  1. a the dwelling is essential to agriculture or forestry operations (in relation to the needs of the particular unit or operation, rather than the owner or occupier);
  2. an existing dwelling, either in or closely connected to the unit, previously housing a worker employed on the unit, has not been sold separately from the unit or in some other way alienated from it within the past five years;

Provision should be made on site for:

  1. a building either on or closely connected with the unit which would have been suitable for conversion to an agricultural dwelling has not been sold separately from the unit or in some other way alienated from it within the past year;
  2. the occupancy of the new dwelling (and other dwellings related to agriculture already on the unit) is restricted to workers solely or mainly working or last working in the locality in agriculture or in forestry, or widows or widowers of such persons and any resident dependants; and
  3. the design, size and location of the dwelling should be such as to limit its impact on the landscape and conservation interests in the countryside.

6.4.44 For most farm or forestry workers it will usually be as convenient, and perhaps socially more desirable, for them to live in nearby towns and villages, as it will be for them to live where they work. However, where it is essential for a worker to be accommodated on a farm or forestry unit for example to care properly for livestock or for management reasons a new dwelling or the conversion of an existing non-residential building in the countryside may be justified. In considering whether a dwelling is essential, the Council will apply functional and financial tests and particular consideration will be given to the following factors:

  • whether the stated intentions to engage in farming or forestry are genuine, are reasonably likely to materialise and are capable of being sustained for a reasonable length of time;
  • the need for the worker to be accommodated on the unit itself;
  • the labour requirements of the unit; and
  • whether there is existing accommodation available on the unit or nearby and reasons why it does not meet the needs of the worker to be accommodated on the unit.

6.4.45 The purpose of these tests is to establish whether there is a genuinely essential need for a new dwelling. The needs of the unit will be considered rather than needs of an owner since the latter may change rapidly if personal circumstances alter but the former are likely to be longer term.

6.4.46 The Council wishes to ensure that any application for an agricultural dwelling is not an abuse of the concession that the planning system makes for such dwellings. The Council will carefully scrutinise applications to ensure that the demand has not been generated through the disposal on the open market of existing dwellings used by agricultural workers or of other buildings, which may be suitable for conversion. Applicants will be expected to demonstrate that an existing dwelling had not been sold separately from the farm of forestry unit, or otherwise alienated from it, in the past five years. The Council will also scrutinise the history of farm or forestry holdings to ensure that any buildings suitable for conversion to a workers’dwelling had not been sold separately from the farm of forestry unit, or otherwise alienated from it, during the past year. In circumstances where farm assets have been fragmented in this way agricultural dwellings will not be permitted, even if there is an otherwise proven agricultural need, and the landowner would have to meet the requirement for a dwelling by purchasing property elsewhere at full market value.

6.4.47 Where an agricultural or forestry dwelling is permitted, the occupancy of the dwelling will be strictly controlled to agricultural or forestry workers,’ their dependants or widowed partners. For the same reason, as an additional safeguard, an occupancy condition will be applied to existing agricultural dwellings on the unit to deter their open market disposal.

6.4.48 In the countryside, any proposals for a new dwelling for a practising New Forest commoner would be assessed on their merits, on the basis of this policy. The criteria of essential need for the dwelling would have to be satisfied and a suitable occupancy condition imposed.

6.4.49 Any dwellings permitted under this policy should be of an appropriate size to meet the needs of an agricultural worker. An excessively large dwelling is less likely to continue to be appropriate for agricultural use and is more likely to have an adverse impact on the landscape or other conservation interests in the countryside.

   

ESN 08:

REMOVAL OF AGRICULTURAL OCCUPANCY CONDITIONS

An agricultural or forestry occupancy condition on a dwelling will not be removed unless it can be demonstrated that the dwelling is no longer required to meet the needs of workers engaged or last engaged in agriculture or forestry in the locality.

6.4.50 Dwellings that have been permitted in order to meet agricultural, or forestry needs should remain available for that purpose. The Council will not relax an occupancy condition unless it can be shown that a need no longer exists for such accommodation in the locality (including all holdings in the area). Applications for the relaxation of occupancy conditions must therefore be accompanied by written evidence, which shows the steps that have been taken to market the dwelling with the occupancy condition. Applications should include proof that:

  • other landowners in the vicinity of the dwelling have been contacted to establish whether they require further accommodation for agricultural workers;
  • the dwelling has been on the market for a minimum of six months at a price reflecting the occupancy condition; and K the dwelling has been advertised widely in appropriate publications.
   

