London Borough of Hounslow Annual Monitoring Report 2005/06
Contents Page List of Abbreviations 4 List of Figures and Tables.. 5 Executive Summary Key Findings 7 1. Introduction 11 2. The Borough in Context.... 12 Part 1 Local Development Scheme Implementation... 14 3. Hounslow s Local Development Scheme.. 15 LDS Milestones achieved in the period 1 October 2005 to 30 September 2006.. 16 Development Plan Documents. 16 Supplementary Planning Documents.. 17 Part 2 Planning Policy Implementation... 21 4. Monitoring Framework 22 5. Data Collection.. 23 6. Housing... 26 Contextual Indicators. 26 Core Indicators... 27 Local Indicators and Significant Effects.. 33 7. Employment... 51 Contextual Indicators.. 51 Core Indicators....52 Local Indicator and Significant Effects... 57 8. Shopping.63 Contextual Indicators.. 63 Core Indicators... 65 Local Indicators and Significant Effects... 67 9. Community and Leisure..... 75 Contextual Indicators. 75 Core Indicators 76 Local Indicators and Significant Effects.. 76 10. Planning Obligations. 81 Local Indicators... 81 11. Environmental Protection.... 84 Contextual Indicators.. 84 Core Indicators... 85 Local Indicators and Significant Effects... 86 12. Built Environment.. 90 Contextual Indicators.. 90 Core Indicators.... 91 Local Indicators and Significant Effects...... 91 2
13. Natural Environment 96 Contextual Indicators.. 96 Core Indicators 98 Local Indicators and Significant Effects..... 98 14. Waterways... 102 Contextual Indicators.. 102 Core Indicators.... 103 Local Indicators and Significant Effects...... 103 15. Transport and Development... 105 Contextual Indicators.. 105 Core Indicators 106 Local Indicators and Significant Effects...... 107 List of Sources.. 111 Appendices. 113 3
List of Abbreviations AMR AQMA BAAP BAP BVPI DCLG Defra DPD EA GLA HMO LDD LDF LDS LNR LP m2 PPG PPS PSA REG SA SAP SAMs SCI SDC SPA SSSIs UDP Annual Monitoring Report Air Quality Management Area Brentford Area Action Plan Biodiversity Action Plan Best Value Performance Indicators Department for Communities and Local Government Department for Environment, Food and Rural Affairs Development Plan Documents Environment Agency Greater London Authority Houses in Multiple Occupation London Development Database Local Development Framework Local Development Scheme Local Nature Reserve London Plan Metres Squared Planning Policy Guidance Planning Policy Statement Public Service Agreement Residential Extensions Guidelines Supplementary Planning Guidance Sustainability Appraisal Species Action Plan Scheduled Ancient Monuments Statement of Community Involvement Sustainable Development Committee Special Protection Area Sites of Special Scientific Interest Unitary Development Plan 4
List of Figures and Tables Figures Figure 1: BVPIs 200a 200c.... 15 Figure 2: Current LDS Timetable..... 18 Figure 3: Sample page from the AMR Appeals Database.. 24 Figure 4: Housing Trajectory. 30 Figure 5: Definitions of Class B Uses.. 52 Figure 6: Percentage of A1 to A5 units in the Borough s town centres 2002-2006.. 64 Figure 7: Definitions of Retail, Office and Leisure Uses... 65 Figure 8: Proportion of A1-A5 units within the Borough s primary frontages... 68 Figure 9: Proportion of A1-A5 units within the Borough s secondary frontages... 70 Figure 10: The proportion of A1-A5 units in locations outside the primary and secondary frontages of Chiswick and Hounslow town centres... 72 Figure 11: Ecological Footprint for Hounslow 89 Figure 12: Satisfaction with the neighbourhood as a place to live. 93 Tables Table 1: Average House Price (all dwellings). 26 Table 2: Housing Trajectory for London Borough of Hounslow from 2000 to 2016/17.. 29 Table 3: Percentage of residential dwellings completed by density range 31 Table 4: Housing Completions 2005/06.. 32 Table 5: Permissions for developments proposing more than 20 residential units in 2005/06... 34 Table 6: Affordable Housing Need in the Borough 34 Table 7a: Type and size of affordable housing units in residential schemes of over 20 units granted planning permission in 2005/06. 35 Table 7b: Summary of type and size of affordable housing units in residential schemes of over 20 units granted planning permission in 2005/06 36 Table 8: Percentage of Affordable Housing in proposals quoting H.2.1 as a reason for refusal 37 Table 9: Density of major new residential schemes granted planning permission in the financial year relative to density ranges in the UDP and London Plan. 42 Table 10: Range of housing in full residential approvals of 20 or more units 45 Tables 11a and 11b: Housing Mix Summary. 46 Table 12: Number of Homeless Persons in the Borough..... 48 Table 13: Gross Internal Floorspace developed for employment 2005/06 52 Table 14: Amount of floorspace developed for employment by type..... 53 Table 15: Amount of land development for employment by type in employment areas. 53 Table 16: Amount of land development for employment in regeneration areas.. 54 Table 17: Employment Proposal Sites (including Key Employment Locations)... 54 Table 18: Employment land available by type in sites defined and allocated for employment use in the UDP. 55 Table 19: Employment land available by type in approvals for Class B developments outside designated employment areas 55 Table 20: Total Land Available for Employment by Type. 55 5
Table 21: Permissions for developments proposing new business (B1) uses in 2005/06... 57 Table 22: Amount of completed retail, office and leisure in schemes proposing over 500m2 of floorspace 65 Table 23: Percentage of completed retail, office and leisure development in town centres 66 Table 24: Proportion of retail uses within the primary frontages of the Borough s main shopping centres 2005 and 2006 68 Table 25: Percentage of retail and non-retail units in the secondary frontages of the Boroughs main shopping centres 70 Table 26: Percentage of retail and non-retail units in locations outside the primary and secondary frontages of Chiswick and Hounslow town centres.. 71 Table 27: Total Number of Agreements Signed 81 Table 28: Financial Contributions contained within Legal Agreements signed in 2005/06 81 Table 29: Benefits received by category through S106 agreements based on monies received in 2005/06. 82 Table 30: Benefits delivered by category through S106 agreements based on spend in 2005/06... 82 Table 31: Provision of Affordable Housing Units Contained within Legal Agreements signed in 2005/06.. 