Housing

Please Note: Policies that are highlighted by strikethrough have not been 'saved'.
More information regarding Saved Policies can be found here.

Introduction

6.1. This Chapter deals with the quantity, quality and location of housing to meet future needs in the City. Sites are identified to accommodate new housing development and assumptions are also made about the likely contribution from windfall sites towards future housing supply. The Local Plan gives considerable weight to social considerations which must be taken into account in major new residential or mixed developments. Land use planning policies are therefore included to address a range of housing needs; these include affordable and accessible housing, hostels, and provision for gypsies and travellers. Other policies in the Local Plan provide guidance on urban design, environmental and transportation issues, the provision of community and leisure facilities and developer contributions. In line with both Government policy and the Local Plan Strategy astrong emphasis has been placed on sustainable development objectives; the Plan seeks to meet target of at least 60% of new housing on previously developed land (brownfield sites).  The Local Plan aims are closely linked to the key objectives of the City Council’s Housing Strategy.

Housing Aims

6.2. The Local Plan housing policies have the following aims:

• to provide sufficient housing to meet the requirements of the whole community, including those in need of affordable housing and those with other  special needs;

• to provide a range of dwelling sizes and types to create mixed and socially inclusive communities;

• to maximise the use of the existing housing stock by reducing vacancy levels, promoting conversions and improving unfit dwellings;

• to manage the release of greenfield housing sites, and to give priority to the re-use of previously developed land and buildings for housing;

• to contribute towards a more sustainable pattern of development by ensuring that new housing is accessible by walking, cycling and public transport; and

• to promote good design and layout in new housing developments in order to create high quality living environments.

National and Regional Policy Context

6.3. Development plans are required to take account of the Government’s household projections when making provision for future housing development but the projections are only one input to the process. The Government has indicated that the traditional ‘predict and provide’ approach to future housing provision is no longer appropriate and that a new concept to ‘plan, monitor and manage’ should be adopted by local authorities. Regional Spatial Strategy for the East Midlands (RSS8) provides targets for future housing provision at sub-regional level. The East Midlands Regional Housing Strategy has also beenprepared to identify future priorities for public and private investment in housing.

6.4. Government guidance emphasises the need to provide for as much new housing as possible within existing urban areas. A national and regional planning target has been set to provide for 60% of new housing on previously developed land by 2008. Although housing completions on previously developed land have exceeded 70% in Leicester in recent years, this may be difficult to sustain if greenfield development rates increase at Hamilton and Beaumont Leys during the plan period. A phased release of these urban extensions will ensure that the regeneration of more central previously developed sites is not prejudiced.

6.5. National planning guidance (PPG3) requires local planning authorities to apply a sequential approach to the release of housing land. This means that previously developed land or under-used buildings, including surplus employment land, should be developed for housing before the release of new greenfield sites. Promoting mixed use development, reducing car parking requirements, encouraging higher densities and quality design and providing for a choice of housing, including affordable housing are also Government objectives which are incorporated in this Plan.

Local Policy Context

6.6. Leicester’s population was estimated to be 279,923 in the 2001 Census and is projected to increase to 296,700 by 2016according to the Structure Plan’s policy based projections. However, various factors such as the availability and choice of development sites, house building rates and continuing out-migration from the City will influence the level of growth during the plan period. The amount of new housing that can be allocated to Leicester is determined by the capacity of the urban area to accommodate new housing development.

6.7. Housing represents the predominant land use within the City. At April 2004 there were approximately 118,700 dwellings in the City. The City’s housing tenure pattern is 71% private sector, 20% local authority, 9% housing association and other public sector. There were 9,491 applicants on the City Council’s Housing Register (1st April 2004). A new Housing Needs Survey was undertaken by consultants on behalf of the City Council during 2001/02. The final report (October 2002) provides information on future affordable housing requirements across the City area.This has been updated in 2003.

6.8. In all housing sectors there is a growing problem with stock condition and disrepair although this is more pronounced in the private sector. A third of the housing stock in the City is pre-1919 in age and includes many unfit or substandard properties lacking modern amenities. Although more than half of the pre-1919 stock has been improved through the City Council’s Renewal Strategy, a considerable number still need to be refurbished.

6.9. While improvement schemes have also been implemented through the former City Challenge and Single Regeneration Budget programmes and the Housing Investment Programme, a great deal more remains to be done. To foster continued improvements in the living conditions and quality of the environment, it is important that land use planning policies complement these strategies and programmes and other urban regeneration initiatives, such as New Deal for Braunstone and the Leicester Regeneration Company’s Masterplan.

