Havant Borough Council Strategic Housing Land Availability Assessment 3 rd Edition

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3 Havant Borough Council Strategic Housing Land Availability Assessment (SHLAA) Full Review December 2009 Part One This section of the SHLAA includes the following: Executive Summary Introduction Borough Characteristics Housing Requirement to 2026 Housing Market Methodology - Site Yield - Outstanding Supply - Unidentified Supply Results from Consultation on the Methodology Monitoring Arrangements and Risk Assessment The list of SHLAA sites, maps of SHLAA sites, housing trajectory and annual updates to the SHLAA are provided in Part Two. This document is available in other formats on request. The council also uses Language Line for other languages. For further details contact

4 Contents Page No. Part One Executive Summary 5 1. Introduction 6 2. Borough Characteristics 8 3. Housing Background (Requirement, Stock, Need, Demand and Market) 9 4. Methodology Results from Consultation on the Methodology Housing Implementation Strategy 36 Part Two List of deliverable housing sites with planning permission at 01/04/ List of deliverable housing sites identified in the SHLAA (2009/ /15) List of developable housing sites identified in the SHLAA (2015/ ) Housing Trajectory (graph) Housing Trajectory (table) Deliverable / Developable List Details on Urban Area Sites (site proformas) 56 Emsworth Havant Hayling Island Leigh Park Waterlooville Details on Potential Urban Extension Sites (site proformas) Maps of SHLAA sites 13. Review of the Assessment 166 Appendices Appendix A Abbreviations 168 Appendix B Sites Considered Unsuitable (list and maps) Appendix C Annual Update 2010 (2009/10 year) Appendix D Annual Update 2011 (2010/11 year) Appendix E Annual Update 2012 (2011/12 year) The updates will be available at each calendar year end. 4

5 Executive Summary The Strategic Housing Land Availability Assessment (SHLAA) forms an important part of the evidence base which will underpin the Havant Borough Local Development Framework (HBLDF). It provides an assessment of land within the borough with potential for housing development by identifying sites, assessing their housing potential and considering when they are likely to be developed. The assessment identifies sites with housing potential, including previously developed and greenfield sites, and includes a review of the sites in terms of their suitability, availability, achievability and developability for housing development. It does not determine whether a site should be allocated for housing development, this is the role of the Development Delivery (Allocations) Development Plan Document (DPD) and in some cases the Core Strategy. The SHLAA provides an estimate of how much land is available within the borough to meet the borough s housing requirement until The SHLAA does not determine whether a site should be allocated for housing development, this is the role of the Development Delivery (Allocations) DPD The sources that make up the borough s land availability assessment are: Site specific opportunities: 1. Specific sites within the existing built up area which could yield five or more dwellings. 2. Specific sites outside of the existing urban area (urban extensions). Commitments sites which have extant planning permission Other planned development trend based assessment of sources of housing supply from small sites which would yield less than fivr dwellings. This source of supply is only included beyond the forthcoming ten years of supply. 5

6 1.0 Introduction 1.1 The Havant Borough Local Development Framework (HBLDF) will include a number of documents. The two key development plan documents will be the Core Strategy and the Development Delivery (Allocations) DPD. Eventually the HBLDF will replace the Saved Policies of the Havant Borough District-Wide Local Plan (HBDWLP). 1.2 One of the key issues to be covered by the HBLDF will be the delivery of housing, and the Strategic Housing Land Availability Assessment (SHLAA) will form part of the evidence base which will be used to plan the housing for the borough. 1.3 Planning Policy Statement 3 Housing (PPS3) requires planning authorities to ensure that the planning system delivers a flexible, responsive supply of land and to: Identify specific deliverable sites for the first five years of the plan that are ready for development Identify specific, developable sites for years 6-10 and ideally years to enable the five year supply to be topped up. 1.4 The SHLAA therefore contains an assessment of land within the borough which is considered to have potential for housing development. It will also include information about key constraints identified for each of the sites, how these constraints could be overcome, an overall risk assessment of whether the sites will come forward as anticipated and whether sufficient sites have been identified to meet the borough s housing requirements. 1.5 The SHLAA does not itself determine whether a site should be allocated for housing development. This will be the role of the Development Delivery (Allocations) DPD and in some instances the Core Strategy. 1.6 The SHLAA requires an assessment of sites in terms of whether they are deliverable or developable. A definition of these terms is given below: - Deliverable a site is available now, offers a suitable location for housing development, and there is a reasonable prospect that housing will be delivered on the site within five years from the date of adoption of the plan. Developable a site should be in a suitable location for housing development, and there should be a reasonable prospect that it will be available for and could be developed at a specific point in time. 1.7 Decisions on the deliverability/developability of a site are based on the suitability, availability and achievability of sites, which are defined below: Suitability A site is suitable for housing development if it offers a suitable location for development and would contribute to sustainable, mixed communities. Availability A site is considered available for development, when on the best information available, there is confidence that there are no legal or ownership problems such as multiple ownerships or ransom strips, tenancies or operational requirements of landowners. This means it is controlled by a housing developer who has expressed an intention to develop, or the landowner has expressed an intention to sell. Achievability - A site is considered achievable for development where there is reasonable prospect that housing will be developed on site at a particular point in time. This is a judgement about the economic viability of the site and the capacity of the developer to complete and sell the housing over a certain time period. 6