82 Table 32: Affordable Housing S106 Financial Contributions received during 2005/06.83 Table 33: Municipal Waste Arising by Type 85 Table 34: Renewable Energy Installed by Type 86 Table 35: Sources of noise pollution in the local area.. 86 Table 36: Summary of Listed Buildings Risk by Grade 95 Table 37: Condition of SSSIs in the Borough 101 Table 38: Amount of completed non-residential development complying with car parking standards for developments with over 500m2 of floorspace.. 106 Table 39: The amount of new residential development within 30 minutes public transport time of: a GP, a hospital, a primary school; a secondary school; areas of employment; and a major retail centre. 107 Table 40: Mode of Transport uses for various trips... 108 Table 41: Rating of Public Transport in Hounslow.109 Table 42: Proportion of residents rating aspects of public transport in Hounslow as either fairly or very good comparison with 2004 and 2006 109 6
Executive Summary Key Findings PART 1 LOCAL DEVELOPMENT SCHEME IMPLEMENTATION Progress against LDS Milestones The Council s LDS has been revised and the amended timetable came into effect from 12 May 2006. The Council met all of its major LDS milestones for the 2005/06 financial year and in the subsequent six month period to 30 September 2006. The Planning Inspector held an informal hearing on the SCI on 19 June 2006. The Inspectors Report was received on 27 June 2006 and found the SCI to be sound subject to minor amendments. The Council adopted the SCI on 26 September 2006 in accordance with the LDS timetable. Work on the Employment DPD and Brentford Area Action Plan has been in accordance with the LDS timetable to date. However, in light of the first two public examinations of soundness under the new LDF system, the need to await evidence from the background studies currently being undertaken and informal advice from the Government Office for London, it is likely that the LDS will be amended early in the new year. The pre-production stage of the Core Strategy began in Summer 2006. A number of background studies are or have been undertaken including an employment land study, a retail needs assessment, a strategic flood risk assessment and an open space study. This programme of pre-production will inform the issues and options consultation. The Council is currently examining the most appropriate way to deal with the potential for joint working with other constituent Boroughs of the West London Waste Disposal Authority for a waste DPD. Both the Planning Obligations and Air Quality SPDs are currently being prepared. PART 2 PLANNING POLICY IMPLEMENTATION Housing Hounslow exceeded both the national (60%) and local (90%) target for the proportion of housing built on previously developed land, with 99.8% of all new and converted dwellings in the Borough on brownfield land. The average density for all completed dwellings in the Borough was 102 units per hectare. This is more than two times the 2005 national average of 47 dwellings per hectare but below the 2005 London wide average of 112. The London Plan contains a Density and Location matrix with appropriate density ranges that relate to the location, setting and public transport accessibility of a 7
development proposal. As the London Plan was adopted three months after the UDP, the density standards in the London Plan take precedence and significant weight needs to be afforded to the density matrix and the higher density figures it considers appropriate in specific circumstances. National and regional planning policies require that development proposals achieve the highest possible intensity of use compatible with local context, good design and public transport capacity. Examples provided in the AMR make clear the approach of the Planning Inspectorate to density, which highlights the need to focus on the actual impact of density, in terms of character, design and amenity standards. Planning permission cannot be refused simply because a scheme exceeds a density range provided in a planning policy. To be judged excessive, the density needs to result in demonstrable harm that can justify refusal of planning permission. There has been a net increase of 481 residential units in the Borough during the financial year. This increase exceeds the London Plan annual monitoring target for the Borough of 470. The outturn of net additional affordable dwellings for the financial year was 119, which represents 24.7% of total net housing completions. This is below the London Plan and UDP target of 50% of new homes as affordable. However, the gross provision of affordable housing in developments granted planning permission during the financial year was 371 units, which represents 53.8% of units in schemes above the affordable housing threshold. The majority of affordable housing approved will be provided as one and two bedroom units. Employment 14,481m2 of gross internal floorspace was developed for employment uses (Class B uses) during the financial year. The largest proportion of floorspace was for light industrial uses (38.5%), followed by distribution and storage (34.4%) and general industrial purposes (22.9%). Only 4.2% of employment development was for office use. The total amount of employment land lost to completed residential use was 0.313 hectares. No land in employment areas designated in the UDP (key employment locations and employment proposal sites) has been lost to completed non-employment generating uses. Planning permissions for the release of land to non-employment will be monitored on a Borough and West London basis in the future to assess the loss of employment land against benchmarks set out in the Mayor s Draft SPG on Industrial Capacity. Shopping The results of the Council s annual town centre surveys show that Borough s town centres have maintained their retail function with a majority of retail uses. The increasing proportion of retail units in the primary frontage of each of the Borough s town centres, and the small number of applications for non-retail uses in these areas, shows that the UDP objective to protect their retail function has been well implemented. 8