6.10. Future needs will be met by the reuse of existing housing stock and the development of land and buildings for new housing. The City Council’s Housing Strategy aims to maintain and improve the existing housing stock through its renewal programme in partnership with other agencies. In April 2004 there were about 5,000 empty homes in the City, half of which have been vacant for more than six months. Approximately 4,400 of these properties are in the private sector and efforts are being made to bring them back into use through the City Council’s Empty Homes Strategy. Between April 1997 and March 2004, the City Council’s Empty Homes Strategy has resulted in a total of 752 homes being brought back into residential use.The sub-division of large houses to create self-contained flats might also help to meet housing needs, but there is still a priority need for large family accommodation throughout the City.

HOUSING REQUIREMENTS AND SUPPLY

The Leicestershire, Leicester and Rutland Structure Plan

6.11. Leicester continues to generate a significant level of natural population increase, and consequent need for additional housing. The Leicestershire, Leicester and Rutland Structure Plan (2005) includes a requirement for 19,000 new houses in the City between 1996 and 2016. The ability of the City to accommodate more housing is based on an urban capacity assessment which was undertaken as part of the Structure Plan review process. This assessment has been updated to an April 2004base-date and is summarised in Table 6.1.

Table 6.1: Housing Requirements & Supply: 1996 – 2016

* Additional urban capacity takes account of the LRC Masterplan’s detailed Area Development Frameworks which include proposals for at least 8,000 new homes within the Abbey Meadows, St George’s North and Waterside regeneration areas. It is envisaged that about 4,000 new homes will be delivered within the Local Plan period (see policies PS06 – PS09).

** An allowance has been made for 1,800 dwellings on small windfall sites (150 dwellings per year).

6.12. Table 6.1 shows that the City’s total potential housing supply comprises 69% new housing on  previously developed land (brownfield sites). Rates of housing completions on previously developed land will vary from year to year according to site availability, phasing of greenfield sites and market considerations. Monitoring past housing completions indicates an upward trend in brownfield development in the City.  Since 1996 about 71% of all new dwellings have been provided on previously developed land or through conversions.

Table 6.2: Housing Permissions (large sites) - March 2004

* sites shown on the Proposals Map.

G - greenfield site

B  - brownfield site (previously developed land)

Status :-

p.p. = sites with planning permission

u/c = sites under construction

New Housing Sites Provision

6.13. Table 6.1 indicates that existing commitments (completions and permissions) already account for  10,223dwellings or 54%of the Structure Plan housing requirement. The Local Plan allocations on greenfield land (2,830dwellings), which account for 15%of the total requirement, include two strategic housing sites at Ashton Green and Hamilton (see Policy H01). These allocations have been reconsidered in the light of Government guidance in PPG3.  Although every effort is being made to maximise the use of previously developed land for housing, the City Council’s urban capacity assessment confirms that the continued development of these planned urban extensions will still be required to meet the Structure Plan’s housing requirement for Leicester.

6.14. The new sustainable development frameworks for Ashton Green and Hamilton will ensure that existing and planned physical and social infrastructure will be fully utilised. New housing and highway design standards will seek to achieve higher density developments in these suburban locations. As both these development areas require the provision of major infrastructure, a phased release of land is planned. Phasing will also ensure that, where possible, priority can be given to previously developed land within the urban area. The City Council acknowledges that the full development of Ashton Green will extend beyond the Local Plan period; this is reflected in Policy H02 which indicates that the final phases (2,000 dwellings) at Ashton Green will be developed post 2016. Annual monitoring reports will review future land availability.

6.15. The City Council has adopted a sequential approach to the assessment of potential new housing sites including a reassessment of existing employment sites. Surveys have been undertaken to identify under used land and buildings as part of Leicester’s Regeneration Strategy. The Plan proposes a number of new sites for residential development on previously developed land, vacant land or under used allotments and playing fields (greenfield land). The City Council intends to place an increased emphasis on windfall sites within the urban area. The Strategic Regeneration Area and Potential Development Areas identified on the Proposals Map offer significant redevelopment opportunities and, in many cases, housing will be a priority land use (See Policies PS01, PS06 – PS09).  It is estimated that at least 4,000 dwellingscould be provided on such sites within the Plan period. A further 1,800 dwellings could be provided on small windfall sites (see Table 6.1).

Goto top/Contents/Glossary

6.16. The new housing development proposals above seek to maximise the use of previously developed land and other vacant or under used land in the City.  Site a) is a former timber yard which has been cleared for redevelopment. The first phases have planning permission and development has commenced. Site b) comprises a former cash and carry warehouse where a mixed use redevelopment is proposed. Site c) is the site of the former Filbert Street football stadium which is proposed for residential development. Sites d) to f) comprise the remaining phases of strategic urban extensions at Beaumont Leys and Hamilton which have been under development for many years. Further detailed guidance is provided in adopted supplementary planning guidance.The final phases of development at Ashton Green (2,000 dwellings) are phased beyond the plan period (see Policy H02).