7 1.8 The SHLAA Practice Guidance advocates a partnership approach to undertaking these assessments, ideally through a housing market partnership. Housing Market information has been produced sub-regionally as part of the Partnership for Urban South Hampshire. When Havant Borough Council originally formulated the SHLAA in 2007 the differing progress to other local authorities nearby meant that no housing market partnership existed. The methodology was therefore designed to accord with the practice guidance available at the time and it has since proven possible to aggregate this at the housing market level. 1.9 In the original preparation of Havant Borough Council s SHLAA key stakeholders were consulted on the proposed methodology. A list of the broad stakeholder groups, their comments and the council s response is given in pages 26 to To provide an effective evidence base the SHLAA needs to be updated regularly to take account of changing circumstances and also actual delivery. The five year supply and housing trajectory information on pages 44 to 50 (2009 data) will be updated annually through the Annual Monitoring Report and additional appendices to accompany this SHLAA. 7

8 2.0 Borough Characteristics 2.1 The borough is suburban in character with the majority of development having taken place in the post-war period. The borough contains five main areas; Havant, Leigh Park, Emsworth, Waterlooville and Hayling Island, each with its own identity. The borough benefits from good communication links with the A27 running in an East/West orientation providing links to Chichester to the east and Portsmouth to the west. The A3(M) runs South/North through the area, providing links to Petersfield, Guildford and London. Havant train station is situated on a main line providing access to London and the south coast. 2.2 Further detail on the borough and its characteristics is available in the Havant Borough Core Strategy. 8

9 3.0 Housing Background Housing Requirement until The borough of Havant forms part of the South Hampshire sub-region which is identified as a growth area in the South East Plan. As part of this, it forms one of the eleven local authorities which make up the Partnership for Urban South Hampshire (PUSH). The subregional strategy proposes 80,000 homes across South Hampshire until 2026 which is linked to a projection in economic growth. 6,300 houses are required to be provided in the borough until 2026 as part of the South East Plan requirements. Although some of the requirements will have been met through completions since 2006, additional land will still be needed to meet the South East Plan housing requirement for the borough. A summary of the housing requirement for the borough and how this equates in annual terms is provided below. Housing requirement ,300 Annualised requirement 315 p/a Borough s Housing Market 3.2 Analysis of the housing market in the borough provides evidence of the level of potential market demand and the economic viability of sites included within the assessment. Two studies have provided information on existing housing provision and future demand; a Housing Market Assessment carried out by consultants DTZ (with regular updates) and an analysis of the council s housing register. 3.3 The Strategic Housing Market Assessment for the borough was produced jointly as part of the Partnership for Urban South Hampshire (PUSH). The South Hampshire Housing Market Assessment was originally published in April 2005 and this was supplemented in October Subsequent monitoring and review has been undertaken to keep this information upto-date, particularly in a changing economic climate. 3.4 The borough is closely linked to Portsmouth both physically and because Leigh Park was built almost entirely by Portsmouth City Council to meet the city s needs for affordable housing in the post-war period. Portsmouth City Council continues to be a large housing provider and a significant landowner in the borough. The borough can be clearly identified as part of a much larger housing market based on Portsmouth and Southampton and stretching along the coast from Chichester in the east to the New Forest in the west. This area is known as the South Hampshire sub-region. Existing Housing Stock 3.5 The borough s housing stock is predominantly modern with 80% of homes built post-war. Three quarters of homes in the borough are owner-occupied (Figure 1), broadly matching the national picture. With 7% of the stock, the private rented sector is smaller than elsewhere. At nearly a fifth of the housing stock, the social housing sector is slightly larger than most other Hampshire Districts 1. Portsmouth City Council is the borough s largest landlord with approximately 5,289 homes. Havant Borough Council transferred its housing stock to Hermitage Housing Association in Hermitage Housing Association (now Guinness Hermitage) owns approximately 4,800 homes in the borough. 1 Office for National Statistics (ONS) Census