The outcome of appeals highlights the importance of not solely considering the number and proportion of retail outlets on a parade. Other key indicators for measuring vitality and viability of town centres identified in PPS6 include the proportion of vacant units, pedestrian footfall and accessibility. The outcome of the town centre health checks currently being undertaken as part of the Council s retail needs assessment will provide further information on these indicators. Community and Leisure No new significant community or leisure developments were completed within the Borough during the financial year. Environmental Protection There is one active aggregate recycling site in the Borough Days Aggregates. The total output of recycled aggregates form this site in 2005/06 was 279,333 tonnes (Source: Days Group Ltd, 2006). The total amount of municipal waste collected during the financial year was 115,131 tonnes. This represents a 19.2% increase on the outturn of the previous financial year. Built Environment There have been a large number of appeals for advertisement displays along the Great West Road. In general, inspectors have tended to grant express consent for the temporary display of hoardings around the base of large sites where major redevelopment is anticipated. On very few occasions have objections on public safety grounds (by the Council, Highways Agency, or Transport for London been upheld. There have been a number of positive developments in relation to the Borough s built heritage during the financial year. The number of structures in the Borough on English Heritage s Listed Buildings at Risk Register has fallen by two over the last year with one Grade II* and on Grade II structure removed from the list. The Council has also produced new character area appraisals for all 26 of the Borough s conservation areas. Natural Environment Three parks in the Borough achieved Green Flag Award standard for the 2005/06 financial year. This equates to 12.4% of all publicly accessible open space in the Borough. The award is a marker of good quality in the management and maintenance of green spaces. Waterways No planning permissions were granted contrary to the advice of the Environment Agency. 9
Transport and Development 29% of completed non-residential floorspace in the Borough did not comply with the maximum standards for car parking provision set out in the UDP. This was split between two developments where other considerations such as existing provision and the need to regenerate the sites were seen to outweigh non-compliance. All new housing completed during the financial year is within 30 minutes public transport time of a major retail centre, an area of employment and a primary school. Approximately 90% of new housing was within 30 minutes public transport time of a secondary school and hospital, and 80% was within 30 minutes of a GP. The majority of dwellings that are not within 30 minutes public transport time of a secondary school, hospital or GP are located in the West of the Borough where public transport accessibility levels are below average by London-wide standards. 10
1. Introduction 1.1 Section 35 of the Planning and Compulsory Purchase Act 2004 requires every local planning authority to produce an Annual Monitoring Report (AMR) as part of their Local Development Framework (LDF). LDF is the collective term given to a portfolio of statutory and non-statutory documents that together will replace the Unitary Development Plan, and provide a new spatial planning framework for the Borough. 1.2 This AMR covers the period from 1 April 2005 to 31 March 2006. The document contains information on: Part 1 Local Development Scheme Implementation 1.3 A review of development plan preparation against the timetable and milestones set out in the Borough s Local Development Scheme. Part 2 Planning Policy Implementation 1.4 An analysis of the extent to which the policies and targets in existing plans and policies are being achieved and the significant effects on social, environmental and economic objectives 1.5 A summary of all the matters to be addressed in the AMR are set out in Table 3.2 of the document Local Development Framework Monitoring: A Good Practice Guide (ODPM 2005). 11
2. The Borough in Context 2.1 Geographically situated in outer West London, Hounslow is a large borough covering approximately 22 square miles. Stretching from Chiswick in the east to the boundaries of Heathrow Airport in the west, the transition from the urban environment of the suburbs to the semi-rural environment of the urban fringe takes place within Hounslow. 2.2 The Borough has a mix of residential, commercial and industrial land uses interlaced with several waterways, including the River Thames, large areas of open space and areas of cultural and architectural heritage. It is reasonably well served by public transport and ideally located for national transport links, with easy access to major roads and motorways linking Central London and the City to the south west, Wales, the Midlands and beyond via the A4, M25 and M4. As an outer London borough, Hounslow borders the London Boroughs of Hillingdon, Ealing, Richmond-upon-Thames, Hammersmith & Fulham and also Spelthorne Borough and Surrey County Council. 2.3 Hounslow has large areas of green space with over 581 hectares of public open space and 1,246 hectares of urban green space - roughly 30% of the Borough s surface land area. There are large areas of green belt in the west as well as a number of significant open spaces in the more built-up parts of the Borough. Osterley, Boston Manor, Chiswick House grounds, Duke s Meadows, Syon and Gunnersbury Parks provide invaluable green lungs which serve the environmental and recreational needs of the population living within and beyond the Borough s boundaries. The River Thames and the Grand Union Canal also add considerably to the quality of the open space and residential areas in Chiswick, Brentford and Isleworth. 2.4 Although outside of the Borough s boundaries, Heathrow Airport has a dominant influence on Hounslow s economy. Employment in the west area of the borough is dominated by airport related logistics, construction and services such as hospitality and catering. This area also contains over a quarter of the Borough s industrial and commercial estates. Elsewhere in the Borough, where the airport has less of a direct influence, the economy has restructured. Traditional industrial estates have been affected by nationwide decline in manufacturing and are characterised by ageing, sometimes obsolete commercial floorspace, some of which lies vacant or underused. At the same time there has been a shift towards service sector employment opportunities. The development of Chiswick Park has also created one of the strongest locations for office lettings outside of central London. 