ESN 09:

HOUSING FOR KEY WORKERS IN THE COUNTRYSIDE

In the countryside, dwellings for essential workers will only be permitted if:

  1. it is justified as essential for operational reasons that the worker is resident on-site;
  2. the accommodation is provided on-site within the existing curtilage;
  3. existing buildings are utilised to provide the accommodation wherever possible; and
  4. any conversion, extension or new building does not detract from the character of the existing build ing(s) or surrounding area or the amenities of nearby residents.

6.4.51 In addition to workers in agriculture there are a number of other employers where there may be an essential need for workers to be accommodated on sites in the countryside. Examples include boarding schools and nursing homes, where there is a need for staff dwellings. The Council will need to be satisfied that there is a genuine need for a new dwelling, and in making such an assessment, the Council will consider:

  • the need for the worker to be accommodated on the site itself; and
  • whether there is existing accommodation available on the site or nearby and reasons why it does not meet the needs of the worker.

6.4.52 Where a key worker dwelling is permitted in the countryside, the occupancy of the dwelling will be strictly controlled to key workers. Any dwellings permitted under this policy should be of an appropriate size to meet the needs of a key worker and should be contained within the curtilage of the site to which the dwelling relates. Any conversion, extension or new building should be designed particularly sensitively to minimise the impact on the original building, the immediate setting of the building, and the wider locality. Residential Accommodation for the Elderly

6.4.53 The elderly are expected to comprise an increased proportion of the population in the period up to 2011 and have particular housing needs. To provide guidance for proposals which seek to help meet the increased need for specialised accommodation for the elderly, this section includes policies that:

  • encourage residential development for the elderly within built-up areas, including residential care homes and nursing homes;
  • restrict the development of residential care homes and nursing homes in the countryside to the extension of existing premises; and
  • seek to prevent the loss of existing residential care homes or nursing homes unless they are not viable, or cannot be made viable.

6.4.54 The terms sheltered accommodation, residential care homes and nursing homes are defined in the Glossary: Appendix 10.

   

ESN 10:

RESIDENTIAL ACCOMMODATION FOR THE ELDERLY WITHIN SETTLEMENTS

Within settlements the development of sheltered accommodation for the elderly, residential care homes and nursing homes will be permitted provided that:

  1. it is well related to community facilities in terms of access by public transport and non-car modes of transport;
  2. it makes provision for the needs of residents in terms of leisure and community facilities;
  3. there would be no adverse impact on the character of the area or the amenity of nearby residents; and
  4. in the case of conversion or extension there would be no adverse impact on the character of the existing building(s).

6.4.55 Most residential accommodation for the elderly should be located within existing built-up areas. Sheltered accommodation meets a particular demand within the housing market for active elderly people, since it enables them to keep much of their independence whilst providing a degree of support through specialised facilities such as a warden on site. Residential care homes and nursing homes generally cater for less active or frail elderly people and provide a greater degree of support.

6.4.56 In view of the particular requirements of the elderly, any accommodation should be in locations that have easy access to local facilities, particularly shops, health and other community facilities and public transport. Access to facilities and public transport is also important for employees and visitors to care and nursing homes. A n y accommodation should provide both the necessary indoor facilities, such as communal meeting rooms, and outdoor facilities, such as attractively designed communal gardens with sitting out areas.

6.4.57 Developers of accommodation for the elderly should take full account of the likely impacts of development on the character of an area and the amenity of local residents. New buildings, particularly larger sheltered accommodation developments, and extensions or alterations to existing buildings should not adversely effect features on site of high amenity value such as trees. Buildings or extensions should be designed to be in keeping with the surrounding area and extensions should reflect the character of the existing building. Larger scale developments could significantly change levels of activity in the immediate vicinity and the impact on the amenity of other residents in the vicinity should be considered. A concentration of elderly accommodation in one area could adversely affect its character or amenity and the Council will have regard to the cumulative impact of such schemes.

6.4.58 Contributions to off site children’s play and sport’s facilities will not be sought from developers of specialised accommodation for elderly people i.e. residential care homes and nursing homes, but on site open space to meet the requirements of the elderly will be expected. The car parking standards for elderly persons’ accommodation are set out in Annex 2. The Council will require the occupancy of sheltered accommodation to be restricted to elderly people. For single person households, the person concerned should be at least 60 years of age. For larger households one person should be at least 60 years of age with a second at least 55 years old.

   

ESN 11:

EXTENSIONS TO NURSING OR RESIDENTIAL CARE HOMES IN THE COUNTRYSIDE

Extensions to existing nursing or residential care homes in the countryside will be permitted provided that:

  1. the development is necessary to enable current care standards to be met or is required to make the home commercially viable;
  2. it would be contained within the existing curtilage of the building(s);
  3. there would be no adverse impact on the character of the existing building(s);
  4. there would be no adverse impact on the character of the area or the amenity of nearby residents; and e measures to minimise the need for travel to and from the site are an integral part of the proposals.