6.17. Site g)is a former allotment site which was decommissioned some years ago and is now vacant. The housing allocation here is dependent on the remaining area being laid out as public open space (see Policy GE20). Although allotments are not included within the current Government definition of previously developed land, the City Council considers that surplus allotment land at sites h) to j) are sustainable locations for residential development. The City Council has carried out a comprehensive review of allotments in consultation with allotment societies and has concluded that development would be appropriate in some circumstances. The allotments review also considered ecological value and open space needs before proposing development. Any such requirements will be included as part of the development proposals. Site k) is a large area of unused playing fields which are surplus to requirements. The future of this site has been considered in the context of the Assessment of Playing Pitches which has been undertaken in partnership with Sport England. Housing development will be subject to the provision of public open space, playing fields and appropriate community facilities on the remaining area (see policy GE16). These proposals provide opportunities to create new well designed and safe public open space in addition to meeting local housing needs.

Phasing of Greenfield Housing Allocations

6.18. The managed release of housing sites is an essential part of the ‘plan, monitor and manage’ approach to the delivery of new housing. A phased release of sites will also ensure that the provision of new infrastructure and ancillary community facilities are co-ordinated with the development of new housing.  Major greenfield allocations are expected to contribute about 2,830new homes during the Plan period, about 15%of the total requirement for 19,000 houses. The phasing of these sites will help to support inner City regeneration initiatives and help to deliver the Local Plan’s 60% target for housing on previously developed land. When a greenfield site is released for development the City Council may wish to limit the annual rate of housing completions to ensure that these objectives are not prejudiced. However, an adequate supply of land to meet identified local needs for affordable housing will also be an important consideration.

Goto top/Contents/Glossary

EFFICIENT USE OF LAND AND BUILDINGS

Windfall Sites 

6.19. In addition to the sites identified in Policy H01, proposals will continue to come forward on windfall sites. These are small and large sites that have not been allocated for residential development in the Local Plan. Monitoring of housing completions since 1991 indicates that an average of 200 dwellings per year have been provided on all windfall sites. The City Council believes an increased rate of windfall site development is justified during the remainder of the plan period given the Government’s increased emphasis on brownfield site development for housing as supported by PPG3 and the financial incentives in the Urban White Paper. The establishment of the Leicester Regeneration Company (LRC) has provided a new impetus to urban regeneration initiatives. The LRC Masterplan includes major redevelopment proposals for new housing in Abbey Meadows, St George’s North and the Waterside close to the City centre. Therefore, the Plan includes an assumption that additional urban capacity on large windfall sites will provide about, 4,000 dwellings (see Table 6.1).

Density

6.20. As land for future development in the City is limited it is essential that this scarce resource is used as efficiently as possible. Higher density developments within the urban area can help to reduce the amount of greenfield land needed to meet future housing requirements. In line with guidance in PPG3, new developments with a net density of less than 30 dwellings per hectare should be avoided.

6.21. In considering the most appropriate and efficient density for a site it will be necessary to consider the site in context to its surroundings. The highest densities should be within or adjacent to the city centre, town and district centres or adjoining major transport interchanges and main movement corridors as this ensures that the greatest number of people live as close as possible to public transport routes, shops and facilities.

6.22. The use of innovative design can enable higher density housing to be achieved without compromising the overall quality of the scheme. In seeking to achieve these higher densities developers must have regard to creating good quality environments including the need for open space and landscaping. This will be fundamental to create attractive, high quality living environments in which people will choose to live. Access to open amenity space that is of high quality is a key attribute that makes people in higher densities more satisfied with their local area.

6.23. PPG 3 states that new housing development should incorporate sufficient open space where such spaces are not already adequately provided within easy access of new housing. The City Council will therefore expect open space provision to be designed into the layout of new housing development. Open space provision in new residential development can be subdivided into 2 categories:- areas that contribute to the visual and environmental quality of the development, which all residential development will be expected to provide on site and recreational amenity areas which are designated for informal recreation such as walking and relaxing.

