First Deposit Proposed Alterations to the Bristol Local Plan, including Minerals and Waste Policies FEBRUARY 2003 CHAPTER 8 HOUSING

First Deposit Proposed Alterations to the Bristol Local Plan, including Minerals and Waste Policies FEBRUARY 2003 (DRAFT FOR CONSULTATION) CHAPTER 8 Planning ahead to meet the housing requirements of the whole community

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Contents 8.1 Introduction 8.2 Policy Context 8.3 Objectives and Initiatives 8.4 Policies H1 Retention of Residential Accommodation H2 Providing sufficient housing Land allocated for Housing Development H3 H4 H5 H6A H7 H8 H9 H10 H11 H12 H13 H14 Maintaining a supply of housing Sites Identified for Development Backland Sites Accessible and Adaptable Housing Community Benefit from DevelopmentMixed housing and communities Conversion/ Sub-Division of Existing Housing Houses Upper Floors Over Commercial Premises Shops and Offices Planning for Affordable Housing to Meet Local Needs Non self-contained bedsitting rooms (shared accommodation), large households, cluster units and hostels Residential Care Homes and Nursing Homes Gypsies and other Travelling People Travelling Showground People Houseboats Schedule to Policy H3: Sites for Housing Development Part 1 Sites identified Available for Housing Development only Schedule to Policy H3: Part 2 Sites identified for Mixed Use development including Housing Schedule to Policy H3: Part 3 Mixed Use Sites in Regeneration Areas including housing development Schedule to Policy H5: Sites identified for Very Sheltered Housing Schedule to Policy H11: Sites identified for Care Homes Schedule to Policy H12: Sites identified for Gypsies and Other Travelling People Schedule to Policy H13: Sites identified for Travelling Showground People Appendix H1: Housing Renewal Areas CHAPTER 8 287

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8.1 INTRODUCTION Housing Supply 8.1.1a The Government intends that everyone should have the opportunity of a decent home. Its aim is to widen housing choice, and secure a better mix in the size and type of housing than is currently available, including for those in need of affordable and supported housing. 8.1.1b In 2002, there were about 170,700 dwellings in Bristol. Of these, about 131,000 dwellings (77% of the total) are privately owned or privately rented. The remaining 39,700 (23%) are local authority or housing association properties rented with subsidy; these are referred to as social housing 1. 8.1.1 These 2002 estimates suggest a 6,600 (4%) increase in the dwelling stock in Bristol between 1991 and 2002 (see Table 8.1). This is broadly consistent with figures derived from Bristol City Council s annual Bristol Residential Development Survey, which monitors the implementation of planning permissions. Yet Bristol, in common with many cities in the country, faces a continuing increase in the number of people who are homeless, as well as a growing city council housing waiting list, and a widening differential between house prices and earnings from employment. Between 1996 and 2002, average property prices in Bristol increased by 121%. Average earnings for Bristol employees have increased at a much slower pace up 34% between 1996 and 2002 2. Although low interest rates have helped to keep the mortgage repayments:earnings ratio stable at a national level, locally there is an urgent need to improve the range of housing available in the city, particularly housing which is accessible 8.1.1c to those who cannot afford to rent or buy on the open market. Such housing is defined in the plan as affordable housing. Planning policy is just one mechanism the city council can use to bring about improved housing in Bristol in the 2000s 1990 s. This Plan cannot satisfy the full range of housing needs of the city, which must be addressed in conjunction with neighbouring authorities via the Structure Plan. In this respect, the level of housing provision in the adopted Joint Replacement Structure Plan (JRSP) of 50,200 additional dwellings for 1996-2011 still falls short of the level considered by the Secretary of State necessary to meet the needs of the whole community, including those in need of affordable and special housing 3. Nevertheless, Bristol s share (13,000 additional dwellings) represents a substantial increase in the Although, by identifying a realistic supply of housing land in the city. and controlling the way this is developed, it is hoped that a range of housing supply will be maintained. 8.1.2 Government policy in the last ten years has led to a free market approach, with less commitment to provision through public subsidy of the range of housing needed, in particular affordable housing. 8.1.3 As the supply of new housing has not met the specific needs of various sectors of the community in respect of type and cost, this has led to the use of unsatisfactory temporary housing in bed and breakfast accommodation, overcrowding in hostels and increased homelessness in Bristol 4. The 1980 Housing Act gave tenants the Right to Buy their houses. This combined with the effects of severe restrictions on CHAPTER 8 289

