Housing

222. There is no area of the Plan more contentious than the `level of growth' and there is no area where disagreement is more dramatic than in the issues raised by the need to allocate more land for housing. Hampshire has a large stock of house types, sizes, tenures and locations. Making the most efficient use of this stock will be an important part of meeting future housing needs. However, it will not be sufficient to accommodate all Hampshire's needs by 2011. There will be an increase in the number of households which will require housing over the Plan period. New land allocations will be required to meet these additional needs.

223. The Plan provides a housing distribution sufficient to accommodate the full dwelling requirement of the 1994 RPG9. However, this development is phased so as to provide the greatest support to measures to revitalise towns and cities and protect the countryside from unnecessary development.

224. This phasing is in the form of a base-line plus reserve provision. In this way `plan, monitor, and manage', as advocated by the Secretary of State for the Environment, Transport and the Regions, will be implemented by a plan which provides the strategic framework for accommodating development; a monitoring system which will identify changing needs and the opportunity to manage any additional requirements in the light of the nature of changing needs and the success of schemes to enhance opportunities for urban living.

225. The base-line provision is derived from the proposed level of housing in the draft regional planning guidance submitted by SERPLAN to the Secretary of State for the Environment on 15 December 1998. The reserve provision is the difference between that base-line figure (42,000 dwellings) and the total additional provision 2001-2011 extrapolated from the existing regional planning guidance (56,000 dwellings - RPG 9), i.e. up to an additional 14,000 dwellings.

226. Publication of revised Regional Planning Guidance for the South East (revised RPG9) will establish the overall housing requirement in Hampshire. Applying the principle of `plan, monitor and manage' the advice from revised RPG 9 will form the benchmark for deciding the adequacy of the base-line provision.

227. Although at first sight, the scale of development seems large, it must be seen in context. First, by 2001 there will be nearly 700,000 dwellings in Hampshire accommodating some 1.6 million people. The additional provision proposed in this Plan represents at most an eight per cent increase in the dwelling stock. Moreover, 40 per cent of the total provision established in Policy H1 (94,290 dwellings 1996-2011) is committed by existing plans and policies and another 25 per cent will be provided by the normal processes of development and change within the two cities of Portsmouth and Southampton and towns and villages within Hampshire.

228. If the Plan is successful over the Plan period development rates in Hampshire will reduce by nearly a half from the levels reached a few decades ago.

229. If the new dwellings are to meet Hampshire's needs, rather than those of in-migrants, a mix of types (including flats and accommodation provided by conversion, sub-division and change of use of existing buildings, as well as houses), sizes and tenures will be needed to meet different household requirements. This mix will need to include an appropriate proportion of low-cost housing and accommodation to meet particular needs. High quality development at appropriate densities and with adequate open space can, where sensitively located, help to support the local services and communities.

H1 Local plans should, in accordance with Policies H2 and H4, make provision for up to 94,290 dwellings in the period April 1996 to March 2011.

230. The dwelling provision made in Policy H1 is sufficient to accommodate the remaining requirement from the Hampshire County Structure Plan (1994) and, in full, the housing provision for the period 2001-2011 deduced from Regional Planning Guidance for the South East (RPG9, March 1994).

H2 Provision will be made in local plans for the development of 80,290 additional dwellings in Hampshire between April 1996 and March 2011, with the following distribution between the Districts:

	Total
Basingstoke and Deane	12,060
East Hampshire	5,500
Eastleigh	6,295
Fareham	4,740
Gosport	2,980
Hart	4,750
Havant	2,990
New Forest	5,480
Portsmouth	9,000
Rushmoor	2,980
Southampton	7,330
Test Valley (North)	6,160
Test Valley (South)	2,730
Winchester	7,295
Hampshire	80,290

231. Policy H2 establishes the base-line housing provision for the period 1996-2011. It includes an allowance for the residue from the current structure plan housing provision which now looks unlikely to be developed in the period up to 2001 because of market conditions. The distribution is based on the application of the broad principle that the Plan should seek to provide locally for the needs arising in three broad geographic areas : Hampshire North, Hampshire South-East and Hampshire South-West, by:

· making the best use of opportunities within existing built-up areas to extend the housing stock, particularly of smaller and affordable dwellings;

· enabling development on sites identified in local plans to make a contribution towards retaining and enhancing local services; and

· promoting the development of major development areas.