10 Portsmouth City Council 11% Registered Social Landlords 8% Private Rented 7% Owner Occupied 74% Figure 1: Havant Borough s Existing Housing Stock by Tenure (Source: ONS, Census 2001 in Havant Borough Council (2005) Building Communities: Meeting Needs Housing Strategy ). 3.6 The majority of private dwellings are small with a relatively small proportion of large dwellings. There is an equal balance of 1,2 and 3 bedroom local authority social rented dwellings and Registered Social Landlord (RSL) dwellings are relatively large 2. Existing Household Composition 3.7 The highest proportion of households in the borough are couples with dependent children (21%). Couple households with no children also make up a large proportion of the household composition (19%), together with pensioner couples (12%) and single person households (pensioner = 15%, other = 11%). The range of household composition in the borough is similar to the household composition across the whole of South Hampshire There has been a significant increase in the number of two bedroom dwellings and a decline in the number of larger properties being built in the sub-region. The continued supply of smaller dwellings will not meet the overall demand in the sub-region. The assessment concludes that the demand for larger housing needs to be considered. It also looks to new housing in areas of disadvantage to improve the physical environment and change the social balance of the neighbourhood which is particularly pertinent to the borough given the problems of deprivation in certain wards. Housing Need 3.9 The council s housing services as at December 2009 report that there were approximately 2,800 customers registered requesting social rented housing. The majority of customers apply for social housing because they are unable to obtain market housing and wish to live in accommodation where costs are lower and rents more affordable. During 2009 the council has undertaken a complete re-registration of all customers on the housing register. As a result the number of customers completing new applications has fallen from a total of 4,200 in March 2008 to 2,800 in December However, approximately 100 customers are making new applications each month. By March 2010 more than 3,000 customers are expected to be registered with numbers continuing to rise during the year. 2 Partnership for Urban South Hampshire (2006). South Hampshire Housing Market Assessment Part II. 3 Partnership for Urban South Hampshire (2006). South Hampshire Housing Market Assessment Part II. 10

11 3.10 Demand for social housing is strong for all bedroom sizes and areas of the borough. Since April 2009 the council s housing register has been incorporated into a sub-regional scheme managed jointly with East Hampshire and Winchester Councils. Hampshire Home Choice is a choice based lettings scheme which allows customers to express preferences for homes which are available in all three council areas. Table1 below shows the total numbers of customers from the borough registered by bedroom size. Table 2 shows customers from across the sub-region who have expressed a preference for areas in Havant. One bed Two bed Three bed Total Table 1 Housing Register by bedroom size Area preference 1 Bed 2 Bed 3 Bed total Emsworth Havant Hayling Island Leigh Park Waterlooville Total of Area Table 2 By Area in Havant Borough 3.11 The Housing Market Assessment 4 states that there may be a proportion of people on the housing register who could afford shared ownership housing, reflecting an additional demand for intermediate housing. For the borough, there are between 26% and 54% of all working households which could create a demand for intermediate housing 5. Future Housing Demand 3.12 The Housing Market Assessment 6 produced forecasts for housing growth over the next 20 years. Figure 2, shows the projected change in household types over the 20 year period. For the borough, it shows that the greatest increase will be for one person households (+5,006 between 2006 and 2026) demanding 1, 2 and 3 bedroom units. There will also be an increase in co-habiting couples and other household types (+874 and +1,837 respectively). There will be a fall in the number of married coupled households (-1,643) and a small decrease in the number of lone parents (-5). This pattern broadly corresponds with the forecast for the whole of South Hampshire. It is important to note that this is only an illustrative exercise, designed to show the sizes of dwellings likely to be required in the future, based on the sizes of dwellings different households currently occupy and assuming projections for the growth in different household types are borne out. 4 Partnership for Urban South Hampshire (2006). South Hampshire Housing Market Assessment Part II. 5 Partnership for Urban South Hampshire (2006). South Hampshire Housing Market Assessment Part II. 6 Partnership for Urban South Hampshire (2006). South Hampshire Housing Market Assessment Part II. 11

12 Number of households Other Cohabiting Couple One Person Lone Parent Married Couple Number of bedrooms Figure 2: Estimated dwelling requirement for Havant Borough - change between (Source: PUSH Housing Market Assessment Part II) 3.13 Higher economic growth which is fundamental to the PUSH growth strategy is likely to initially lead to in-migration of skilled workers prior to the up-skilling of the local population. These people are likely to form single/other households as these household types are generally more mobile. A significant proportion of the one person households will also be elderly There is not a direct relationship between household size and dwelling size. For example, larger properties are often occupied by single or couple households. The assessment explains that although the expected growth is for single person households, the demand is likely to continue for larger properties The Strategic Housing Market Assessment 7 concludes that the borough s new households would require mainly 2 and 3 bedroom dwellings driven by the relatively high proportion of new single person household forecasts. However, the study states that evidence of household movements confirm that households are prepared to move across the South Hampshire area to access housing and that the housing requirements of individual districts could be provided throughout the sub-region, unless there is any specific evidence to suggest provision of a particular size or type of dwelling in an area. A high proportion of smaller units are being developed in Portsmouth which could meet some of the housing market need for that type of unit. Local Housing Market 3.16 In 2007 local estate agents were also contacted to find out if there is a variation in demand for certain types of property in the borough. The agents contacted confirmed that there was a demand for all types of property across the borough with two exceptions; these being Emsworth and Hayling Island. In Emsworth there is a disproportionate demand for 4 and 5 7 Partnership for Urban South Hampshire (2006). South Hampshire Housing Market Assessment Part II. 12