6.24. The standards for children’s, youth and adult play provision are set out in policies GE12 and GE13. In considering the need to provide recreational open space on site it will be necessary to look at the proposed development in the context of its surroundings. This will include the existing amount of open space in the locality, the quality of that open space and the scale and nature of the proposed housing development. There may be situations when existing recreation space within the catchment area of the housing site could be enhanced to allow for increased use as an alternative to direct new provision on site. For example for higher density developments existing provision could meet needs if quality and accessibility to these areas were improved. However, where there is little or no existing off-site provision then direct on site recreational open space should be incorporated into the design of the development.

6.25. The draft supplementary planning guidance on ‘Open Space Provision in New Residential Developments’ (April 2003) gives further advice on the requirements for amenity open space.

Goto top/Contents/Glossary

The Use of Upper Floors and Conversion of Property

6.26. The City Council wishes to encourage the provision of additional homes in the city, particularly in under-used upper floors which are a valuable resource, especially in older buildings. Potential residential accommodation is often left unused or converted to storage and sometimes the appearance and maintenance of upper storeys is neglected. Development on the ground floor of properties should not hinder the effective use of the floors above. The self-containment of residential accommodation above shops, including a separate means of access will be sought wherever practicable.

Goto top/Contents/Glossary

Loss of Housing

6.27. The City Council considers that more effort should be made to retain as much of the existing housing stock as possible. There is an inherent conflict that on the one hand there is a strong commitment to encourage more residential development, including conversions, in urban areas while on the other hand housing units are being lost through changes to non-residential uses. Planning applications for a change of use from housing to a non-residential use will need to be fully justified. The policy allows for exceptions to be made. For example, a redevelopment scheme can often result in a net loss in the number of residential units but the replacement dwellings will be of a higher standard. In some circumstances, the loss of housing may be justified to provide new employment opportunities or community facilities. In other cases the demolition of an individual house may be necessary to open up a backland development site for residential development.

Goto top/Contents/Glossary

MEETING A RANGE OF HOUSING NEEDS

Housing Mix and Type

6.28. In order to meet the variety of needs in the City, a range of housing must be provided on large sites. In this context a threshold of 1.0 hectare or 25 dwellings is considered appropriate and is also consistent with that used for policyH09. The City Council will therefore expect developers to provide an appropriate mix of dwelling sizes, types and affordability to meet local housing needs. It is important that future housing is adaptable to meet the needs of an ageing population and those who are less mobile. The City Council will therefore negotiate with developers to provide a minimum of 15% of new dwellings to Lifetime Homes Standards, with some of these being built to the Housing Corporation’s fully wheelchair accessible standard.

6.29.While the projected demand in some areas may be from a growth in single person households, there will continue to be a need for large family dwellings throughout the City. To ensure that mixed and balanced communities are created, new housing developments should avoid the creation of large areas of housing of similar characteristics. Through careful design and layout it should be possible to avoid a distinction between different types of housing and tenures. In order to encourage a better social mix affordable housing should be distributed throughout an entire development, although ideally still located within easy walking distance of bus routes, shops and other facilities. The details of proposed housing mix and type will be negotiated and agreed with developers at the detailed planning application stage to take account of site suitability and individual scheme viability. The nature of this distribution in the Strategic Regeneration Area, whether of individual units throughout a scheme, or of floors or blocks within a scheme, will be determined in the light of the physical and housing management circumstances in each case. Further guidance on affordable housing and provision for other particular housing needs is provided by policies H08 to H11.

Goto top/Contents/Glossary

Flat Conversions and New Build Flats

6.30. Monitoring shows a marked increase in factory and office conversions in the City Centre since 1997 and this trend looks likely to continue. There is considerable potential for more conversion schemes within the City and District Centres, as well as redevelopment opportunities in appropriate locations along the riverside. Special attention needs to be given to the compatibility of introducing new housing into areas where existing employment or leisure uses may give rise to noise nuisance for future residents. It is equally important not to place undue restrictions on the operations of adjoining businesses. Some areas of the City centre are being transformed into new residential quarters (e.g. Albion Hill, St. George’s and the Waterside areas). The LRC Masterplan also includes proposals for new housing in the City centre. Further guidance on housing within Potential Development Areas is provided in the Plan Strategy Chapter (see policies PS09, PS09a and PS09b).

Goto top/Contents/Glossary

6.31. While there is a general need to maximise the use of the housing stock and provide more units of accommodation for one and two person households, there is also a priority need for larger family homes. When considering the location referred to in H07(a) regard must be given to Policy H10 which seeks to retain larger residential properties to meet such needs within the Belgrave and Spinney Hill areas. Elsewhere in the City, larger housing may be more appropriate for single family use. In applying H07(c) the size and nature of the accommodation and the character of the surrounding area will be taken into account. In applying H07(g) the combined effect of the loss of single family accommodation, a potential increase in on-street car parking and other aspects of multiple occupation should be taken into account and careful consideration given to the potential effect of further sub-division of property on the amenity and character of the area. The particular character, land uses and facilities of an area will determine the effect that further sub-division of property would have on the amenities of that area.