232. The recycling of urban land is a key element in the strategy. Nevertheless the use of some previously undeveloped land will be necessary. Following the urban-centred strategy outlined in this Plan, any new allocations of land for housing in local plans (either as part of this base-line provision or as part of the reserve provision - see Policy H4 below) will be based on the principles that development should:

i) be accommodated in or close to existing or proposed urban areas;

ii) be well related in scale and location to existing development and able to be integrated into the pattern of settlements and surrounding land-uses;

iii) not be detrimental to the implementation of the proposed Major Development Areas or schemes of urban regeneration in neighbouring built-up areas;

iv) not cause significant harm to the interests of acknowledged importance established in policies E1- E19; or

v) conflict with transport policies in this Plan or burden the strategic transport network with local trips.

233. Policy H2 provides the basis for monitoring the supply of housing land against the relevant strategic housing requirement. Districts which include a Major Development Area (or Areas) will require special treatment (see paragraph following H3 below).

H3 Out of the total provision of 80,290 additional dwellings in Policy H1, provision for 12,000 dwellings will be met by the development of new communities in line with the individual MDA policies and will be distributed as follows:

	Total
Basingstoke	4000
South East of Eastleigh	3000
Andover	3000
West of Waterlooville	2000
Total	12,000

234. Detailed local planning studies undertaken within the framework of Policies MDA1-MDA5 will establish the form of development in these proposed new communities and the possibility of development in the longer term to meet needs after 2011.

235. The locations for the four Major Development Areas have been selected as part of a comprehensive package to meet the likely demands of Hampshire overall (see paragraphs 116 and 117). No site was selected because it was in a particular administrative area but because it provides the best opportunity to create a new community which can both build on the strength of existing urban areas and help overcome any weaknesses. Accordingly the four Major Development Areas will be considered together for the purpose of monitoring housing land supply rather than individually within the districts where they happen to be located.

H4 In addition to the housing provision in Policy H2, a reserve housing provision will be identified in local plans to accommodate up to 14,000 additional dwellings in the period 2001-2011, distributed as follows:

in northern Hampshire

in East Hampshire District 1500 dwellings

in Hart District 1500 dwellings

Winchester City (north) MDA 2000 dwellings

in Basingstoke and Deane District 500 dwellings

Basingstoke MDA 1500 dwellings

in south east Hampshire

West of Waterlooville MDA 1000 dwellings

in Fareham District 1500 dwellings

in Havant District 500 dwellings

in south west Hampshire

in Eastleigh District 1500 dwellings

South East Eastleigh MDA 1000 dwellings

in southern Test Valley 1000 dwellings

in New Forest District 500 dwellings

The need for allocations of land to be released to accommodate this reserve provision will be determined by the local and strategic planning authorities in the light of the policies in revised RPG9. The strategic planning authorities will only support the release of individual greenfield allocations to meet this reserve provision where monitoring of the Structure Plan and Local Plans indicates there is a compelling justification to do so. Issues to be considered in reaching a decision will include:

(i) the rate of development of land in existing built-up areas (including development of land and buildings previously vacant, underused, derelict or released from a former use) across the whole of the structure plan area; and

(ii) the programme of development of local plan allocations and windfall and brownfield sites.

Wherever possible, the release of this allocation should be brought forward through alterations to the appropriate local plan.

236. Policy H4 puts the `plan, monitor and manage' into effect by establishing an additional reserve provision, the release of which can be managed if monitoring identifies a change in circumstances which needs to be accommodated. The approach is novel and its operation will need to be worked up now that the principle of the approach has been accepted by the Secretary of State for the Environment, Transport and the Regions.

237. The authorities will only support the release of individual allocations which form part of this provision if they are convinced that there is a compelling need to do so.

238. Policies and proposals to bring forward the reserve provision will need to be established in the local plans.

In that way the local community will be involved in the selection of sites and those responsible for providing infrastructure and services will be alerted and able to formulate possible investment strategies and contingency plans. The local plans will clearly need to establish the policy presumption against development pending the special circumstances which will trigger the release of any sites.

239. The release of individual sites to meet any new overall requirement will depend on the rate at which housing is being provided across the structure plan area as a whole, particularly the scale of new development on existing allocated sites and the accuracy of current estimates of the potential of previously used land (windfall and brownfield sites). Increased provision from one or more of these sources will delay the release of any greenfield sites. Table A sets out the basic housing land supply assumptions used in estimating the base-line provision.