13 bed houses in the price range 400, ,000. On Hayling Island there is a greater demand for smaller 2 bed properties with many perspective purchasers seeking bungalows up to 250,000. Most agents, both on the mainland and Hayling Island, commented that hardly any new bungalow development was being provided. An agent covering the Havant area provided a detailed breakdown of the property requirements of prospective purchasers. This revealed that the highest demand was for 3 bed and 4 bed properties (67%). The remaining requirement was made up of 1 bed (5%), 2 bed (17%) and 5 bed+ (11%). House Prices 3.17 House prices in the borough had increased dramatically in the five years preceding 2007, which reflected the overall trend across the sub-region. The borough s housing market is cheaper than the surrounding areas of East Hampshire, Chichester, or the M27 corridor towards Southampton and tends to attract commuters accordingly. At the same time, the borough also attracts more affluent households from Portsmouth who want to trade up to larger semi-detached or detached homes in a more suburban environment. Traditionally the large number of former council homes available for re-sale in the borough has provided a more accessible route into home ownership than in other areas. This had become much less marked as rising values of ex-council houses matched and in some cases out stripped the average rate of increase. Typical values of ex-council houses in 2007 were still lower than the borough average with the price of a three bedroom mid-terrace ex-council house typically at 135,000 (2007), well beyond the means of many first time buyers. Emsworth and parts of Hayling Island are characterised by professionals and better off pensioners. Other parts of the borough, including Battins, Bedhampton, Bondfields, Warren Park and parts of Hayling Island are characterised by lower mobility inhabitants with locally based, lower skilled jobs. Middle income areas characterised by young professionals and families, include, Waterlooville, Bedhampton, Stakes, Purbrook and Hart Plain. Table 3 shows the house price information for the borough available in This shows that there was an overall increase in property prices of 18% between 2005 and Havant Borough Prices 2005 ( ) Havant Borough Prices 2007 ( ) Percentage Change (%) Detached 276, , Semi-detached 175, , Terrace 142, , Flat/Maisonette 107, , Overall 184, , Table 3: House Prices in Havant Borough (Source: Land Registry) 3.18 Since 2007 when this document was originally published there has been a significant slowdown in the housing market as part of the overall 2008/09 recession. It is difficult to establish what normal market circumstances are but it is expected that the housing market will again pick up to reflect national and sub-regional trends. Market information is updated through updates to the Strategic Housing Market Assessment for the borough. Summary of Housing Market The borough s housing market needs to be considered in the context of the South Hampshire sub-region. The largest proportion of existing housing stock is owner/occupied and smaller dwellings (1,2 and 3 bedrooms) with a smaller proportion from the private rented sector. Portsmouth City Council is a major land owner in the borough. 13

14 Local agents confirmed a disproportionate demand for 4 and 5 bedroom properties in Emsworth and Hayling Island and a demand for bungalows throughout the borough. By March 2010 more than 3,000 customers are expected to be registered for social housing. The average house price in the borough in 2007 was 216,940 which is an 18% increase since Although there has since been a slow down in the housing market the drop in values has not been as significant as may have been expected during a recession. Over the next 20 years, it is expected that the greatest increase will be in one person households demanding 2 and 3 bedroom dwellings. There will also be an increase in the number of cohabiting couples demanding 2, 3 and 4 bedroom houses. There will be a fall in the number of married couple households. A large proportion of the single households will be elderly. 14

15 4.0 Methodology Sites and Areas Surveyed 4.1 Due to the urban character of the borough, the past delivery rate of small sites and the difficulty in identifying small sites, it was not considered realistic to identify specific land for housing which would yield fewer than five dwellings. The assessment therefore identified specific sites which would yield five or more dwellings. Specific sites with planning permission were included within the first five year period as these are already considered to be part of the housing supply. An allowance was made for sites which would yield less than five dwellings after this but beyond the initial ten year period. The justification for this is explained in on page The borough is largely urban in character and is subject to environmental constraints which limit the amount of land which is available for housing development 4.3 There is approximately 56km of coastal frontage and 32km of main river, giving rise to approximately 22% of the borough s land area designated within flood zones 2 and 3. The council s Strategic Flood Risk Assessment 8 (SFRA) shows that the primary source of flood risk to the borough is from the sea. The key parts of the borough which are currently at risk of flooding from extreme tides include Brockhampton, Langstone, Emsworth, Eaststoke, Selsmore and Mengham. The secondary source of flood risk to the borough is from fluvial sources including the Lavant Stream, the Hermitage Stream and associated tributaries Planning Policy Statement 25: Development and Flood Risk (PPS25) 10 sets out the government s objectives for achieving sustainable development through the avoidance and management of flood risk. To achieve this aim, PPS25 provides a decision making tool to ensure that the sites with a low probability of flooding are developed in preference to areas at higher risk. Sites within flood zones 2 and 3 can only be considered if they pass the sequential and exception tests in PPS25. To accord with this approach, the assessment has focused on finding available land within flood zone 1. Sites within the urban areas which were considered to be key to the regeneration of parts of the borough were considered under exceptional circumstances and in recognition of the fact that they would need to pass the sequential and exception test, as set out in PPS25, if they were to be allocated for development through the HBLDF. 4.5 There are also a number of nature designations in the borough with the coastal areas of Langstone and Chichester harbours internationally recognised for their natural beauty and wildlife value. Figure 3 shows the areas of the borough subject to nature designations which are ascribed a nil return for housing. The remaining parts of the borough have been surveyed for housing potential. 8 Partnership for Urban South Hampshire (2007). Strategic Flood Risk Assessment 9 Partnership for Urban South Hampshire (2007). Strategic Flood Risk Assessment 10 CLG (2006). Planning Policy Statement 25 Development and Flood Risk 15

