CHAPTER THREE:

HOUSING

Policies

HSG.1 The Identification of Settlements for Planning Purposes

HSG.2 Exceptions to Normal Restrictions on New Housing in the Countryside

HSG.3 The Relaxation of Agricultural Occupancy Conditions

HSG.4 Development within Urban Areas and on Brownfield Sites

HSG.5 Allocation of New Housing Sites

HSG.7 Planning Benefits relating to New Housing Developments

HSG.8 Housing to meet the needs of Disabled People

/HSG.9/HSG.10/HSG.11 Affordable Housing for Local Needs

HSG.13 Residential Use of Space Above Shops and Offices

HSG.14 Retention of Mobile Home Parks

HSG.15 Temporary Rresidential Accommodation

HSG.16 Purley Park River Estate

HSG.17 Gypsy Transit Sites

HSG.17A Permanent Gypsy Sites

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CHAPTER THREE:

HOUSING

3.1 INTRODUCTION

3.1.1 The Berkshire Structure Plan makes provision for about 9,000 dwellings to be built in West Berkshire in the period 1991-2006. This provision is split into three phases; 2,700 dwellings between 1991-1996, 3,250 dwellings between 1996-2001 and 3,050 dwellings between 2001-2006, although these figures are not precise limits or targets. The Local Plan sets out policies allocating sufficient land to allow this requirement to be met.

3.1.2 Although clear allocations for housing provision have been set this is not the only housing issue that this plan must tackle. Issues of quality, variety, and meeting local needs must also be dealt with.

3.1.3 Between April 1991 and March 2001 5,170 dwellings had already been completed. By the end of March 2001 a further 2,671 dwellings were expected to be built within the plan period, without any specific Local Plan allocation.

3.1.4 The provision of housing cannot be entirely met in the already developed areas of West Berkshire's towns and villages. It is necessary therefore for this plan to make specific allocations of land for housing. In identifying sites for housing the Local Plan has sought to balance the issues set out in PPG7 and PPG13. More general advice upon the development of housing is contained within PPG3.

3.1.5 In line with this PPG advice, as it relates to West Berkshire District, particular regard has been had to the following when selecting suitable sites for development:

• Achieving sustainable development, through seeking locations that minimise pollution levels, consumption of energy, land and other non-renewable resources. Key elements of this approach are reducing the need to travel and redeveloping brownfield /previously developed land.
• Protecting open countryside
• Seeking to sustain balanced communities in rural areas
• Achieving full and effective use of land within existing urban areas, while ensuring the retention of open space
• Seeking the implementation of existing commitments for housing development.
• Achieving attractive residential locations and creating good design.
• Does not have a detrimental influence upon the wildlife/nature conservation resources of the area.

3.1.6 The sites allocated below not only meet the Structure Plan requirement but also provide a robust spread of housing types and locations, appropriate to the nature and character of West Berkshire District.

3.1.7 Since the conclusion of the Local Plan Inquiry the government has published revised guidance on housing PPG3 (March 2004). It was not considered necessary to re-write this chapter following the publication of PPG3, as many of the themes where already present in the original text. However it is considered important to emphasise that the contents of PPG3 will be a very important material consideration when dealing with planning applications. In particular the following issues will be considered:

• density, car parking, and the efficient use of land (paras 57 to 62);
  
  
• 'urban' design and sustainable residential developments (para 63);
  
  
• dwelling mix, and creating mixed communities (paras 9 to 11).

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3.2 STRUCTURE PLAN POLICIES

3.2.1 The Structure Plan has a number of policies concerned with detailed aspects of the provision of housing. It is the intention of this document to expand upon these policies, not merely repeat their content. However, for reference, relevant policies from the Structure Plan are set out below:

H1-H3 set out the overall numbers, and phasing, of housing required.

H4 new housing should be in locations that are close to employment areas.

H5 new housing will be achieved by infilling within existing settlements, the redevelopment of existing buildings; the change of use of non-residential buildings and the sub-division of existing dwellings.

H6 loss of particular residential properties will only be acceptable if replaced elsewhere.

H7 an appropriate proportion of housing shall be affordable housing to meet local needs.