Table 8.1 Dwelling stock in Bristol Local Housing Private Total authority Associations sector 1991 37,000 6,100 121,100 164,100 2002 31,400 8,300 131,000 170,700 % of total 18.4 4.9 76.7 100.0 in 2002 Change 1991-2002: No. -5,600 2,200 9,900 6,600 % -15.1 36.1 8.2 4.0 Source: 1991 Census counts, adjusted by Bristol City Council; 2002 HIP Local Authority house limited new building programmes since 1976 has reduced the number of council houses available. This has led to a serious shortage of affordable family housing. Table 8.1 shows that between 1991 and 2002, the total stock of social housing decreased by about 3,400 dwellings. 8.1.4 The City Council s strategy for meeting housing need in the City is set out in the Housing Strategy 5. This includes lists of partners that the City Council works with, and the various plans and strategies for implementing and managing change. Housing Associations play an increasingly important role in the provision of housing in the city. Recently they have been forced to focus on easy to achieve new build projects to attract funding from the Housing Corporation. There is a danger that this will lead to a serious problem of vacant, older properties with no clear mechanism to secure their improvement. In order to meet the housing need and renewal strategy in the city, these houses are required to be put back into use. There is also a growing concern that Housing Associations are being forced to charge higher rents which are not affordable for some people. The partnership between the City Council, and Registered Social Landlords (RSLs), and private and voluntary sector housing providers Housing Associations is being reinforced helps to secure significant contributions to housing provision in line with local general needs and supported housing. This is outlined in Bristol City Council s annual Enabling Strategy, which provides guidance to partners preparing bids for housing investment in the City 6. 8.1.5 It is also important to engage This Plan seeks to direct the nature of private house builders building in the future to ensure the type of homes built are in line with local needs and that there is a contribution to affordable housing. This can be achieved by a partnership between public and private sectors and to maximise ing site opportunities in the City. the use of sites identified in this Plan. This includes the development of brownfield land marginal and backland sites and a commitment to neighbourhood renewal. a strategy for urban renewal. This will help to then reduce pressures on previously undeveloped ( greenfield ) to develop land. allocated for other uses, including open space. 290 CHAPTER 8

Housing Need 8.1.6 The nature of housing need is particularly complex. and has changed considerably over recent years. The need for additional housing is mainly a consequence of demographic and social factors, such as longer life expectancy, and changes in household structure. There has been, and continues to be, a trend towards smaller households. The average household in Great Britain in 2000 contained 2.30 people, compared to an average of 2.91 in 1971 7. An equally pronounced decline in average household size is apparent in Bristol, down to about 2.24 people per household in 2001, compared to an average of about 2.81 in 1971 8. These changes are reflected in the type of housing currently being provided in the City; about 70% of dwellings with planning permission in 2002 contain less than 3 bedrooms 9. There has also been a subsequent The Bristol Housing Register shows an increase in demand need for small family accommodation and housing for single persons. for single parents, and young couples with small children. and the elderly. In order to satisfy local housing needs clear policies for affordable housing including housing for special needs are required. In addition, there are groups of people in the City for whom housing provision has become difficult eg. students. Despite new purpose-built provision in the 1990s and early 2000s there is a growing problem of insufficient student housing in the City, reflecting the growth in the term-time student population in Bristol since the early 1990s, leading to increased demand for low cost rented accommodation which is in short supply and in competition with other housing demands. It is essential that institutions such as the Universities work with the City Council to identify the most appropriate locations for new purpose-built provision. reduce any future conflicts between the need for student housing and other housing needs. Housing Renewal 8.1.7 Policies to protect existing housing and to encourage regeneration and urban renewal are important parts of this Plan. The conversion of existing property, the restoration of derelict and substandard dwellings properties and the redevelopment of existing housing which has reached the end of its useful life may increase the number of habitable homes in the City. There are known to have been were 5,429 vacant dwellings houses in the City in 1991, which has since increased to 5,833 in 2002 10. If brought back into use, there would be of major benefit to all sections of the housing market (ref. Census 1991). There are also opportunities to revitalise and diversify land use in the City to provide new homes on upper floors over shops and offices (see Policy H8). 8.1.8 The City currently has two one Housing Renewal Areas, one in Easton, and one in St Werburghs and St Agnes, where grants are available to maintain and improve the condition of the housing stock. A 2001 Bristol House Condition survey suggests significant improvements have occurred in some parts of the City, compared to a previous survey in 1994. Other major renewal projects are currently underway in areas of the city containing large numbers of defective However in some other parts of the City, pre-reinforced concrete housing, prefabricated bungalows and also areas of 60 s and 70 s high rise some CHAPTER 8 291