2.5 The Borough has four town centres Brentford, Chiswick, Hounslow and Feltham. These centres as well as Chiswick Park, the Great West Road and Bedfont Lakes are the Borough s key development nodes. Hounslow and Feltham town centres are undergoing significant redevelopment and the Council is currently developing plans to facilitate the regeneration of Brentford. A number of vacant employment sites on the Great West Road are also subject to interest from developers for major mixed-use developments. 2.6 Hounslow has one of the most culturally diverse communities in the UK. 212, 344 people live in the borough with over 120 languages spoken and 35% of the population are from minority ethnic groups (Census 2001). Population projections predict an overall increase in the population of Hounslow of just over 10,000 people (approximately 5% of the current population) from 2003 to 2028. The population density of the Borough currently averages 37.9 people per hectare, compared to the London average of 45.6 people per hectare. Hounslow has the eight highest population density of the 33 London boroughs. 12
2.7 Hounslow s residents live in communities stretching from Bedfont at the fringe of Greater London in the west to the Victorian streets of Chiswick in the east. Local areas are very different in character and therefore have different needs. There have always been some affluent parts of the Borough and, taken as a whole, Hounslow is not poor in comparison to many other boroughs. However, there are notable and persistent areas of deprivation in the Borough in the wards of Bedfont, Brentford, Hanworth, Heston West and Syon. These areas are characterised by higher unemployment, skills mismatch, a large percentage of lone parent families, lower academic attainment, high crime rates and drug abuse, a higher amount of local authority housing, and areas of severe environmental and industrial decline. London Borough of Hounslow 13
Part 1 Local Development Scheme Implementation 14
3. Hounslow s Local Development Scheme 3.1 The Local Development Scheme (LDS) is the first document to be produced as part of the Borough s Local Development Framework (LDF). It is a project plan, which sets out the documents to be included in the LDF. For each document it provides information about timescales and when the public will be formally involved. It shows the geographical area that each document covers and explains how the documents are linked, and the need for conformity between them. It considers other aspects of LDF project management including leadership, political engagement and reporting, possible joint borough working, resources and risk assessment. The Council s first LDS came into effect from 31 May 2005. 3.2 The role of the AMR is to compare actual local development document preparation against the stated milestones within the Local Development Scheme. If the Council is falling behind schedule or fails to meet a target the AMR will set out the reasons for this and what steps will be taken to address any problems. Despite meeting the milestones in the first LDS, a number of changes to the LDS were proposed by the Council in April 2006. The reasons for needing to amend the document relate to: Uncertainty over changes to relevant national guidance; A greater understanding and appreciation of the demands and requirements of the new Plan making legislation. 3.3 The Council s LDS has now been amended and was submitted to the Secretary of State (through the Government Office for London) who agreed the latest version. This came into effect from 12th May 2006. 3.4 The 2004/05 AMR presented a review of the work undertaken in the six month period from the 31 May 2005 to 30 September 2005. Following on from this, the 2005/06 AMR uses the amended LDS programme to review progress on the preparation of local development documents over 12 month period from 1 October 2005 to 30 September 2006. 3.5 Best Value Performance Indicators (BVPIs) 200a-200c shown in Figure 1 summarise the Council s LDF progress against national performance targets during the financial year, and shows that all targets were achieved. Figure 1: BVPIs 200a 200c BVPI Description Target Outturn Did the local planning authority submit the Local 200a Development Scheme by 28 th March 2005 and thereafter maintain a three year rolling programme Yes Yes 200b Has the local planning authority met the milestones which the current Local Development Scheme sets out? N/A Yes 200c Did the local planning authority publish an annual report by 31 st December each year? N/A Yes 15
LDS Milestones Achieved in the period 1 October 2005 to 30 September 2006 Development Plan Documents (DPD) Statement of Community Involvement (SCI) 3.6 In accordance with the amended LDS, the draft SCI was submitted to the Secretary of State on 31 January 2006 with a subsequent six-week period of consultation until the 13 March 2006. The Planning Inspectorate held an informal hearing on the 19 June 2006. This was a roundtable discussion chaired by the Inspector and attended by 4 objectors and Council Officers. The inspector considered the objections received during the consultation process and the discussion at the informal hearing through their binding report into the SCI. The Inspector's Report was received on 27 June 2006 and found the SCI to be sound subject to minor amendments. The Council formally adopted the SCI on 26 September 2006, in accordance with the LDS. The current LDS timetable is shown below in Figure 2. Employment Development Plan Document (Employment DPD) Brentford Area Action Plan (BAAP) 3.7 In accordance with the amended LDS, consultation on the preferred options for the Employment DPD and BAAP took place from the 25 January 2006 to 7 March 2006. The next scheduled milestone for these documents is their submission to the Secretary of State in December 2006. Core Strategy Site Specific Designations and Policies Proposal Map Site Allocation Schedule Generic Development Control Policies 3.8 The pre-production stage of the Core Strategy began in Summer 2006. The programme of pre-production is to be used to inform the Issues and Options consultation that will take place in January 2007. 