H8 affordable housing to meet local needs can be approved in rural areas as an exception to normal planning restrictions.

H9 encourages the provision of a range of densities, dwelling types and sizes; with particular emphasis on identified local or special needs.

H10 housing will be encouraged within or on the fringe of town centres.

H11 identifies criteria for the selection of gypsy transit sites.

3.3 BACKGROUND STUDIES AND STRATEGIES

3.3.1 The Council invited suggestions of sites that were available for development within West Berkshire during the plan period, with all comments and proposals being considered by the Council's Local Plan Review Panel. A draft Housing Distribution Strategy was published at two stages for public consultation in 1994 and in 1995. Further sites were put forward by objectors at the Local Plan Inquiry, following which the Inspector recommended the inclusion of some additional sites.

3.3.2 Each year the Council prepares a survey of planning commitments and completions for the previous year in conjunction with the Berkshire Unitary Authorities' Joint Strategic Planning Unit.

3.3.3 The Rural White Paper (2004) identifies the part housing has to play in maintaining a living countryside. The importance of encouraging a wide range of housing options is highlighted, with specific emphasis being placed upon the provision of affordable housing.

3.3.4 The Council has for many years sought to provide a corporate approach to housing related issues through the preparation of a corporate housing strategy. The strategy contains an assessment of housing need and priorities for dealing with that need.

3.4 KEY HOUSING AIMS

3.4.1 The housing chapter of the Local Plan has four key aims;

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(I) to make an adequate allocation of housing sites to accommodate 9000 dwellings of a variety of types in a variety of locations,

(ii) to locate housing having due regard to the principles of sustainable development,

(iii) to secure the maximum level of affordable dwellings to meet the needs of the local population,

(iv) to ensure the creation of 'quality' housing schemes which maintain and enhance the character and appearance of the area in which they are to be located.

3.4.2 This plan makes provision for about 9,000 dwellings to be constructed across West Berkshire between 1991 and 2006. This allocation is made in the following way:

In this table outstanding commitments include all hard commitments (sites with planning permission) and soft commitments (sites resolved to be approved subject to the completion of a section 106 planning obligation) on sites over 1ha. It excludes Local Plan housing sites which are identified separately in this table and set out in detail in policy HSG.5.

Small unidentified sites are defined as sites of less than one hectare which have not previously been allocated through the local plan process. Soft commitments of less than 1ha are also included in the allowance for small unidentified sites.

3.4.3 A cautious approach has been adopted towards the forecast contribution from small unidentified sites and a suitable level of non completions has been allowed for within both the unidentified small sites figure and the existing small site commitments. In addition, based upon past experience, a further 40 dwellings per annum are expected to be built on urban/brownfield sites. Taken together, these seek to reflect recent government guidance in PPG3 and maximise the contribution of 'previously developed' land.

3.4.4 It is not sufficient to simply identify enough land for housing. The creation of quality housing design and layout is essential. To this end development statements have been prepared for the Local Plan housing sites specifically identified in this plan. In many instances these development statements have been prepared in conjunction with the local communities involved. The development statements, which are attached in Appendix 10 of this plan, attempt to ensure that new development respects and enhances the existing village or neighbourhood. They set out the required elements for development of the respective sites. Also illustrated is a preferred form of development.

3.4.5 The achievement of a quality development will be central to the consideration of all planning applications. Principles of design, environment and community benefit, to which all developments should have regard, are set out in Policies OVS.2 and HSG.7

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3.4.7 This plan aims to help achieve the aims of the Council's corporate housing strategy which has a primary purpose of 'ensuring that the accommodation needs of the population within the district are met, with priority given to those who are unable to meet their own housing need'.

3.4.8 One particular area where this plan can assist in meeting housing need is by enabling land to come forward for affordable housing. Policies HSG.9 to 11 will make land available for the provision of affordable housing and encourage partnerships between the Council, Housing Associations and private housing developers.

3.4.9 The Council will encourage the use of energy efficient designs, layouts, materials and new technologies with particular emphasis upon the generation and conservation of electricity and heat. Furthermore it will encourage designs that will conserve domestic and rain water. These designs should be compatible with the aim of preserving and enhancing the character of West Berkshire's built and rural areas.