6.32. The residential accommodation provided through conversion schemes should reach a satisfactory standard both inside and outside the property. The type of property most suited to conversion is generally a large two or three storey house, often already in multiple occupation as shared, non self-contained accommodation. These properties usually have a floorspace in excess of 100 sq. m. Standards for accommodation are set out in the City Council publication “Standards for Self-Contained Flats”. Separate guidance is also provided in respect of “Standards for Houses in Multiple Occupation” and “Standards for Hostels”.

Student Housing

6.33. The University of Leicester and De Montfort University make a significant contribution to the economic prosperity of the City. The Local Plan acknowledges this through the ‘Universities Areas of Influence’ Policies CL06 and CL07. There are currently about 21,300 full-timestudents enrolled at the Universities, of which a substantial proportion resides in the City during term-time. The Universities own several purpose-built halls of residence and self-catering accommodation in the City and at Oadby. Both Universities give priority to their first year students when allocating residential accommodation. The Universities’ managed housing stock provides approximately 5,500 bed spaces. The private rented housing sector also provides a considerable supply of student accommodation in the City. There is a concentration of student housing in those areas close to the two University campuses, notably the West End and Clarendon Park. This can lead to environmental problems for neighbouring residents during term-time due to late night noise disturbance by students and problems associated with high vacancy rates during the summer months.

6.34. In recent years there has been a significant increase in purpose-built student housing which is being provided by housing associations and private developers. These developments are usually in the form of self-contained cluster flats with each flat comprising up to six study bedrooms. At March 2004about  1,300 flats (5,300 bed spaces) had been completed or were under  construction within the City. A further  100 flats (400 bed spaces) had received planning permission or were awaiting a planning decision, making a total of 1,400flats (5,700 bed spaces). Most of this accommodation will meet the immediate needs of the Universities, especially De Montfort University who plan to concentrate new provision close to their main City centre campus. This is a much more accessible location for student housing and the consequent reduction in travel will result in a more sustainable form of development. The University of Leicester proposes to improve and expand its student accommodation at Oadby where 50% of its bed spaces are located.

6.35. Planning conditions will be applied to limit occupancy to students enrolled at the Universities. Standards for accommodation are set out in the City Council publications “Standards for Self-Contained Flats” and “Standards for Houses in Multiple Occupation”. The provision of purpose-built accommodation with proper management arrangements should help to alleviate some of the problems associated with student behaviour. It should also free up many of the existing terraced properties for family housing again. The supply and demand for student housing accommodation will be closely monitored during the Plan period. Current managed provision (i.e. student halls) provides approximately 11,000 bed spaces which meets about half of the accommodation needs of full-time students. The remaining students either live in shared houses or at home.  If there is no longer a demand for student accommodation in the future, it is essential that the design and layout of any new student housing development can be easily adapted to either general residential use or another appropriate use. The provision of adequate amenity open space and car parking facilities will be important considerations. Policy UD05 addresses the adaptability in design and re-use of existing buildings.

Goto top/Contents/Glossary

Affordable Housing

6.36. The Government’s Circular 6/98 and PPG3 state that a community’s need for affordable housing is a material planning consideration which may properly be taken into account in formulating development plan policies and deciding planning applications. Leicester’s 2002 Housing Needs Survey concluded that there is a requirement to provide an additional 635 affordable dwellings per annum if all housing needs are to be met.  The survey suggests that current low-cost market housing cannot meet any affordable housing need whilst shared ownership might be able to help some of the households in need - for the remainder, only social rented housing will be of any use.  In terms of house size, the survey demonstrates that the greatest need is for affordable dwellings for rent with four or more bedrooms and two-bedroom affordable rented homes. An update of the survey was undertaken during 2003 which indicates an annual need for 546 affordable homes.

6.37. Affordable housing will consist of:

a)    Social housing provided by a Registered Social Landlord or local authority – allocating accommodation on the basis of need. While such dwellings will normally be made available for rent, they may also include subsidised low-cost home ownership, where a RSL or local authority retains a continuing interest.

b)    Low-cost market housing (usually, though not exclusively, through a private house builder), providing that:

i)       such housing requires weekly outgoings at levels appreciably below the minimum cost of local market housing, and, linked to earnings in the City area: (levels/details to be determined by updated Housing Needs survey data currently available), and

ii)       such housing should be available, both initially and for subsequent occupancy, only to those with a demonstrable housing need or restriction in their ability to acquire property at open market values.