flats require investment and/or redevelopment. Priority could be given, on economic and social grounds, to retaining and improving the existing housing stock. Where this is not feasible, it is important that any redevelopment is consistent with the Plan s policies to achieve a greater mix of housing type and tenure. These projects are being led by the city council in conjunction with housing associations. 8.1.9 The important urban renewal work that has taken place around The regeneration of the former City Docks since the late 1970s through private and public initiatives has produced many opportunities for new housing schemes. The redevelopment for housing of a number of vacant/derelict warehouses and redundant storage yards have provided the opportunity for people to move back into the City Centre, where the population has increased from about 7,500 in 1991 to about 11,700 in 2001 11. This is an established objective of the City Council, reflected in the Bristol City Centre Strategy 12. 8.2 POLICY CONTEXT 8.2.1 This section recognises the importance of public outlines the key elements of existing policy documents. The following section sets out the objectives for housing and associated initiatives which are then developed into and indicates how they relate to the housing policies in this Plan. 8.2.2 The Commission of the European Communities Green Paper on the Environment, 1990, supports a diversified land use across cities and in particular a reduction in isolation for people living on the edge of cities. It also seeks more environmentally aware cities making good use of derelict and under-used land and achieving sustainable development. 8.2.3 The Department of the Environment Paper This Common Inheritance, 1990, encourages the revitalisation of urban centres and the use of vacant or redeveloped urban land for housing. It is in these areas that the main opportunities for new housing in Bristol exist. There is very little new land for housing development within the city boundary. 8.2.4 Government guidance on how housing development should promote urban renaissance, more sustainable patterns of development, and an improved quality of life is set out in Planning Policy Guidance Note No.3 on Housing (PPG3) 13. was published in March 1992. This PPG endorses the requirement for a five year supply of land for housing and, in particular that full and effective use of land in existing urban areas should be made whilst also protecting valuable amenity land. This changed emphasis, and protection afforded to green space is welcomed. It is reinforced by the Government s policy statement on housing, and the Urban White Paper, both published in 2000. 8.2.4a In the south west, the Housing Corporation, Regional Assembly and Government Office have worked together to produce a Regional Housing Strategy 2002-2005 14. This identifies the key housing issues in the region, and contains action points for local authorities relating to housing demand, housing delivery, regeneration and renewal, and supported housing/supporting people. 8.2.4b Regional planning bodies must ensure that sufficient housing is provided in the area. Regional Planning Guidance 292 CHAPTER 8