3.4.10 The Council wishes to ensure that new development has an attractive visual environment, including space around buildings. A balance is required between the efficient and effective use of land available for development, and the private amenity and privacy of occupiers and their neighbours. The Council will continue to encourage the provision of adequate private amenity space through Supplementary Planning Guidance. At the same time, developments will be expected to comply with the advice given in PPG3 relating to density.

3.5 SMALL SCALE DEVELOPMENT WITHIN SETTLEMENTS AND THE COUNTRYSIDE

THE IDENTIFICATION OF SETTLEMENTS FOR PLANNING PURPOSES

3.5.1 The countryside of West Berkshire contains many groups of dwellings, from small groups of 2 or 3 dwellings high on the downlands to the major towns such as Newbury and Thatcham. It is not appropriate to allow new development in the smaller of these groups of dwellings for two clear reasons. Firstly, development ideally should be located close to existing services and facilities that are normally only found in settlements of some size, and secondly small scatters of housing are a characteristic of the Berkshire countryside that should not be destroyed by continuous infill development.

3.5.2 Dwellings will continue to be built on small unidentified sites. In accordance with Structure Plan policies C1 and H5 these sites will be mostly within the identified settlement boundaries of existing settlements identified in this Plan. The identified settlements are those areas of long established close knit development, large enough to contain a basic range of facilities.

3.5.3 In preparing this Plan, the Council has reviewed the settlement boundaries set out in the NDLP (1993). In addition this plan includes four further settlements for which a close knit settlement can be identified in accordance with the criteria set out in Appendix 12. The criteria listed in Appendix 12 comprise a balanced and consistent test as to whether existing buildings (and land) should or should not be contained within identified settlement boundaries. The criteria define the principles upon which these boundaries are drawn up; they provide for a thorough and rigorous examination of all West Berkshire's settlements, in order that the surrounding rural areas are not unduly compromised by potentially harmful development.

3.5.4 In accordance with policy H5 of the Structure Plan, small scale development on unidentified sites will be acceptable in the form of redevelopment and change of use, or infilling within the identified boundaries of the settlements set out in policy HSG.1. Outside settlement boundaries, development will only be acceptable in exceptional circumstances. Details of acceptable categories of development outside settlement boundaries are set out in policy HSG.2. Special regard should be had to policies of countryside protection and enhancement when considering new housing development outside settlements.

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EXCEPTIONS TO NORMAL RESTRICTIONS ON NEW HOUSING IN THE COUNTRYSIDE

3.5.5 One of the key aims of Government advice, the Structure Plan and this plan is to protect the open and undeveloped nature of the countryside. To this end policy C1 of the Structure Plan generally restricts new housing development in the countryside. Some land has to be released in order to accommodate the identified needs of West Berkshire between 1991 and 2006. Such land is identified in Policy HSG.5.

3.5.6           Other housing development will be resisted outside the settlement boundaries identified in this plan. Possible exceptions to this approach listed in policy HSG.2, are dwellings that are required to be in the rural area outside settlements, together with conversions and redevelopment that can be accommodated without increasing the impact of housing development on the undeveloped nature of the countryside.

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THE RELAXATION OF AGRICULTURAL OCCUPANCY CONDITIONS

3.5.7 There are many agricultural workers dwellings throughout West Berkshire's rural areas. Such properties are available at low cost and thereby perform a valuable function within the rural economy. Many of these dwellings are subject to planning conditions restricting occupation to those in agricultural employment. In order to ensure this stock of housing is not lost the Council will generally resist the relaxation of agricultural occupancy restrictions. There may be situations when there is demonstrated to be no further requirement for the dwelling to house an agricultural worker in the locality. In such cases the Council will firstly consider whether there are other local housing needs that could be accommodated in the dwelling. Examples of local housing needs are set out in para 3.11.2.