6.38. In terms of affordability, Leicester’s Housing Needs Survey implies that for rent to be affordable it should not take up more than 30% of a household’s net income and for a mortgage to be affordable, a household’s gross income should be more than one third of its mortgage requirement.

Goto top/Contents/Glossary

6.39. Based on identified local housing needs, the City Council considers that at least 30% of new housing provision in the Plan area should comprise affordable homes.  Therefore, the Council expects at least 30% affordable housing on sites with a minimum size threshold of 1.0 hectare or 25 dwellings. Applicants cannot expect the City Council to depart from this policy unless they can demonstrate that the particular physical and environmental constraints of a site, or other plan requirements, would make the provision of affordable housing unviable. The mix of tenure and property type of the affordable housing requirement will be informed by the 2003 update of the Housing Needs Survey. It is envisaged that a future supplementary planning document on Affordable Housing will keep the requirement timely and appropriate, based on updates to the Needs Survey. The current required tenure mix of the affordable housing element is 91%rent and 9%shared-ownership, and there is a longstanding need for large family homes (i.e. those with at least 4 bedrooms). The 2003 Housing Needs Survey update indicates that 61% of the affordable housing requirement is for large family homes.

6.40. In October 2003 the City Council approved Guidelines for housing developers on the provision of affordable housing in the Leicester Regeneration Company Area. Within the Strategic Regeneration Area these Guidelines set an overall target of 30% of new homes to be affordable as defined in the Local Plan. The Guidelines outline the proposed partnership arrangements with RSLs regarding the delivery of affordable housing. They also refer to the Council’s support towards future bids to the HousingCorporation for funding half of any affordable housing requirement. Developers should therefore provide for the first 15% of the affordable housing requirement. Further detailed planning guidance on the location and distribution of proposed housing will be prepared.

6.41. The total Structure Plan housing requirement for Leicester for the period 1996 to 2016 is 19,000 dwellings.  Applying the 30% target figure would therefore require about 5,700 affordable homes during the Plan period. About 54% (10,223) of the 19,000 target has already been committed (completions and permissions).  Analysis of these existing commitments indicates that only about 14% of the dwellings built orapproved at March 2004 are affordable housing units.  Analysis of the housing allocations and additional urban capacity during the remaining Local Plan period suggests that at best only about 20% of the dwellings to be provided might be affordable homes. Further details are provided in Table 6.3 below. 

Table 6.3:  Affordable Housing Requirements & Supply: 1996 – 2016

6.42. Overall provision of affordable homes during the remaining Plan period couldprovide approximately 2,240affordable homes or 200per annum for the next 12 years. This falls drastically short of the annual requirement for an additional 546 affordable homes demonstrated by the 2003 update of the Housing Needs Survey.  It is therefore imperative that each residential development proposal, which meets the site size threshold in policy H09, optimises its contribution towards the increasing shortfall in the City’s affordable housing supply.  The presumption will be that each development is able to meet the 30% target. Indicative affordable housing targets for allocated housing sites are set out in Table 6.4.  Any future proposals for residential or mixed development on windfall sites that meet the site size threshold will be assessed against this policy.

6.43. The Council’s policy is to make applicants aware of the affordable housing policy requirements at the earliest possible stage. At an outline planning application stage at least 30% affordable housing will be sought. The number and type of affordable housing units sought within any particular development will be negotiated at or immediately prior to the full or reserved matters planning application stage in order to agree a suitable housing mix in line with the needs of the City. Such detail will include the number, house type, mix, required Lifetime Homes/wheelchair standards, other minimum build standards (e.g. Housing Corporation’s Scheme Development Standards), location, delivery/phasing of supply, etc.  The affordable housing sought will reflect the Council’s assessment of how each site can best contribute to meeting Leicester’s affordable housing need through its analysis of the Housing Needs Survey, the Council’s Adapted Housing Database, the Council’s Accommodation Guides and the nature/characteristics of the site and its locality. 

6.44. All affordable housing provision should remain as affordable housing in perpetuity.  The City Council will seek to secure the provision through planning conditions and/or Section 106 Agreements.The City Council will be pleased to advise on suitable RSL partner(s) and expect to jointly select RSL partner(s) with the developer/land-owner. There will continue to be a presumption against supporting any bids by RSLs for Affordable Housing Grant on sites where affordable housing is a planning requirement, unless the Local Authority has approved the targeting of public subsidy to certain sites to achieve strategic housing priorities. In terms of appearance, design and quality the affordable housing dwellings should be indistinguishable from the market sale dwellings/non-‘affordable housing’.  In order to encourage a better social mix, the affordable element should be distributed throughout the entire development, ideally still located within easy walking-distance of proposed bus-routes, shops and other facilities. The details of proposed housing mix and type will be negotiated and agreed with developers at the detailed planning application stage to take account of site suitability and individual scheme viability. The nature of this distribution in the Strategic Regeneration Area, whether of individual units throughout a scheme, or of floors or blocks within a scheme, will be determined in the light of the physical and housing management circumstances in each case.