240. The local and strategic planning authorities will regularly monitor the rate at which sites are being developed for housing. The characteristics of new sites within built-up areas will be carefully scrutinised to ensure that the estimates of future supply from similar sources remain realistic. This work will be published annually along with a statement outlining the authorities' conclusions about the need or otherwise to require provision for the reserve allocation. If it is determined that the reserve allocation is required, the authorities will specify, in the light of information on the local housing and labour markets, in which district or districts the provision should be made. The district will then make provision for the additional requirement, if necessary through an alteration to the appropriate local plan. Districts will be expected to demonstrate that they have followed a sequential approach before confirming that any greenfield sites should be released.

A background paper, Implementing Policy H4 will be published concurrently with this Plan.

Table A: Baseline Housing Distribution by Local Authority Area (2001-2011)

District	Built up area capacity 2001-2011	Small scale additions 2001-2011	Major Dev. Areas 2001-2011	Total Additional Housing 2001 - 2011
Basingstoke & Deane	1800	350	4000	6150
East Hampshire	2000	1500		3500
Eastleigh	800	275	3000	4075
Fareham	800	1050		1850
Gosport	500	0		500
Hart	1200	1200		2400
Havant	800	450		1250
New Forest	1800	0		1800
Portsmouth	5000	0		5000
Rushmoor	1300	0		1300
Southampton	4800	0		4800
Test Valley, north	500	250	3000	3750
Test Valley, south	300	250		550
Winchester	1800	1275	2000	5075
Total	23400	6600	12000	42000

H5 Within the provisions of Policy H1, land will be allocated in local plans for housing development on land vacant, under-used, derelict or released from its former use; or on new sites adjacent to existing built-up areas, provided that:

(i) it can be well served by existing, or proposed public transport routes; and

(ii) either by itself, or cumulatively with other existing or proposed development in the vicinity, does not:

(a) conflict with the transport policies in this Plan: or

(b) overload or require extensive improvements to social, community or basic infrastructure; and

(iii) retains formal or informal open space and respects the character of the surrounding area; and

(iv) it would not cause significant harm to other interests of acknowledged importance; and

(v) it does not result in the significant loss of land suitable for employment or other uses.

241. The redevelopment and more intensive use of land within existing built-up areas meets housing need in a way which can help to regenerate and revitalise urban areas and their communities. It can help to boost the local economy, improve the urban environment and reduce the need to travel by car. New housing development in town centres is especially valuable to maintain and enhance their vitality and viability under the provisions of Policy S1.

242. Although the maximum use should be made of vacant, under-used and derelict land or urban land released from its former use for housing purposes, local planning authorities will need to take into account the appropriate mix of other uses which will need to be met within urban areas. Accordingly, housing development should not diminish the supply of land available for business or industrial uses. However, more than half of the new residential development within the provision of Policy H1 will be in urban areas.

243. The redevelopment and more intensive use of urban land must not be at the expense of the overall quality of life for existing and future residents. Development should not overload or require expensive improvements to social, community or basic infrastructure or add to congestion. The appropriate amount of new housing should respect the character of the area and its capacity to support additional development. In particular, valuable formal or informal open space should be retained.

244. New development adjacent and well related to existing built-up areas will also be appropriate where it can be well served by existing or proposed public transport routes. Providing homes close to places of work and near to shops, services and leisure facilities can reduce the need to travel and will maintain the vitality and viability of urban areas. The sites, to be identified by local plans, should be selected to ensure that development meets an identified need and makes a positive contribution towards retaining and enhancing local services and respects the local character and setting of adjoining areas.

245. In rural areas, local planning authorities should consider whether development adjacent to small towns and villages can help to support the local economy and local services, such as shops, schools and post offices, and the well-being and viability of rural communities. Additional development should be small scale and well related to the character of the settlement and the countryside.

H6 Within the provision of Policy H1, planning permission may be granted for development which brings back into use offices and/or under-used space in buildings for housing purposes or makes more efficient use of the existing housing stock provided that:

(i) it reflects the character of the neighbourhood;

(ii) it does not have a significantly detrimental effect on overall environmental quality;

(iii) the necessary infrastructure can be provided in accordance with other policies of this Plan; and

(iv) it does not result in the significant loss of land suitable for employment or other uses.

246. Existing buildings, in particular the existing housing stock, can play an important role in meeting future housing requirements under the provision of Policy H2. The more these buildings are used to increase the number and range of dwellings available for new homes, the more protection is given to the countryside beyond existing boundaries of villages, towns and cities. There is a significant amount of under-used space, especially above shops and offices, in addition to a number of empty homes and office blocks which may be suitable for housing purposes. The conversion of properties into flats or self-contained accommodation and change of use of buildings to residential accommodation may also be appropriate as a way to maximise the use of buildings and meet future housing needs, especially for smaller households and additional affordable housing provision.