3.6 DEVELOPMENT WITHIN URBAN AREAS AND ON BROWNFIELD SITES

3.6.1 The Structure Plan Policy BU3 identifies that in certain circumstances it will be appropriate to support the re-use or redevelopment of business, industrial, distribution or storage premises for housing. It is anticipated that a number of dwellings will come forward on such sites within West Berkshire during the plan period. Furthermore new housing on appropriate sites in town centres is encouraged due to its contribution to the vitality of the area and the aims of sustainability.

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3.6.2 A substantial part of the overall housing provision will be achieved through the redevelopment or reuse of existing brownfield/ previously developed sites (as defined in Annex C of PPG3). Structure Plan policy BU3 and Local Plan policy ECON.2 support the alternative use of sites currently in employment use or committed for that purpose. A sustainable and suitable location is generally defined as one which:

• would minimise the need to travel and be accessible by alternative means of transport other than the private car,
• is well related and accessible to the existing settlement pattern, and a range of local services and facilities and employment opportunities,
• would not cause harm to the natural resources and character of the area, and would contribute towards a balanced local community in terms of the provision of homes, jobs, services and facilities.

3.6.3 In addition to the reuse and redevelopment of commercial uses, opportunities are likely to exist for more creative mixed use of such premises in town centres. On the small scale, this approach has been successful in the form of the living over the shop initiative.

3.7 THATCHAM MOD STORAGE DEPOT

3.7.1 The Council in association with the landowner, the Ministry of Defence, drew up a planning brief for the Thatcham MOD Depot in 1999 and 2004. The brief was approved by the Environment Committee on 6 July 2004.

3.7.2 Two identical outline planning applications, numbers 156710 and 156711, (January 2004) were submitted for residential development (with improved access and transport links, associated open space and landscaping) at the MOD Storage Depot, Station Road, Thatcham for the development of approximately 550 dwellings. These applications were considered at the Thatcham Area Planning Sub-Committee (July 2004) where they were resolved to be approved subject to a s.106 planning obligation. On 30 October 2001 this site was granted outline planning consent.

3.8 ALLOCATION OF NEW HOUSING SITES

3.8.1 It is a fundamental aim of the planning process to seek sustainable locations for housing. However this does not mean that all the new housing should be located in or on the edge of West Berkshire's towns.

3.8.2 West Berkshire contains many villages with a broad range of facilities that can cater for many of the day to day requirements of their residents. It is an important aim of sustainability and the Government's strategy for rural areas to ensure that the range of services offered in such villages is maintained by allowing natural growth. In the smaller villages this will be done through unidentified small sites coming forward in accordance with Policy HSG.1 and HSG.2 and through the development of affordable housing schemes for local needs (Policy HSG.11). However some of the larger settlements with a wider range of services are able to accommodate larger allocations of housing.

3.8.3 A number of settlements have been identified with potential for such allocations in the plan period. Development statements have been prepared for these sites in consultation with locally based 'community working parties' or the relevant parish or town council.

3.8.4 Development statements setting out the required elements, and illustrating the preferred forms of development for these sites are attached at Appendix 10. These may be reviewed with further consultation, as appropriate, to take account of local circumstances at the time a development proposal is made. Locations of allocated sites are shown on the

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inset maps noted. It is expected that the layout will be in the form shown on the development statements. Open areas within the development will be treated as important open space once development is complete, and be subject to policy ENV.31.

3.8.5 The number of dwellings indicated in the table above reflect the advice in PPG3 that housing densities of less than 30 dwellings per hectare (net) should be avoided in order to make the most efficient use of land. The precise number of dwellings to be accommodated on each site will be determined, taking account of all other factors, when considering specific planning applications.

3.9 PLANNING BENEFITS RELATING TO NEW HOUSING DEVELOPMENT

3.9.1 The Council will need to be satisfied before proposals for housing development are permitted that the scheme includes features that aid the successful integration of the development into the existing town or village. Such features will include the matters set out in the approved development statement or master plan (where relevant) and other works required to satisfy Policy OVS.3 and Policy TRANS.2. In situations where a development statement or

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master plan has not been prepared the Council will seek, where practical and related to the development or redevelopment, one or more of the matters listed in policy HSG.7.