6.4.59 It is not considered appropriate to permit new accommodation for the elderly in the countryside since such locations are generally remote from facilities and public transport. However, where such accommodation already exists, it may be acceptable to extend existing buildings. To comply with recent legislation 93 extensions may be necessary to improve facilities and standards of accommodation for existing residents or to add bedspaces to maintain viability.

6.4.60 The Council wishes to ensure that the impact of any extension on the countryside is kept to a minimum. Any extension should not require the extension of the curtilage of an existing property and should be capable of being implemented without the removal or significant reduction of communal outdoor facilities such as gardens, sitting out areas or parking areas. Extensions in the countryside should be designed particularly sensitively to minimise the impact on the original building, the immediate setting of the building, and the wider locality.

6.4.61 Additional development in the countryside can generate additional trips, which can both increase levels of car usage and have an adverse impact on quiet rural areas and rural roads. Developers of elderly accommodation in the countryside will be expected to demonstrate what measures will be put into place to minimise the need for travel to and from the site for residents, employees and visitors. It may be appropriate to present these measures in the form of a Travel Plan.

   

ESN 12:

CHANGE OF USE OR REDEVELOPMENT OF NURSING OR RESIDENTIAL CARE HOMES

Change of use or redevelopment of existing nursing or residential care homes will be permitted provided that:

  1. it is demonstrated that the use is no longer commercially viable; or
  2. it is unable to meet current care standards and cannot be converted or extended in an appropriate manner in order to meet them.

6.4.62 The Council wishes to retain existing nursing homes and residential care homes wherever possible, in the light of the likely increase in the elderly population over the Plan period. However, it is recognised that this may not always be possible. Where the change of use or redevelopment of nursing or residential care homes is proposed, the Council will expect developers to demonstrate that the existing use is not viable or that current care standards cannot be met either through conversion or extension of the existing property. If the proposed change of use is for housing on the open market, developers should note that the Council will seek the provision of, or appropriate contributions towards, items such as affordable housing, open space and sports facilities. It should also be noted that parking standards are likely to be higher for open market housing and that adequate parking spaces will need to be provided on site.

   

ESN 13:

SITES FOR GYPSIES AND TRAVELLERS

Applications for the placing and development of single or groups of gypsy caravans will be permitted provided that:

  1. there is a demonstrable need for the facility to be located in the Borough;
  2. there will be no detrimental impact on the immediate environment or areas of significant landscape, conservation or strategic / local value;
  3. it will not result in the loss of high quality agricultural land;
  4. there is no undue impact on the character and visual amenity of the area;
  5. the site would have appropriate parking and turning areas;
  6. it would not result in inappropriate activities that would harm the surrounding environment;
  7. it is well related to local community facilities; and
  8. landscaping in keeping with the character of the area is provided.

6.4.63 Gypsies are defined in legislation as “persons of nomadic habit of life, whatever their race or origin.” 94 The legal definition specifically excludes travelling showpeople and a separate policy relating to them is included in this section (Policy ESN 14). Gypsies are “persons who wander or travel for the purpose of making or seeking their livelihood" but this definition does not include persons who move from place to place without any connection between their movement and their means of livelihood. 95 Some groups of "New Age Travellers" could fall within this definition, but it is up to the Council to decide whether any particular group is composed of gypsies. Councils previously had a duty to provide adequate accommodation for gypsies, but this duty was repealed by the Criminal Justice and Public Order Act 1994. Councils still have discretionary powers to provide sites, but it is envisaged that there will be more applications for private gypsy sites as a result of the change in legislation.

6.4.64 Gypsy sites should not have an adverse effect on countryside interests. The use of areas of derelict land, sites that already contain buildings or sites which are already in a commercial use may help to keep impacts on the wider countryside to a minimum, although other potential sites may also be suitable. In general terms sites should be unobtrusively sited in the wider landscape and should be located outside protected areas such as the New Forest National Park, the North Wessex Downs Area of Outstanding Natural Beauty and Sites of Special Scientific Interest. They should also not be located on areas of high quality agricultural land. The potential impacts on local character and visual amenity need to be taken into account. Sites should not harm the rural character of the immediate locality or harm the amenity of nearby residents. All sites should be landscaped to reduce their visual impact.

6.4.65 For any application for a gypsy site, the Council will need to be convinced that there is a demonstrable need for the site to be located in the Borough. Any new permanent sites should have good vehicular access and be accessible to schools and other community facilities. In some cases gypsies run businesses from their sites which can generate significant vehicle movements. It is important that sites are located and designed to ensure that they will not cause nuisance to neighbouring residents or uses.