247. For the existing housing stock to play a full role in meeting future housing needs it must be kept in a good state of repair and maintenance. Development proposals to refurbish, maintain or improve the condition of the existing housing stock will be encouraged.

248. New housing within existing residential areas must reflect the character of the neighbourhood. The scale of development will depend on whether the basic infrastructure can be provided in accordance with other policies of this Plan. Local plans should identify where a higher density of housing may be acceptable. Ultimately, it is important to maintain a range and choice of housing.

249. An assessment is included within the provisions of Policy H2 of the likely contribution of dwellings from this source. However, local plans will need to consider all new opportunities for the re-use of vacant and underused space as a contribution towards the overall dwelling requirement. In considering new proposals, account will need to be made of the need for employment and other uses on the site. Where local planning authorities have set specific targets for bringing vacant or underused space back into use, for example through empty property initiatives, it may be appropriate to refer to these in the local plan. Individual development proposals will need to be considered on their merits against the other policies of this Plan.

H7 Provision will be made in local plans for a range of housing densities, types, sizes and tenures to meet specific needs, including those of:

· the elderly;

· people with disability;

· the Care in the Community policy;

· single people, and people living alone;

· newly-forming households/young couples.

250. Current indications are that there is a continuing reduction in the average size of households. There is a need for a range of size, price and tenure of new housing to meet the different needs of the community. Local planning authorities should seek to influence the mix of house types according to locally-identified housing needs, taking into account up-to-date household projections and housing need assessments. Dwellings suitable for single people, newly-forming households and young couples should be encouraged, particularly on sites suitable for higher densities.

251. People in special need of help or supervision, such as the elderly and people with illness or disability, may find that conventional housing is not suitable to meet their needs. These people may have special locational requirements or require a particular approach to housing design and layout. Where there is a clear evidence of need, local planning authorities may seek to negotiate housing accessible to those with particular needs on suitable sites. The provision of special needs housing may also meet the requirements of `affordable' under the provision of Policy H8. Local planning authorities can facilitate Care in the Community by the approach adopted, for example, to the conversion or refurbishment of properties and car parking provision.

H8 Within the provisions of Policy H1, where there is an identified need for affordable housing, local planning authorities will, before granting permission for housing development, negotiate with developers the proportion of new housing that will be available to people who cannot afford to occupy houses generally available on the open market. The proportion of affordable housing on any particular site will be determined on a site-by-site basis taking into account the overall level of need for such housing, the local housing market and site suitability. Local planning authorities will need to make arrangements, where appropriate, to ensure the housing is occupied only by people falling within particular categories of need for affordable housing.

252. Affordability of housing is a major issue. Many people are unable to afford house prices or rents on the open market. Local planning authorities are encouraged by the Government to play an enabling role in the provision of affordable homes. The extent and type of need should be assessed by each local housing authority using all available information: including housing needs surveys and local housing strategies, information on house prices and rents, up-to-date household projections and housing waiting-list data.

253. Where there is an identified need, local plan policies may include a target for the provision of low-cost housing and also, where appropriate, targets for specific sites. The proportion of low-cost housing on each site may vary according to site suitability and the local housing market. Local plans may also specify that a proportion of low-cost housing will be particularly sought on sites for residential development above a minimum size threshold. On smaller sites, or in special cases, the negotiation between the developer and the local planning authority might include the provision of dwellings off site. Alternatively, sufficient financial contribution might be appropriate from the developer to allow a housing association, registered social landlord or any other appropriate organisation to provide a suitable number of units. The provisions of this policy apply to all sites which come forward for housing development, not just those allocated for housing within a local plan.

254. Details of each scheme are a matter for negotiation between the local planning authority and the developer. The local planning authority must be satisfied that adequate arrangements have been made to ensure that new dwellings remain low cost in perpetuity to meet future housing needs. This will usually mean the involvement of a housing association or other social body providing housing for rent or shared ownership. However, a higher density of homes for sale may meet the requirements for the provision of low-cost housing provided it meets the local definition of low cost as defined in the local plan.

255. There are other ways, besides building new homes, which may deliver low-cost housing such as the conversion of existing buildings into smaller units, making use of empty space above shops and offices or bringing vacant properties back into use. Encouragement of these housing initiatives and others within existing urban areas may contribute towards the provision of low-cost housing. Local planning authorities will need to monitor carefully the provision of low-cost housing within the plan area to assess the effectiveness of local plan policy in delivering locally identified housing requirements.