16 Figure 3: Map of the nature designations within the borough (2007) 4.6 Constraints affecting the borough are continually updated. The above diagram provided the position at 2007 when the SHLAA was originally formulated. The Proposals Map, which will form part of the HBLDF and likely to be available during 2010, will provide the most up-todate reference for constraints. 16

17 Development Opportunities and Sources of Information 4.7 In accordance with the SHLAA Practice Guidance (Communities and Local Government 2007), the following sources of sites with housing potential were identified in the assessment. Existing housing allocations 4.8 A total of 31 baseline sites were identified for housing in the adopted Local Plan 11 of which 15 had been fully developed by 1 April All the outstanding allocations in the Local Plan which are likely to yield fiveor more dwellings have been re-examined as part of this assessment in terms of their developability/deliverability. The existing allocations of less than five dwellings (Conigar Road, Emsworth; Palk Road/West Street, Havant and St Mary s Road, Hayling Island) have not been included as part of this assessment on the basis that these would already be accounted for in the allowance for small sites. Three reserve housing sites were allocated in the adopted Local Plan. These were also re-assessed as part of the SHLAA. The potential yield from the adopted Local Plan housing sites have been reassessed in light of changing government guidance on densities. Review of non-housing allocations 4.9 Local planning authorities should consider land allocated for employment or other land uses for housing. The council s 2008 Employment Land Review (ELR) 12 assesses the viability of existing employment sites and allocations. Table 4 shows a list of sites identified by the ELR to be inappropriate or unlikely to come forward for employment development over the plan period. The Stones Trust Allotments and Eastern Road sites are currently occupied and are therefore not considered in the SHLAA due to their unavailability. The last three sites in the table have been considered for housing development in the assessment. Location Area (ha) Stones Trust Allotments, New Lane, Havant 1.72 Eastern Road, Havant 0.32 Palk Road, Bedhampton 1.24 Nr Maples Way, Bedhampton 1.08 Land at Station Road East, Hayling Island 1.03 Table 4: Sites identified by the 2007 Employment Land Review to be inappropriate or unreliable for employment development over the plan period 4.10 The council s Open Spaces Audit 13 identifies spaces which the council should protect through the planning system and spaces which should be a priority for enhancements. In order to do this, it classifies each space under four headings: Protect spaces of high value and above average quality Protect and enhance quality spaces of high value but lower than average quality and where it should be possible to improve quality. Seek to enhance value if possible spaces of low value but higher than average quality which may require a change to some other form of greenspace which will be more valuable for local people and help deliver the council s objectives more effectively than the present space. If it is not possible to enhance value, the council should review the space Review spaces of low value and lower than average quality which may require enhancement of quality and value. Alternatively they may require opportunities for development in order to generate funds for enhancement of other spaces of greater value to local communities. 11 Havant Borough Council District-Wide Local Plan September Havant Borough Council (2007). Employment Land Review 13 Kit Campbell Associates (2006). Havant Open Spaces Plan and PPG17 Assessment 17

18 4.11 In consultation with the council s open spaces manager, some of the sites which have been valued as low value and lower than average quality have been considered for potential housing development in the assessment. Some sites in the Open Spaces Audit would not be suitable for consideration for housing, for example, sites outside the borough and footpaths. These were not considered for housing potential as part of this assessment. Havant Borough Urban Capacity Study 4.12 Sites which were identified in the previous Urban Capacity Study 14 and which remain undeveloped have been reassessed in light of changing circumstances since the study was published in Existing council documents 4.13 The National Land Use Database (NLUD) and documents held by the council identifying development potential have also provided a useful source of information. Vacant and derelict land and buildings 4.14 The assessment has identified land which is vacant and derelict through a desk based survey exercise. Ordnance Survey maps, the council s geographical information system and maps available on the internet were used to identify land. Surplus public sector land 4.15 The English Partnerships register of surplus public sector land has been reviewed and there are no sites registered in the borough. Other land within public sector ownership which may provide land for housing has been assessed as part of the site survey process. Large scale redevelopment and re-design of existing residential areas 4.16 Where such opportunities can be identified, the assessment has included large scale redevelopment of existing residential areas Single or multiple private dwelling houses which could produce housing potential were not surveyed unless they were put forward by the landowners themselves as part of the consultation process. This is because it was considered that the difficulties involved with assembling the land would render the site undevelopable/undeliverable. It was also considered that some of the development potential in the borough from this source could compromise local character. Accommodation above shops 4.18 The previous urban capacity study 15 showed that there was a small element of supply from this source. Any potential on sites which would yield five or more units have been identified through the site survey. Yield from small sites (1-4) will be accounted for in the unidentified small site allowance. Subdivision of existing housing 4.19 Previous studies 16 had shown that there was an element of supply from this source. Past trends had shown that 3% of total completions between 1996 and 2007 were from the subdivision of existing housing. 2% were on sites of 1-4 dwellings and 1% on sites of five or more dwellings. Any potential on sites which would yield five or more units have been identified through the site survey and consultation with stakeholders. Yield from sites of 1-4 dwellings will be accounted for in the unidentified small site allowance. Due to the low level of supply from this source and the difficulty in identifying such sites, it was not considered practical to carry out a detailed map based survey for housing supply from this source. 14 Entec (2001) Havant Borough Urban Capacity Study Havant Borough Council. 15 Entec (2001) Havant Borough Urban Capacity Study-Havant Borough Council. 16 Entec (2001) Havant Borough Urban Capacity Study-Havant Borough Council. 18