8.2.4c for the South West (RPG10) highlights the economic strength of the Northern sub-region, which includes the Bristol and Bath travel-to-work areas, Gloucestershire and Wiltshire, and the need for commensurate levels of new housing provision 15. This is to be accommodated mainly at the Principal Urban Areas (PUAs), of which Bristol is the largest in the south west region. This strategy reflects a changing economic geography, with the renaissance of urban areas as centres of economic strength, particularly in knowledge-based and consumer-based employment 16, and more locally the particular competitive strength of the Bristol sub-region economy 17. The benefits of an adequate long-term supply of housing are summarised in research published by the House Builders Federation 18. The Regional Assembly will ensure, through a plan, monitor and manage approach, that housing requirements and provision are kept under regular review. The first annual monitoring report for the south west is to be published in 2002-2003. 8.2.5 PPG3 requires Local Plans to ensure that suitable land is allocated for housing to implement the Structure Plan proposals in ways which take account of local conditions. It also contains welcome advice concerning the provision of affordable housing, and in particular recognises that authorities may now negotiate for the inclusion of an element of affordable housing in new private housing schemes. Policy 35 of the JRSP requires Local Plans to set out policies, targets and locations for the provision of new affordable housing, based upon assessments of local need. This approach is amplified in Policy HO 3 of RPG10. In Bristol, a minimum of 20% affordable housing in new private housing schemes accommodating 15 or more dwellings will be sought. In exceptional circumstances, for example in areas of particular need, a higher figure of 30% may be sought. These proposals are outlined in Policy H9. This was followed in 1996 by Circular 13/96 Planning and Affordable Housing which developed this advice in some detail but stated that it is only applicable to sites over 40 dwellings. 8.2.5a Government guidance indicates that priority should be given to the use of previously-developed land and buildings (also known as brownfield sites) in urban areas for new housing, before greenfield sites are released. Since 1996 about 90% of new dwellings in Bristol have been provided on previously-developed land (see Table 8.2). Policy H3 sets out proposals to ensure that this performance is maintained. 8.2.5b The Government expects new housing development to make more efficient use of land. Nationally, new housing is in the early 2000s is being built at an average density of 25 dwellings per hectare (dph) 19, compared to the 30 to 50dph recommended in PPG3. Monitoring shows that the average density of residential schemes completed in Bristol in the 1996-2002 period is relatively high (nearly 51 dph), although some schemes are below the 30dph threshold 20. Policy B7 indicates that major residential development schemes in Bristol with a net density below 30 dph will be unacceptable. 8.2.5c Local planning authorities are also encouraged to provide a better mix of size, type and location of housing 21. In Bristol, this is to be achieved both incrementally through changes to the CHAPTER 8 293

Table 8.2 Percentage of new housing completions in Bristol on previously-developed land 1996-97 1997-98 1998-99 1999-2000 2000-2001 2001-2002 87.6 88.1 88.3 92.4 90.9 99.0 Source: Bristol Residential Development Survey existing housing stock, and more directly through new development see Policy H6A. Progress towards more mixed communities in Bristol can also be achieved through the use of the locational guidance in this plan for particular types of housing, including: very sheltered housing (Policy H5); care homes (Policy H11); hostel accommodation; student housing (Policy H10); intermediate market housing, such as for key workers (Policy H6A); gypsies (Policy H12), and travelling showground people (H13). 8.2.6 Circular 1/94 on gypsy sites proposes that sites should be identified through the local plan process taking account of proven need and site suitability, or criteria for the selection of sites included within the plan. 8.2.7 Structure plans are required to indicate the scale and of housing provision; to be made for housing within the relevant policy period and local plans set out are required to translate the broad policies of the structure plan into more detailed development control policies and map based allocations for housing development. 8.2.8 The Structure Plan sets Bristol s housing allocations provision of 13,000 net additional dwellings for 1996-2011 is set out in Policy 33 of the JRSP. a policy period of 1989-2001. Previous versions of the Structure Plan set housing allocations at both the district and sub district level, but current government guidelines indicate that structure plan housing allocations should not normally be broken down below district level, this being seen as a more appropriate function for local plans. In line with this advice the Structure Plan now sets housing allocations at the district level only. 8.2.9 In calculating The housing requirement figures in the Structure Plan allowances are made to replace dwellings lost through demolitions and changes of use, and deducts the gains which are expected as a result of modifications to existing residential properties eg. flat conversion schemes. The housing allocation which is set by the Structure Plan does not therefore This represents the net proposed increase in the dwelling stock. in simple terms the allocation includes all new build housing and new dwellings created by conversions from non-residential uses. The housing allocations set out in this local plan conform to this methodology. 8.2.10 The Structure Plan sets a total allocation of 40,800 new dwellings to be built in the former County between 1989 and 2001. In apportioning the county-wide allocation amongst the districts the Structure Plan adheres to the principle that land proposed for housing development is to be concentrated primarily within Bristol, 294 CHAPTER 8