H9 Small-scale development may, exceptionally, be permitted for affordable housing within or adjacent to rural settlements in addition to the provision of Policy H1, on sites where planning permission for housing development would not normally be granted, where there is clear evidence of local need. Planning authorities will need to make arrangements to ensure the housing is occupied in perpetuity only by people falling within particular categories of need for affordable housing.

256. Small-scale housing development, within or adjoining rural settlements, may be appropriate on land where housing development would not normally be permitted as an `exception' to policy, provided there is a clearly identified local need in rural areas which cannot be otherwise met. It will be especially valuable to work closely with the local rural community and parish councils to identify local housing needs. Local plans should set out clearly the area within which needs will be considered `local' and specify the categories of need for eligibility and occupancy.

257. Although these sites will not be identified in local plans, it may be appropriate, in certain cases, to identify particular villages or parishes where there is an identified need. Proposals will be considered on their merits, taking into account evidence of local needs and whether the proposed development respects the landscape setting and character of the settlement and avoids areas of acknowledged importance.

258. Where sites are released to provide low-cost housing, local planning authorities must be satisfied that secure arrangements have been made to ensure that dwellings remain available for local needs in perpetuity. This long-term availability will normally be achieved by involving a housing association.

H10 Residential development may be permitted outside existing and proposed built-up areas if it:

(i) replaces an existing dwelling(s); or

(ii) is essential for the efficient running of an agricultural or forestry holding; or

(iii) results from the conversion of a building for which, in the opinion of

the local planning authority, there is a no more suitable use and there

are no detrimental effects on its fabric, character or setting.

259. Outside the built-up area, to be defined by local plans, residential development may be permitted in exceptional circumstances.

260. An existing dwelling can be replaced provided the new one is not significantly larger than the one it replaces and provided the original dwelling is not totally derelict.

261. Planning applications for the conversion of other rural buildings to housing will be considered on their merits, having regard to the other policies in this Plan and the advice given in PPG7. In general the re-use of buildings for small rural enterprise, in accordance with Policy EC3 is preferable to a residential use. Conversions will not be permitted where they will have harmful effects on the character of the countryside or the fabric and character of a building, especially buildings of architectural or historic interest.

262. The application of this policy is subject to the countryside and other relevant policies of this Plan, designed to protect specific areas such as the New Forest and other areas of importance for landscape and nature conservation.

H11 To make the best and most economical use of land, sites which unexpectedly become available for development and redevelopment over the plan period and which are suitable for housing development, and are not for the time being identified in a local plan, will be considered on their merits having regard to overall land availability and the other relevant policies of this Plan.

263. It is important to secure the best and most economical use of land for housing development. Where major windfall sites are released for redevelopment, in particular sites which are surplus to the requirements of private companies and public agencies, such as the Ministry of Defence and regional health authorities, local planning authorities will first assess whether they are suitable to meet future housing land supply requirements under the provisions of Policies H2 or H4. Where sites are suitable in planning terms for housing development and are consistent with the policies of this Plan, there may be opportunities for windfall sites to help meet future housing needs, where redevelopment would contribute towards urban regeneration or conserve land of greater value.

264. Policy H11 applies to land both within and outside of the built-up area defined in local plans. The detailed consideration of major windfall sites on their merits, should normally be carried out through the development control process. In considering major urban land releases, it will be particularly important to take into account the value of the land in its existing state for recreation, nature conservation and the general quality of life for residents.

H12 Local plans will make such additional provision for gypsy accommodation as may be needed, either by identifying sites or by criteria-based policies against which planning applications will be judged. Applications for the development of new sites will be considered on the basis of their suitability for gypsies, their impact on the neighbourhood and current Government advice.

265. Local planning authorities no longer have a statutory duty to provide sites for gypsies residing in or resorting to their area. Government guidance is that local planning authorities should continue to make adequate gypsy site provision in their development plans, whether for public or private sites. A variety of sites may be needed, including sites for settled, long-term use, temporary stopping places and transit sites.

266. Local plans should either identify locations for gypsy sites or should set out criteria-based policies for determining planning applications. The aim should be to secure provision appropriate to gypsies' accommodation needs while protecting amenity and the local environment. As a rule, it will not be appropriate to make provision for gypsy sites in areas of open land where development is severely restricted. Other considerations, such as highway access and safety and proximity to local facilities, will also be relevant. Sites meeting countryside, conservation and highway policies can be found in rural or semi-rural settings and urban areas.