3.9 The pre-production stage has included an assessment of national and regional guidance including conformity issues between the London Plan and the LDF. This has also involved the collation and analysis of local documents (including the Community Plan) to understand what the spatial requirements of the LDF are likely to be. Work is also being undertaken to assess Hounslow in the wider context of the West London sub-region and how the Borough relates to its neighbouring authorities. 3.10 Hounslow s Community Plan is currently being reviewed and its timetable for publication will be Spring 2007. The review has involved stakeholder events and public consultation. Two large pieces of work are being undertaken to assess the spatial requirements of the Community Plan and how to translate these in land use terms. An assessment of the spatial elements of different areas of the Borough is also being undertaken to inform the area profiles in the Community Plan. 3.11 In addition to this, a number of background studies are or have been undertaken, these include an employment land study, a retail needs assessment, a strategic flood risk assessment and an open space study. 3.12 A consultation strategy for the Core Strategy in accordance with the adopted Statement of Community Involvement is being developed and where possible linking it with the consultation that is being undertaken with the Community Plan. 16
Joint Waste DPD 3.13 The Council is currently examining the most appropriate way to deal with the potential for joint working with the other constituent boroughs of the West London Waste Disposal Authority for a waste development plan document. 3.14 Boroughs consider that this is a priority area due to the possible financial implications of not being equipped to move towards self sufficiency in managing waste within West London and continuing to rely on transfer to land fill elsewhere in the country. To this end a joint Municipal Waste Disposal Strategy has been produced and adopted in September 2006. 3.15 Progress has been made through the establishment of a steering group made up of each of the constituent Boroughs. The Steering group is currently developing a formal timetable, to be agreed for joint working with each of the West London Boroughs. An agreed timetable will result in alterations to all the Boroughs Local Development Schemes, which will also be subject to agreement from GOL. Progress has also been made through establishing the evidence base for waste in the sub-region including understanding the policy and legislative background to waste planning. This has also included attendance at the Examination in Public into the first alterations of the London Plan. Summary 3.16 All of the key milestones for the preparation of development plan documents in the review period have been met. However, in light of the first two examinations of soundness of core strategies under the new LDF system, the need to await evidence from the background studies being undertaken and informal advice from the Government Office for London, it is likely that the LDS will be amended early in the new year. Supplementary Planning Documents (SPD) Planning Obligations 3.17 The first draft of the Planning Obligations SPD is currently being prepared. A short delay is expected but consultation will take place early in the new year. Air Quality 3.18 The first draft of the Air Quality SPD is due to go out for public consultation early in the new year. 17
Figure 2: Current LDS Timetable 18
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Part 2 Planning Policy Implementation 21
4. Monitoring Framework 4.1 This section of the AMR analyses the performance of policies in Hounslow s UDP against policy and sustainability targets. Government guidance proposes that three types of indicator are used to monitor the performance and effects of local planning policies through the AMR: 1. Contextual indicators describe the wider social, economic and environmental background against which the UDP policies operate. 2. Output indicators are used to assess the performance of planning policies. Their purpose is to measure development activity and outputs in the Borough that are related to, and are a consequence of, the implementation of planning policies. The Council are required to monitor a set of nine core output indicators set by the Department for Communities and Local Government (DCLG) to allow for the consistent monitoring of particular policy outcomes. This enables comparison between Borough s and also collation to arrive at figures for sub-regional and Londonwide levels. Local output indicators are any other indicators that the Council chooses to measure the performance of UDP policies against their objectives, and have been assessed through an analysis of planning decisions, planning appeals and development monitoring. 3. Significant effects indicators measure the effects of implementing UDP objectives on the social, economical and environmental sustainability objectives set out in the Council s Sustainability Appraisal Scoping Report 2005. 4.2 Each type of indicator plays a specific role in different stages of the plan making process. Contextual indicators are intended to enhance understanding of the wider context for the development of spatial planning policies. Output indicators inform policy progress and achievement. Significant effects indicators inform monitoring of the impact of planning policies on sustainability. 4.3 The group of indicators set out above have been used to monitor the performance and effects of the policies in Hounslow s Unitary Development Plan (UDP). The UDP has been saved for a period of three years until policies and proposals are replaced by the new local development documents. 4.4 The findings from each type of indicator have been structured and presented in the AMR on a thematic basis by each UDP topic e.g. Housing, Employment, Shopping etc. The findings are supported by data and commentaries as necessary. 22