Table 6.4: Affordable Housing Targets for Residential Developments (allocations and outline permissions at March 2004)

*    Ashton Green development is phased beyond Plan period (see policy H02)

** Affordable housing already agreed via planning conditions/S106 agreements.

Note: These affordable housing targets exclude provision already agreed on sites with detailed planning permission and any potentialcontribution from future windfall sites. Table 6.1 indicates that at least 4,000 dwellings are to be provided through additional urban capacity and an element of affordable housing will be negotiated on appropriate sites in accordance with policy H09.

6.45. Where the local planning authority considers that certain sites are suitable for inclusion of an element of affordable housing and an applicant does not make such provision as part of the proposed development, such a failure could justify the refusal of planning permission.

Large Family Housing

6.46. The relatively small number of large houses within Belgrave and Spinney Hill should be retained for single or extended family use. Larger houses are generally regarded as those having four or more bedrooms. The Housing Needs Survey (2002) carried out by the City Council indicates that there is a substantial demand for houses of four or more bedrooms in the Plan area. The survey states that the total shortfall of housing across all tenures for the period 2002-2007 (a total of 9,334 dwellings), 45% should have four or more bedrooms. Planning applications to convert larger houses into flats outside the Belgrave and Spinney Hill areas will be assessed against policy H07, in particular criterion c) which deals with the loss of family accommodation.

Goto top/Contents/Glossary

Gypsies and Travellers

6.47. There is inadequate provision for Gypsies and Travellers in Leicester and the City Council has been involved in a long search for suitable sites in addition to the existing site at Meynells Gorse. There are 20 families on the Meynells Gorse site with 57 families on the waiting list. The Government introduced financial help in the form of 100% Gipsy Site Refurbishment Grant. These funds were limited to schemes built in 2003 and for local authorities to provide Temporary Stopping Places and Transit Sites for Gypsies and Travellers but not for the creation of permanent residential caravan sites. Whilst discretionary powers still exist for the development of public sites, Circular 1/94 requires the planning process to encourage and enable Gypsies and Travellers to provide their own sites. However, Circular 18/94 advocates the toleration of unlawful encampments in certain circumstances, following assessments of welfare needs. During 2005 the Government reviewed Circular 1/94 and issued a draft Circular for consultation; final guidance is anticipated in early 2006. Under the Housing Act 2004 local authorities will be required to undertake a Housing Needs Assessment to assess the need for Gypsy and Traveller accommodation. All the local authorities have agreed to commission consultants to carry out a Needs Assessment on a joint basis for Leicester, Leicestershire and Rutland during 2006.

Goto top/Contents/Glossary

6.48. In September 1998 the City Council agreed a Code of Tolerance for the use of temporary stopping places. It also agreed, in principle, to provide a small number of temporary stopping places on Council owned land to accommodate no more than ten caravans. This follows Government advice that the mixing of transit and permanent accommodation and the provision of larger sites can lead to management difficulties. Within the City boundary all potential sites are deemed to have adequate access to schools, shops and other local community uses.

Goto top/Contents/Glossary

PROTECTION AND ENHANCEMENT OF EXISTING RESIDENTIAL AREAS

6.49. There are a number of potential building plots, usually private garden land, within established housing areas which could be suitable for residential development. This source of housing supply can make a useful contribution to housing needs in the City. Monitoring past trends indicates that an average of 50 dwellings per year are provided through infill development. The criteria above are necessary to ensure that development does not take place in unsuitable locations or is not detrimental to existing residential amenity. Any development proposals within conservation areas will need careful consideration (policy BE06). Further guidance on design issues is provided in the Urban Design Chapter. For residential amenity issues see policy PS10.

Goto top/Contents/Glossary

6.50. The existing housing areas throughout the City include many non-residential uses, often ancillary services to meet local needs. Such facilities will include local shops, pubs, schools and community centres which are usually within easy walking distance of local residents. There may also be established ‘non-conforming’ employment uses which nevertheless provide local job opportunities. This policy will ensure that careful consideration is given to non-residential proposals within Primarily Residential Areas. Guidance on residential amenity is provided by policy PS10.