19 Empty homes 4.20 Previous studies 17 showed that there was no significant contribution from this source. Research carried out by the Empty Homes Agency indicated that there are approximately 1,006 empty homes in the borough which equates to 1.80% of total homes in the borough. This is below the average for Hampshire (2.28%) and the South East (2.39%). The majority of these (92%) are within private ownership (Figure 5). The Empty Homes Agency s research also states that approximately 64 empty homes were brought back into use in the borough during 2004/05. 3% 5% 0% Council Housing Association Other Public Body Private Landlord 92% Figure 4: Percentage of empty homes in Havant Borough by ownership (Empty Homes Agency, 2006) 4.21 Although there is believed to be a small element of supply from empty homes, the difficulty in guaranteeing that they will be brought back into use renders it difficult to include this as an element of supply in the study. Therefore unless any specific sites have been identified as part of the site survey, no element of supply from this source has been included in the assessment. Land in non-residential use which may be suitable for redevelopment for housing, such as commercial buildings or car parks, including as part of a mixed-use development 4.22 Opportunities from this source have been identified from map-based surveys, NLUD and consultation with landowners. New free standing settlements 4.23 Due to the built-up character of the borough, there is no scope for new free-standing settlements and none have been identified for the borough in the draft South East Plan 18. Urban extensions 4.24 The assessment has identified potential housing land from urban extensions through the site survey process and by inviting stakeholders to submit sites for consideration and through a map based survey. There are significant parts of the borough affected by flooding and nature designations which limit the potential for housing development outside the urban 17 Entec (2001) Havant Borough Urban Capacity Study-Havant Borough Council. 18 South East Regional Assembly (2006). A Clear Vision for the South East Draft. The South East Plan. 19

20 areas (Figure 3). Certain areas of some of the urban extension sites which were promoted to the council were excluded because they were not considered suitable. Sites and areas which were not considered suitable for housing are listed in Appendix B together with maps showing their location. Consultation with stakeholders 4.25 Landowners were given the opportunity to promote sites to the council. An article was placed in the council s magazine, Serving You, details were also placed on the council s website and a letter sent out to landowners, estate agents, planning consultants and house builders. Sites which were promoted for uses other than housing were also considered as part of the assessment. Sites subject to undetermined and outstanding planning permission 4.26 The likely level of housing that could be provided if unimplemented planning permissions were brought into development has been assessed and included within the first five year period. This has been assessed with regard to the deliverability of the sites. Survey of sites 4.27 Each identified site was visited to record the site characteristics and constraints. The site visits also provided an opportunity to identify further sites for inclusion within the assessment which were not identified from the desktop review. A proforma was completed for each site which included information about the site size, current use, surrounding land uses and physical constraints (Part 2 pages 54 to 160). Assessing the suitability of land for housing 4.28 Conclusions on the suitability of the sites for housing were based on information gathered during the desk top survey, site visits and professional knowledge within the planning policy team. This exercise eliminated sites where the constraints rendered development on the site unrealistic and included sites which were considered suitable for housing development and could be predicted confidently to come forward for development. Some policy constraints did not render a site unsuitable for development but were required to be taken into consideration when calculating the potential yield. The net developable area was calculated for sites where constraints only affected part of the site, such as flooding. Opportunities for overcoming constraints to development were also considered as part of the suitability assessment. A summary of the policy considerations in determining the suitability of a site for development are shown in Table 5 below. Policy Restriction/Physical Constraints Flooding or coastal erosion zone Aquifer protection zone Potential ground quality issues Suitability Assessment 19 PUSH (2007). Strategic Flood Risk Assessment. In accordance with the sequential approach within PPS25, sites within flood zones 1 have been included as a priority. Sites have been assessed against the latest information in the Strategic Flood Risk Assessment 19 which includes a 2115 climate change prediction. Sites which fell into the aquifer protection zone were not discounted, however, it would need to be demonstrated that any development would not lead to an unacceptable deterioration in quality or potential yield of coastal, surface and ground water sources. Information on whether a site was, currently or had previously been, affected by a potentially polluting use was recorded. Although this may not always prohibit development, it is a factor associated with the viability of development and would 20