5. Data Collection 5.1 With the increased emphasis on monitoring within the LDF process, a number of measures have been implemented by the Council s Strategic Planning Policy team to improve the scope and quality of data available to assess the Council s performance. The three key methods of data collection are outlined below. Development Monitoring 5.2 The London Development Database (LDD) allows for the storage and retrieval of information, to agreed criteria, on planning permissions, starts and completions throughout London. 5.3 The monitoring system depends upon the Council s Strategic Planning Policy team providing up to date information on planning permissions, starts and completions, which meet the following criteria: Classes A1 A5 ) Classes B1-B2 & B8 ) Proposes 500 m2 or more Class C2 Other ) of gross floorspace in one Classes D1 D2 ) or more of these categories No specified class (Sui Generis) ) Class C1 ) Proposes 10 or more Class C2 Residential Homes ) bedrooms in one of these No specified class (SG Hostels) ) categories Class C3 ) Proposes a loss or gain of 1 or more residential units or no net gain but new units built Open Space Proposes a loss or gain of Site area or a change of use 5.4 Through contact with the Greater London Authority (GLA), which manages the LDD, the Council has suggested for the benefit of all Boroughs that a report template is written to enable relevant data to be extracted from the LDD for the AMR. 5.5 Furthermore, the Council has sought improvements to the scope of the LDD to collect data from Boroughs on the proportion of B1a, B1b and B1c development approved and completed. This is considered important in monitoring the following: The proportion of industrial land and floorspace released to other uses at a Borough and sub-regional level (through identifying light industrial uses) against the benchmarks in the GLA s Draft SPG on Industrial Capacity Core Output Indicator 4a to enable identification of B1a development Core Output Indicator 4b to enable identification of B1a development within Town centres 23
Planning Decisions 5.6 A report was produced from the Council s Planning database to identify applications approved/refused in 2005/06, and where the decision notice made reference to specific UDP policies. 5.7 More detailed information was then obtained from the committee report and planning file. This analysis enabled consideration of: Whether UDP targets were being achieved through planning decisions. Exceptional circumstances where the Council have approved proposals where a UDP target was not met. 5.8 The data extracted and presented in the AMR varies according to the indicator and target. Tables are presented in the appendices to show the proposals approved/refused, and where applicable, the issues or circumstances where a UDP target was not met are summarised. Despite every effort to ensure the information is accurate, it is important to note that there may be some errors or omissions to the information provided due to errors in data entry and retrieval. Planning Appeals 5.9 A database has been created (see Figure 3 for sample page) to monitor planning appeal decisions for each financial year. Appeal statements from the Planning Inspectorate are recorded onto the database. Figure 3: Sample page from the AMR Appeals Database 5.10 Information recorded includes details of the appeal and the issues raised by the planning inspectors. Each issue is identified in the planning statement is recorded by 24
the most relevant UDP chapter and policy. The issue is also defined as either one of interpretation of policy or a judgement of the issue as summarised below: 5.11 Interpretation of policy - There are instances where the issue considered by the inspector is the appropriate weight given to a specific policy or Supplementary Planning Guidance (SPG), or the way in which the policy has been interpreted or used by the Council. There are examples of appeals where the inspector disagrees with the approach taken by the Council. In such cases it will be necessary to reconsider both the specific wording and meaning of the policy and if it is being used as intended. 5.12 Judgement of the issue - Other issues arise in appeals over the subjective assessment of impact, and differences in the interpretation of impacts on amenity, highway safety, and character of an area as examples. Whilst there is a policy on which the assessment is made, it is a judgement of the planning officer based on the information available. Such examples are important to consider in improving best practice. 5.13 Reports are then produced from the database and a summary is prepared of the issues arising in implementation of UDP policies. 5.14 Whilst the Council s database enables monitoring of appeal decisions, there are limitations including the extent of the work to identify issues in appeal decisions. 25
6. Housing CONTEXTUAL INDICATORS Housing Stock 6.1 The Housing Investment Programme Report (April 2004) shows that the total number of dwellings in the Borough was 89,169, an increase of 1,609 since 2001/02. At the time of the 2001 Census, the proportion of the total dwelling stock provided as houses was 62%, of which semi-detached was the most common form. 38% of dwellings were provided as purpose built flats or maisonettes. Housing Tenure 6.2 The proportion of owner-occupier households in the Borough is higher than the London average (61% compared to 57%) but lower than the average for outer London boroughs of 68%. The proportion of households renting from the Council (17.1%) is in line with the London-wide average (17.2%) but nearly 6% above the outer London average of 11.6%. The number of households renting privately in Hounslow is 15.9%, which is below the London average of 17.3%, but higher than the outer London average of 13.9%. Household Size 6.3 The average household size in the Borough of 2.51 is greater than the London wide average of 2.35 persons per household. The average number of rooms per household in the Borough is 4.73, lower than the averages for outer London (4.99) and England and Wales (5.34). House Prices 6.4 The average price of all properties in the Borough for the period January to March 2006 was 278,812, which represents a 13.62% increase on the same period last year. Although the average house price in Hounslow remains below the London average, the percentage increase in the Borough was significantly above both the regional and national averages. Table 1: Average House Price (all dwellings) Hounslow Greater London England and Wales Jan Mar 2005 245,387 288,507 183,486 Jan Mar 2006 278,812 306,661 192,745 Percentage +13.62% +6.29% +5.05% Change (Source: Land Registry Residential Property Price Report Jan Mar 2006) 26