Goto top/Contents/Glossary

6.51. Backland development is typically residential development in rear gardens of existing houses, although in some instances it may involve under used or other vacant land within an established residential area. Pressure for this type of development is usually found in areas of the City where original housing layouts were spacious and long back gardens predominated. Such sites can make a valuable contribution to housing land supply and also meet special needs e.g. sheltered housing for the elderly close to existing shops and services. These detailed guidelines are necessary to ensure that new development proposals are of a high quality design and do not detract from the character of the existing residential area. Further relevant guidance on design is included in the Urban Design Chapter.

Goto top/Contents/Glossary

6.52. The City Council understands the aspiration of householders to enlarge and improve their homes, particularly to meet the need for additional accommodation. However, unsuitable extensions can have an adverse impact on the amenity of neighbours and reduce the attractiveness of neighbourhoods as places to live. It will seek, therefore, to balance the needs of the individual households against the protection of amenity and the character of residential areas. Detailed criteria are contained in supplementary planning guidance “A Design Guide for House Extensions”.

Hotels, Hostels and Residential Institutions

6.53. There continues to be a need for hostels, care homes and nursing homes throughout the City. Homelessness is still a problem and the elderly population likely to need residential care will continue to rise. Similarly more people are being discharged from large institutions requiring instead housing accommodation within the community. Within the powers available to it, the City Council aims to facilitate the provision of a range of accommodation to meet the special housing needs of all City residents.

6.54. Problems can arise when hostels or care homes become concentrated in any one area of the City. Local concentrations of hotels or guest houses can also detract from the amenity of neighbouring residential properties. Of particular concern here is the potential for traffic and noise disturbance of the larger scale establishments offering entertainment and restaurant or bar facilities to non-residents. The City Council has operated restrictive planning policies in three areas of the City (Highfields South, Holy Trinity and West End) of the City for many years. It is considered that in these areas additional hostels, residential institutions or hotels would seriously affect the residential character and prejudice improvements undertaken by the City Council under the Housing Acts.

6.55. The following policies will be applied to applications for planning permission for hotels, guest or boarding houses, hostels and residential institutions. They attempt to restrict localised concentrations, maintain the residential character of an area and protect the amenity of neighbours, whilst providing a suitable living environment, in particular for longer term residents and most importantly promoting their integration into the local community where appropriate.

Goto top/Contents/Glossary

Goto top/Contents/Glossary

6.56. The level of provision which would constitute a local concentration may depend on the particular characteristics of the area. The presence of other institutions such as schools and day nurseries or Houses in Multiple Occupation may also detract from the residential character of single family dwellings. As a rough guide more than one hotel, hostel or residential institution per street or 50 houseswhichever is the smaller would in the opinion of the City Council be classed as a concentration and need very careful justification in terms of the special locational needs of residents or the character of the properties involved. This is to ensure that there will be no detrimental effect on the neighbourhood.

6.57. Buildings suitable for hostels, hotels and residential institutions should ideally be detached. Where this is not possible internal arrangements and construction should minimise potential noise disturbance. In appropriate cases conditions will be imposed on planning permissions to ensure that noise attenuation measures are provided.

6.58. The provision of adequate garden/amenity space is of particular importance in the case of hostels and residential care homes which are the permanent home of its residents. The amount of garden space provided should be related to the needs of the residents, the proximity and accessibility of parks and other public open spaces. It may be that a high quality environment within the garden can compensate for the fact that it is small in size. Consideration should also be given to the question of maintenance.

6.59. A proposal should comply with the Council’s car parking standards. Requirements should also be seen in the light of the existing use of the building and the availability of car parking facilities in the surrounding area. It is important to note that hotels, guesthouses and boarding houses will require more car parking spaces than hostels. Similarly care homes require different numbers of spaces than hospitals or residential schools. In addition, servicing and manoeuvring space requirements will vary between these differing uses. Adequate provision will minimise any detrimental impact upon the local environment in terms of traffic and highway safety.

6.60. Hostels and residential institutions should be located close to essential facilities appropriate to the needs of the residents. The types of facilities to be considered are health services, day centres, shops, bus routes, community services, and libraries. The needs of less mobile people in residential care require special consideration.

6.61. Smaller care homes and hostels (with up to 20 bed spaces) pose fewer management problems and may be integrated more readily into the local community, an aim of ‘Care in the Community’ initiatives. Hostels and care homes should therefore, wherever possible be small in size. It is accepted, however, that nursing homes, hospitals, residential schools and hotels may well need to offer more bed spaces to be viable. The scale of the proposal will be taken into account in determining its impact on neighbouring properties.

Goto top/Contents/Glossary