21 Gas pipeline Area of Outstanding Natural Beauty (AONB) Tree Preservation Order (TPO) Nature designations Brent Geese factor associated with the viability of development and would need to be addressed prior to development. High pressure gas mains are protected by a 140 metre (minimum) wide planning easement. Sites which were affected by a high pressure gas main were either discounted from the assessment, or the net developable area calculated. Sites within an AONB were not discounted on the basis that development in this area may be permitted where there is an overriding national interest or a lack of alternative sites. TPOs on a site were recorded in the proformas. Sites which were heavily wooded were discounted from the assessment. Tree cover was also a determinant of the final yield on the site. Policy CS1 of the emerging Core Strategy also seeks to protect important trees and hedgerows. Sites which lie within sites of nature designations, including SSSIs, SINCs, SPAs, SACs and LNRs, were discounted from the assessment. Sites which are identified in the Brent Goose Strategy 20 will need to demonstrate the levels of impact and any appropriate compensatory/mitigation measures. Conservation area Listed or local listed Historic park Archaeological zone Impact on the strategic gap Site assembly Site access Accessibility A site being within a conservation area was not in itself a reason for exclusion from the study on the basis that development of the site could contribute to an enhancement of the character and appearance of the conservation area. Sites which would result in the demolition of a listed or locally listed building were discounted. Sites where development was considered to affect the setting of a listed or locally listed building were discounted from the assessment. A site being within a historic park was not in itself a reason for exclusion from the study unless it was considered that development would harm its character or appearance. Sites which were situated within archaeological zones were not discounted on the basis that each site would need to be assessed in terms of the impact they would have as part of an assessment of their value and opportunities for conservation. This issue would be a consideration in determining the timing of a site coming forward for development and costs associated with development. Sites and areas which were considered to be detrimental to integrity of the strategic gaps were excluded. A study 21 carried out consultants helped to inform decisions about this. Site assembly could affect the timing of a site coming forward for development and the costs associated with development. Information about ownership was recorded to inform site viability and timing. Land locked sites where no access could be gained were discounted from the assessment. The borough is reasonably accessible by public transport. Information about the proximity of sites to public facilities was recorded in the pro-formas, however, sites were not automatically discounted for reasons of inaccessibility. 20 Hampshire Wildlife Trust (2002). Brent Goose Strategy 21 Kirkham Landscape Planning Ltd (2007). The Formation of Strategic and Local Gaps in Havant Borough 21

22 Infrastructure automatically discounted for reasons of inaccessibility. Information on infrastructure requirements was taken from the recently published infrastructure paper ( Table 5: Policy and other considerations in assessing the suitability of sites for housing development A list of excluded (considered unsuitable) sites and reasons for their unsuitability for housing development is given in Part 2 Appendix B together with maps of the sites showing their location. Assessing the availability of land for housing 4.30 Where the information was available, the issues affecting the availability of sites was recorded. This included land ownership and any legal covenants affecting the site. Land registry searches were carried out to find out land ownership where this information was not known. Information provided by landowners was also used to inform assessments about availability. Where possible landowners of sites which were already within the planning process (e.g. Local Plan allocations and outstanding permissions of five or more dwellings) were contacted to ascertain their intentions to develop the sites and likely timescales. Assessing the achievability of land for housing 4.31 Information about the achievability of the sites for development was based upon the best information available with regard to market, cost and delivery factors. Further information on these issues will also be sought as part of the consultation on the draft document. Cost factors 4.32 On the best information available, details of the likely factors which may affect the cost of a development were recorded. Information about this was taken from the current requirement of the development plan, including affordable housing requirements, open space, green transport contributions, public art and education contributions. Market factors 4.33 The decision was taken not to undertake a residual land valuation for each site due to resource constraints and the number of sites. There are limits with undertaking hypothetical valuations as they do not inform whether the landowner will bring forward their land at that value and detailed information about developments costs often only become apparent when detailed site assessments are carried out as part of the development process. However, in the vast majority of cases contact with the landowners or agents has clarified that sites are disposable, with a reasonable prospect of availability, in relation to market factors Information about the adjacent uses was obtained as part of the site visits and assisted in determining whether a site would be appropriate for housing or other uses. The 2008 ELR also provided information on the appropriateness of sites for employment uses. Sites identified as preferred locations for employment sites in the 2008 ELR and considered suitable for housing are shown as mixed use developments in the SHLAA. The housing market information provided on pages and through the Strategic Housing Market Assessments (SHMA) updates also provided information on the level of potential market demand and the attractiveness of the locality The council s estates department has also undertaken a desktop study of the viability of the sites put forward in the original SHLAA document. Whilst the council cannot undertake a detailed feasibility study, on the information available it does appear that with house prices and land values in the borough, all of the sites put forward are likely to be viable for residential development provided the sites can be assembled at a price which reflects their potential and any significant development costs. 22