OUTPUT INDICATORS CORE INDICATORS 2a Housing Trajectory 6.5 Table 2 and Figure 4 below present a summary of the net additional dwellings completed in the last six years, including the 2005/06 financial year, as well as projected net additional dwellings 1 to 2016/17 to reflect the time period of the additional homes target set out in Table 3A.1 of the London Plan. The annual dwelling requirement of 470 for 1997-2005/06 is from the London Plan Table 3A.1. The annual requirement from 2006/2007 to 2016/17 of 445 is taken from the London Plan First Alterations. 6.6 Figure 4 on page 29 shows the London Borough of Hounslow Housing trajectory for 2005/06. The graph has been prepared on the basis of criteria (i) - (v) of Core Output Indicator 2a and guidance from the Government Office for London to Local Planning Authorities on Housing Trajectories. 6.7 In calculating the housing pipeline (projected net additional dwellings) for the period 2006/07 to 2016/17the following sources have been used - a. unimplemented permissions b. permissions started and under construction c. approvals subject to S106 d. adopted allocations (UDP Proposals Sites) * e. proposed allocations from the preferred options for the Brentford Area Action Plan * f. windfall estimates including: - small site allowance of 146 units per year (London Housing Capacity Study 2005) - non-self contained units (London Housing Capacity Study 2005). 6.8 There are no dwellings projected to come forward through vacant units returning to use, as reflected in the London Housing Capacity Study 2005. However, it is considered that on the basis of adding homes provided through non-self contained units, the projected number of homes is comparable with the London Plan target. 6.9 * Information on when an adopted allocation in the UDP or proposed allocation (Proposal Sites) in the Brentford Area Action Plan is likely to come forward is not available unless there have been discussions at a pre-application or application stage. As a part of the Core Strategy, which is at an early stage in preparation, the Council will be in contact with landowners to discuss their proposals for development of allocated sites, and possible new allocations. 6.10 It is proposed that in the future, an assessment of when a site is likely to come forward will be based on discussions with landowners and developers. For the Housing trajectory presented for the AMR 2005/06, the Council has allocated potential housing coming forward on adopted or proposed housing or mixed use proposal sites to one of two phases (the first phase to the end of 2010/11, the 1 15% of the projected dwellings have been deducted from the total for each year, based on the assumption that 15% of the housing in the pipeline will not be built. 27
second phase from the beginning of 2011/12 to 2016/17). The phasing reflects the approach in the London Housing Capacity Study 2005. 6.11 Phase 1 includes Units approved, but which have not been implemented Units under construction or not started on sites under development Units approved subject to the signing of a legal agreement Potential units on adopted (UDP) or preferred options (BAAP) housing and mixeduse allocation sites, for which there is a current application, application expected or where there has been developer interest. Where there is a current application, application expected or where there has been interest on a part of a large mixed use or housing proposals Site (more than 5 hectares), the potential housing on the site has been split between Phases 1 and 2. 6.12 Phase 2 includes Potential units on adopted (UDP) or preferred options (BAAP) housing and mixeduse allocation sites where there has been no interest to date incl. parts of a large site (more than 5 hectares). 6.13 As is evident from past trends, not all pipeline development is implemented. To reflect this, 15% of the projected dwellings in each year from 2006/07 to 2016/17 have been subtracted from the total projected homes for the particular year. Potential dwellings on allocation sites (Proposal Sites) 6.14 Where an allocation or proposal site adopted in the UDP or proposed in the BAAP has not been developed for the proposed use, an assessment has been made on the proportion of the site that may be developed for residential based on the proposals site description (For the purpose of calculating total projected dwellings and not appropriate for considering in assessment of a planning application). 6.15 For a housing proposals site, the proportion calculated has been 100%, whereas for mixed-use sites a proportion of the site s area has been used for calculations. Upon arriving at a net figure for the area of each housing and mixed-use proposals site, the mid point in the appropriate range (subject to its location and setting) of Table 4B.1 Density Location and parking matrix in the London Plan is used to calculate the potential dwellings on the site. 6.16 Table 2 below presents the total net additional dwellings completed in each of the last 6 years including the current year (2005/06) and the projected net additional dwellings for each year from 2006/07 to 2016/17. 28
Table 2: Number of net additional dwellings completed from 2000 to 2005/06, and projected from 2006/07 to 2016/17. Year Completed Year Projected 2000 487 2006/07 1505 2001 399 2007/08 1505 2002 572 2008/09 1505 2003 850 2009/10 1505 2004/05 570 2010/11 1505 2005/06 481 2011/12 536 2012/13 536 2013/14 536 2014/15 536 2015/16 536 29
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2b Percentage of new and converted dwellings on previously developed land 6.17 The Best Value Performance Indicator (BVPI) 106 for the 2005/06 financial year shows that 99.8% of all new and converted dwellings in Hounslow were on previously developed land. 6.18 The Government s Planning Policy Guidance 3: Housing (PPG3) sets the national target that by 2008, 60% of additional housing (including the conversion of existing buildings) should be provided on previously developed land. The Council s own Best Value target for brownfield land is set annually, with the target of 90% of all new homes to be completed on previously development land in 2005/06. Hounslow has exceeded both the national and local targets. 2c Percentage of new dwellings completed by density range 6.19 To make the best use of land available for housing paragraph 58 of PPG3 requires local planning authorities to: avoid developments which make inefficient use of land (those of less than 30 dwellings per hectare encourage housing development which makes more efficient use of land (between 30 and 50 dwellings per hectare); 6.20 Table 3 shows that approximately 97.6% of all residential dwellings completed in Hounslow in 2005/06 had a density range of more than 30 units per hectare. 