3.10 HOUSING TO MEET THE NEEDS OF DISABLED PEOPLE

3.10.1 In order to widen the choice of housing to all members of the community a significant proportion of new housing is to be constructed to a standard which could be easily converted for occupation by people with disabilities. While these properties will not always be occupied by those with disabilities, if constructed to a certain standard they can be easily adapted to a particular occupant's needs, if so required. Appropriate features to be incorporated in such new housing will include:

a) a level or suitably ramped approach and flush threshold at the main entrance;

b) internal planning for wheelchair manoeuvre into and within all principal rooms;

c) downstairs bedroom and bathrooms or the ability to install a through floor lift;

d) a bathroom and toilet large enough to permit lateral transfer from wheelchair to wc/bath;

e) kitchen layout designed for easy access by wheelchair users.

The primary means for setting out these considerations should be the building regulations.

3.10.2 PPG3 advises that where there is evidence of local need, provision could be made for housing accessible to the disabled on suitable sites. Such provision would normally be located close to shops and public transport and be in an area of level ground.

3.11 AFFORDABLE HOUSING FOR LOCAL NEEDS

3.11.1 The Council's Housing Strategy seeks to quantify the level of housing need in West Berkshire and identifies many ways in which this housing need can be met. The active waiting list and housing needs surveys indicate an additional annual housing need in excess of 1000 homes. While much of this need can be met from existing stock, shortfalls of between 146 and 444 dwellings per annum were anticipated during the three years 1995/6 - 1997/8. The planning system has the potential to provide for some of this shortfall. Therefore in accordance with its housing strategy the Council will seek to maximise the proportion of affordable housing for local needs on new

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developments. The Council will regularly monitor and review the needs for, and the achievement of, affordable homes.

3.11.2 The local needs that the Council are particularly keen to target include; homeless families, homeless vulnerable singles, those leaving care, those with other special needs and other persons on the housing waiting lists. Affordable housing encompasses both low-cost market housing and subsidised housing. Affordable housing will normally be provided through a registered social landlord (in a range of types and tenures including shared ownership). There could be situations where there would not be a registered social landlord, in that situation the Council will require that the affordable housing is accessible for the targeted groups listed above, and that the quality of the affordable housing is not compromised.

3.11.3 It is essential that the housing units provided are affordable. As a guide the Housing Strategy suggests that net rents and/or mortgage payments should not normally exceed 30% of a tenants disposable income. The achievement of such rent/mortgage levels is ultimately the responsibility of the housing association that manages the housing units. The Council will assist in ensuring the availability of land for housing associations by the following approach:

a) On sites not allocated through the local plan, consideration will be given to the level of housing need in the area and the suitability of the site to accommodate affordable housing. Circular 6/98 provides guidance on factors to be taken into account when considering the provision of affordable housing including site size, suitability and the economics of provision. This would apply to schemes involving special needs housing, including sheltered housing for the elderly, but special consideration would be given to the particular circumstances and proposals in each scheme. This guidance is reflected in Policy HSG.9 and HSG.10. In most areas of West Berkshire, studies show that need is greater than can be provided through the planning system. Therefore as a starting point applicants for residential development should consider the provision of at least 30%. Due to the level of need in West Berkshire and the scarcity of suitable sites, financial contributions towards affordable housing will only be considered in lieu of on-site provision in exceptional circumstances.

b) On sites specifically identified in this plan for housing an assessment has been made of the housing need in conjunction with the Council's Housing Manager, the Rural Housing Trust and through consultation with the communities involved. The levels of required affordable housing are therefore set out in the development statements accompanying those housing allocations. The need for affordable housing will be reassessed at the time of the planning application.

c) On all new housing sites the land necessary to provide the agreed proportion of affordable housing shall be made available to a housing association at a cost reflecting administration, servicing of the site and the value of the land prior to achieving planning permission. Alternatively the dwellings could be built, to the housing association's specifications, by the developer.

d) This plan makes provision in Policy HSG.11 for rural exceptions sites in accordance with Structure Plan policy H8. All housing on these sites will be affordable. The Council will not consider cross-subsidy on these sites. On rural exception sites the Council will need to be satisfied that the land is being offered at an appropriate price. Such a price should reflect current agricultural land values, administration costs and occasionally compensation for any adverse impact upon remaining land holdings.

e) It is essential that all affordable dwellings achieved through the planning process remain affordable. Different situations will call for different solutions. However the Council will normally expect such matters to be covered by a suitable legal agreement or planning condition and administered by a housing association that has been registered with the Housing Corporation or other Registered Social Landlord.