23 Delivery factors 4.36 Information on the developers own phasing was based on details provided by landowners and developers and known infrastructure constraints identified in the council s Infrastructure Background Paper 22. The existing and potential future policy position on the site was also considered. Annual updates from landowner and agents will be sought to ensure sites are still deliverable or developable and also to provide an update to phasing/site availability information used for the purposes of the SHLAA updates. Estimating the housing potential for each site 4.37 To estimate the housing potential for sites within the urban area, a methodology was devised to guide the generation of a density which might be appropriate for housing development on the site. The methodology used was partly based on encouraging higher densities in areas close to public transport and town, district or local centres. Points were awarded according to whether a site was within 400 metres of public transport, local, district or town centre. Additional criteria also used included the proximity to an area of open space, context and identity. The Landscape Character Assessment 23 provided information about the context of the site and whether it presented an opportunity for a landmark building, equating to potentially higher densities. The methodology used is summarised in Table 6. Accessibility Urban Design Density criteria Proximity to train station (Havant, Bedhampton, Emsworth) Proximity to bus stop (Bus stop with at least four buses every hour) Proximity to bus interchange (Havant and Waterlooville) Town, district or local centre (As defined in the Havant Borough District-Wide Local Plan 2005) Major public open space (sites identified for protection or enhancement in the open spaces audit) Context Can higher density housing be justified because of the existing pattern of development. Identity Can higher density on site contribute to the borough s identity by introducing landmark development along A and B class roads and railways, in town, district or local centres or near major road junctions? Assessment Within 400m of a train station = 1 point Further than 400m of train station = 0 points Within 400m of a bus stop = 1 point Further than 400m of bus stop = 0 points Within 400m of a bus interchange = 1 point Further than 400m of a bus interchange = 0 points Within 400m of a town, district of local centre = 1 point Further than 400m of a town, district or local centre = 0 points Within 400m of a major open space = 1 point Further than 400m of a major open space = 0 points 1 point awarded unless Landscape Character Assessment recommends low density development to protect character of area. 1 point awarded to sites which represent an opportunity for a landmark building. Table 6: Methodology used to estimate a yield for specific sites within the urban area 22 Havant Borough Council (2006) Infrastructure Paper 23 Kirkham Associates (2007). Havant Borough Townscape, Landscape and Seascape Character Assessment 23

24 4.38 The methodology was applied to all sites in the urban area to produce a total for each site. According to the total number of points each site received, it was categorised into a density range as set out below: 7 points indicates a density of between dph (average = 100dph) 6 points indicates a density of between 70-90dph (average = 80dph) 4-5 points indicates a density of between 50-70dph (average = 60pdh) 0-3 points indicates a density of between dph (average = 40dph) Yields were adjusted accordingly if a site had a constraint, or other development commitment, which was considered to affect the final yield, e.g. such as tree cover, mixed use. An appropriate density was applied to each site using this methodology. The density and final estimation of housing potential was recorded in the proformas It was not considered appropriate to use the same methodology for the urban area sites as applied to the urban extension sites. The size of many of the urban extension sites means that they could deliver a range of uses on site, with housing at varying densities across the site. It was not possible to design a scheme for each site due to resource constraints and the possibility of setting unrealistic expectations for developers. It was considered more appropriate to apply a gross density across the whole site based on densities achieved on recent housing developments in the borough and examples of exemplar schemes in other parts of the country Commission for Architecture and the Built Environment (CABE) had carried out a number of housing audits, looking at completed housing developments in terms of their quality, layout, urban design and place making. Housing developments in suburban areas which were regarded as very good or good by the audit have been taken as a basis for deriving a gross density for the borough. Housing developments in the audits which were in town centre locations were not selected on the basis that they would not be representative of the type of development which could take place on urban extensions sites. South East Region 24 Development No. dwellings Density Beaulieu Park, Chelmsford dph Willow Court, Chelmsford dph North East, North West, Yorkshire and Humberside Staiths, Gateshead dph Housing schemes on urban extensions in Havant Borough Locks Farm, Denvilles dph Rook Farm, Hayling Island dph Proposed density at MDA dph Table 7: Densities on a range of recently completed housing developments 4.42 Table 7 shows a range of site sizes. The average density of all sites is 34.6dph. It is acknowledged that some sites may be built at a higher density and some at a lower density but it is considered that 35dph represents a good average across all sites. Outstanding planning permissions delivering 1-4 dwellings 4.43 For small sites (1-4 dwellings) with planning permission, a different approach was used due to resource constraints. At 1 April 2007, permissions equating to 107 dwellings were outstanding. Looking at past trends with regard to implementation rates on small sites, an 24 CABE, Housing Audit: Assessing the Design Quality of New Homes. 24