6.21 The average density for all completed dwellings in Hounslow in 2005/06 was 102 units per hectare. This is more than two times the 2005 national average for new residential developments of 47 dwellings per hectare but below the 2005 London wide average of 112 (Source: DCLG, 2006). Table 3: Percentage of residential dwellings completed by density range Density Range Less than 30 units per hectare Between 30 and 50 units per hectare More than 50 units per hectare Number of Dwellings Completed Percentage of total dwellings completed 12 2.4% 14 2.8% 476 94.8% TOTAL 502 100% 2d Affordable Housing Completions 6.22 The London Plan sets the strategic target for the completion of 50% of new homes as affordable each year, from 2004 to 2016, and within that, a London-wide objective of 70% social housing and 30% intermediate provision 2. Hounslow s 2 Social housing is housing provided by a landlord where access is on the basis of housing need, and rents are no higher than target rents set by the Government for housing association and local authority rents. In order to enable the provision of social housing, the Council seek to make available an element of public subsidy i.e. Social Housing Grant. Intermediate housing is sub- 31
UDP (policy H.2.1) also sets a target of 50% of all housing completions as affordable. All housing developments in the Borough capable of providing 20 or more residential units or sites of 0.75 hectare or above should make provision for on site affordable housing. 6.23 Table 4 shows the gross and net of additional affordable dwellings completed in the 2005/06 financial year. Of the 481 net additional housing completions 119 (24.7%) were affordable comprising 18 (15.1%) intermediate and 101 (84.9%) socially rented units. 6.24 There are a number of reasons the Council have not achieved the target of 50% affordable housing, as a proportion of net additional housing completions: The target of 50% only applies to proposals that meet the thresholds for affordable housing (Housing developments capable of providing 20 or more dwellings and/or residential sites of 0.75 ha or more). Completions on sites where less than 20 units are proposed may not include any affordable housing and therefore do not contribute to the affordable housing completed as a proportion of total dwellings. Historic permissions being implemented now, which were approved under a former version of the UDP with a lower affordable housing target Site specific circumstances including issues of viability that make achieving 50% affordable housing unrealistic. 6.25 It is expected that the proportion of affordable housing will increase in the future with implementation of the London Plan and UDP targets. Table 4: Housing Completions 2005/06 Affordable Private Total Gross Net Gross Net Gross Net New Build 116 116 356 347 472 463 Conversions 4 3 13 5 17 8 Changes of Use 0 0 9 6 9 6 Extension 0 0 4 4 4 4 TOTAL 120 119 382 362 502 481 market housing, which is above target rents, but substantially below open market levels. This category can include shared ownership, sub-market rent provision and key worker housing. 32
LOCAL INDICATORS UDP OBJECTIVE H.2 6.27 To promote the provision of affordable housing by the Council, the private sector and Registered Social Landlords, using partnership arrangements and legal agreements where necessary. H.2.1 Affordable Housing 6.28 Purpose: Secure the highest achievable provision of affordable housing for households in local housing need. The Council will negotiate the provision of up to half of all new housing as affordable dwellings on suitable residential sites taking into account the suitability of the site, the economics of provisions and the need to achieve a successful housing development. 6.29 Target: All sites capable of providing 20 or more dwellings and/or residential sites of 0.75 hectare or more should make provision for affordable housing, with an overall aim of achieving 50% of new housing as affordable. The Mayor of London has also adopted a strategic target that 50% of all additional housing should be affordable, and within that, a London-wide objective of 70% social housing and 30% intermediate provision. 6.30 Indicator 1: Number and percentage of affordable dwellings approvals for 20 or more residential dwellings. 6.30.1 Outcome: Table 5 shows that the gross provision of affordable housing in approved developments proposing 20 or more residential units is 371. This represents 53.8% of gross units in schemes above the 20-unit threshold, which is above the Borough s target of 50%. 6.30.2 Table 5 shows that there were three approvals in the financial year where more than 50% affordable housing was provided. The approval for Greenham Park House included 60% affordable housing (Planning ref: 00242/C/P80). A previous permission (Planning ref: 00242/C/P78) for the first phase secured 44%, because it was accepted there were abnormal costs associated with the valuation of the office building and its continuous use as an employment site. As this was no longer the case, the site including phases 1 and 2 was considered as a comprehensive development, and phase 2 should provide the highest achievable provision in accordance with policy H.2.1. 6.30.3 On the site of 661 London Road (Planning ref: 00707/661/P25), the Council sought the maximum proportion of affordable housing in accordance with Policy E.1.5, H.3.5 and H.2.1. As described in the supporting text to policy H.3.5 (UDP para. 8.25), employment sites that become available for residential redevelopment should make the maximum contribution to meeting the need for affordable housing in the Borough. 6.30.4 The third permission where 60% affordable housing was proposed (Planning ref: 01054/142-146/P1) the applicant was a housing association. Whilst the scheme originally submitted was for 80% affordable housing, circumstances relating to funding and the progression of planning applications on other sites resulted in a reduction to this figure. 6.30.5 The Bedfont Lakes proposal (Planning ref: 00287/J/P41) was the only approval that failed to achieve the Borough s 50% target for affordable dwelling provision. However, given the 33