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3.11.4 Policy HSG.11 represents a major departure from the general aim of retaining housing development within settlements or on brownfield sites. This departure is justified because it enables housing associations to take further action to provide for the considerable levels of housing need that exist throughout West Berkshire.

3.11.5 The principle of rural exceptions is widely established in PPG3 and Structure Plan Policy H8 and applies across West Berkshire with the exception of Newbury, Thatcham and the western edge of Reading. In the rural areas schemes should be small scale, not normally exceeding 12 dwellings.

3.12 RESIDENTIAL USE OF SPACE ABOVE SHOPS AND OFFICES

3.12.1 The Council is committed, through its corporate housing strategy, to improve the range of housing opportunities in town centres. It supports the principles of widening the range of housing as set out in Structure Plan policy H9 and H10. One area where planning can assist with this aim is through adopting a positive approach to the reuse of space over shops. In such circumstances it may also be appropriate to relax normal planning standards for residential garden areas and parking spaces.

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3.12.2 Proposals resulting in the loss of such units will be supported, in terms of Structure Plan policy H6, only where appropriate provision is made for replacement units.

3.13 RETENTION OF MOBILE HOME PARKS

3.13.1 PPG 3 notes that residential mobile homes may have a part to play in providing low cost accommodation for small households. The Council acknowledges the contribution that such properties play in producing a varied housing stock. In 1994 there were some 790 mobile homes on registered parks in West Berkshire. These mobile home parks will normally be protected from redevelopment. A list of these is noted in Appendix 3.

3.14 TEMPORARY RESIDENTIAL ACCOMMODATION

3.14.1 In order to facilitate a flexible approach to the meeting of short term needs the Council is prepared to consider proposals for mobile homes or other temporary accommodation for clearly defined short term periods.

3.15 PURLEY PARK RIVER ESTATE

3.15.1 Purley Park River estate originated in the early 1930's, following the sale of freehold plots of land for use as camp sites. Over the years various structures were erected on many of these plots for use mainly as holiday and weekend accommodation. By 1939 permanent dwellings were erected among the caravans and railway coaches. Since 1947 many applications have been received for extensions to dwellings and redevelopment.

3.15.2 In 1966 a detailed study of the estate was carried out, including an assessment of action that could be taken to improve the environment of the area. As a result, the Purley Park Guidance Plan was drawn up and, on 1st April 1969, adopted by the former Bradfield Rural District Council. This was a non-statutory document defining the broad principles and criteria by which both the former District Council and the County Council would determine proposals within the Purley Park River Estate. This guidance plan was updated in 1992.

3.15.3 Much of the Estate has now been redeveloped in accordance with the Guidance Plan, but a number of sub-standard plots and dwellings remain. Policy HSG.16 sets out the standards to be applied including the provision for minimum building lines.

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3.16 GYPSY TRANSIT SITES

3.16.1 The Structure Plan considers that a sufficient number of sites are currently provided within the county to meet the needs of gypsies residing permanently in Berkshire. Six permanent sites are provided county-wide of which one is within West Berkshire. In addition to this site which is located at Burghfield, there is also a private site at Paices Hill, Aldermaston.

3.16.2 The Structure Plan identifies the need to make adequate provision for the gypsy transit sites. Policy H11 of the Structure Plan suggests such criteria as proximity to primary road network, distance from residential and business properties and the level of self containment should be included in the site selection process.

3.16.3 This plan does not select specific sites. In order to allow the Council to respond positively to proposals for transit sites, should a particular need be identified during the plan period, policy HSG.17 sets out the criteria that will be used to consider the acceptability of such sites.

PERMANENT GYPSY SITES

3.16.4 In accordance with government guidance (Circular 1/94) the policy below sets out the criteria that will be used to consider proposals for permanent gypsy sites.

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