   

ESN 14:

SITES FOR TRAVELLING SHOW PEOPLE

Development to accommodate travelling showpeople will be permitted provided that;

  1. it can be demonstrated that there is a need to be located in the Borough;
  2. the site is large enough to meet the need for the parking and storage of vehicles and towed equipment;
  3. it is well related to local and community facilities; and
  4. landscaping in keeping with the character of the area is provided

6.4.66 Travelling showpeople are defined as self employed business people who travel a set route during the summer months and require a winter base for residential use and the storage and maintenance of their equipment. 96 They are exempt from site licensing requirements when they are travelling for their business or whilst they occupy quarters during the winter months. They have permitted development rights to set up caravan sites when travelling for the purposes of their business, but planning permission is required to set up any other site, including winter quarters. 97 Typically a site comprises areas set aside for the showpeoples accommodation and areas where vehicles and fairground equipment can be stored, repaired and tested. The layout of these activities within the site needs to have regard to adjoining land uses.

6.4.67 The Council will need to be convinced that there is a demonstrable need for any winter base to be located in the Borough and that the travelling showpeople are bona-fide. 98 The storage and maintenance of equipment could result in significant vehicle movements being generated and it is important that sites are located and designed to ensure that they will not cause nuisance to neighbouring residents or uses. Any new sites should have good vehicular access and be accessible to schools and other community facilities.

75 The current regional planning guidance is Regional Planning Guidance for the South East (RPG9), 2001, Government Office for the South East, Government Office for the East of England, Government Office for London.
76 as set out in Chapter 3 of Regional Planning Guidance for the South East (RPG9), 2001, Government Office for the South East, Government Office for the East of England, Government Office for London.
77 The currently adopted structure plan is the Hampshire County Structure Plan 1996 - 2011 (Review), 2000, Hampshire County Council, Portsmouth City Council and Southampton
City Council.
78 para. 17, Hampshire County Structure Plan 1996 - 2011 (Review), 2000, Hampshire County Council, Portsmouth City Council and Southampton City Council.
79 ROSE includes the counties of Bedfordshire, Berkshire, Buckinghamshire, East Sussex, Essex, Hampshire, Hertfordshire, Isle of Wight, Kent, Oxfordshire, Surrey and West Sussex..
80 Policies H1 and H2, Regional Planning Guidance for the South East (RPG9), 2001, Government Office for the South East, Government Office for the East of England, Government Office for London.
81 paragraph 23 PPG 3 Housing (2000) DETR.
82 Policy H5, RPG9 Regional Planning Guidance for the South East (2001) GOSE, GOEast, GOL.
83 paragraphs 29 – 31 PPG Housing (2000) DETR.
84 Tapping the Potential – Assessing Urban Housing Capacity: Towards Better Practice (2000) ODPM.
Meeting Economic and Social Needs
85 Policy H4 Hampshire County Structure Plan 1996 – 2011 (Review), 2000, Hampshire County Council, Portsmouth City Council and Southampton City Council.
86 Implementing Policy H4, 2001, Hampshire County Structure Plan 1996 – 2011 (Review) 2000, Hampshire County Council, Portsmouth City Council and Southampton City Council.
87 Rounded down from 2,638.
88 Andover Beyond 2000, Southern Test Valley Beyond 2000 and The Villages Beyond 2000, 2000, Test Valley Borough Council.
89 Evaluation of Development Options: Andover & Southern Test Valley, 2000, Test Valley Borough Council.
90 for details see the Council’s Empty Property Strategy, 2002, Test Valley Borough Council.
91 Para. 7, PPG1: General Policy and Principles, 1997, DoE.
92 Parish Plans – Guidance for Parish and Town Councils, Countryside Agency (CA 122), 2003 and Parish Plans and the Planning System – Guidance and Advice for Local Planning Authorities, Countryside Agency (CA 123), 2003.
93 Such as the Care Standards Act, 2000.
94 Section 24 Caravan Sites and Control of Development Act 1960, as amended by Section 80 of the Criminal Justice and Public Order Act 1994
95 Circular 1/94: Gypsy Sites and Planning
96 Circular 22/91: Travelling Showpeople.
97 Part 5 of Schedule 2 of the Town and Country Planning General Permitted Development Order, 1995.
98 Licensing/membership of a guild will need to be demonstrated with an application.

< Previous Chapter | Next Chapter >

 



Page Last Updated: 02/05/2007
0 1 2 3 4 5 6 7 8 9