Kingswood, the North Fringe and Weston-Super-Mare. The allocation set by the adopted Avon Structure Plan for Bristol stands at 6,300 dwellings. 8.2.11 The policy areas which were specified in earlier versions of the Avon Structure Plan have now been incorporated into the Bristol Local Plan. The Examination in Public Panel s report recommended sub-division below district level was appropriate for the Local Plan: thus the BLP has incorporated housing allocations at the Policy Area level, fitting within the context of the Structure Plan. 8.2.12 The definition of Specific housing allocations for central, inner and suburban areas of Bristol, previously the policy area is considered as an important guide to the distribution of housing within the City to encourage the redevelopment and regeneration of the central and inner area whilst restricting pressure on important green field sites, particularly in the suburban area, are now deleted. In their place, a sequential approach to the release of housing land is proposed in Policy H3, to ensure that priority is given to brownfield sites. 8.2.13 The housing allocation figures proposed in this local plan for the policy areas are derived from the City council s representations on capacity for housing development in Bristol which were presented to the Examination in Public into the Structure Plan Third Alteration. The overall housing allocation proposed by Bristol City council was accepted in the Panel s report on the EIP, the figure for the city as a whole being incorporated into the adopted Structure Plan. 8.2.14 There are several other changing policy issues which are having a significant effect on housing in Bristol. The changes brought about by the Children Act 1989 and the National Health Service and Community Care Act 1990. This legislation requires that wherever possible people are cared for in the community. There has been a recent increase of development of shared houses, small hostels and residential care homes and day care centres as a consequence. This Plan contains policies which recognise the importance of these developments and ensure that they are carefully integrated into existing housing areas. 8.2.15 The city council has adopted clear housing and planning policies to protect houses in the city, to influence the quality and range of housing supply to achieve urban renewal schemes and to reduce homelessness. 8.3 OBJECTIVES AND INITIATIVES 8.3.1a To ensure that sufficient housing is provided: Protect the existing stock of housing (see Policy H1) Promote the development of identified sites (see Policy H3) Maximise new housing opportunities in conjunction with improvements in public transport accessibility (see Policy H3) Ensure that large publicly-funded institutions play a proactive part in providing housing as part of wider development plans (see Policy H6A and H10) Encourage the conversion of upper floors above commercial uses to residential use, reflecting the capital allowances now available (see Policy H8) CHAPTER 8 295

Monitor the effect of Bristol s Wasted Homes Initiative on the stock of vacant residential property (see Policy H2) Take advantage of Urban White Paper regeneration initiatives such as the abolition of Stamp Duty in 2001 for property purchases between 60,000 and 150,000 in the 11 most deprived wards of Bristol 22 Achieve 250 new dwellings per annum on small sites, consistent with Urban Housing Capacity Study assumptions Achieve 50 dwellings (net) per annum from the subdivision/amalgamation of existing dwellings, consistent with Urban Housing Capacity Study assumptions, taking advantage of the reduction in VAT from April 2001 to 5% (see Policy H7) Embrace a Monitoring and Management approach, including annual reports of changes in demand and supply factors, including progress in meeting housing requirements across the Structure Plan area as a whole (see Policy H3) 8.3.1b To ensure that new housing in Bristol is located in the right place, and contributes to the achievement of a sustainable Bristol : Make use of the sequential approach to give priority to brownfield sites (see Policy H3) To inform the sequential approach, annually update estimates of vacant land and buildings that are suitable for housing 8.3.1c Assess all major 23 housing development proposals against a standard set of criteria, including location/accessibility and regeneration factors (see Policy H3) Phasing of priority sites for housing in conjunction with new infrastructure (see Policy H3) Encourage housing development that has good access to local centres, services, jobs and public transport and creates attractive living environments Liaise with house-building industry and infrastructure providers to ensure that identified sites are realistic and deliverable Continue to achieve 90% of new housing on brownfield land (Best Value Performance Plan Indicator BV106) To increase the supply of affordable housing: A minimum of 20% affordable housing to be provided as part of all new private housing developments of 15 or more dwellings, with up to 30% sought in areas of particular need (see Policy H9) Annual assessments of housing needs and affordability Provision of 600 units of Very Sheltered Housing (VSH) for affordable rent in Bristol within five years Achieve a target of 3,330 new affordable dwellings in the 2002-2011 period, from schemes funded by the Housing Corporation and from the implementation of Policy H9 together 296 CHAPTER 8

8.3.1d To make more efficient use of land: Seek some housing within suitable major commercial developments Tightened parking standards and higher density developments in locations where car ownership is not a necessity (see Policy H8, Local Plan parking standards, and Policy B7) Innovative parking arrangements in new housing developments, minimising on-plot parking (through revised SPG) All major housing development proposals to provide at least 30 dwellings per hectare (see Policy B7) 8.3.1e To achieve mixed and balanced communities: Protection of residential amenity, by preventing over-concentrations of particular types of housing (see in particular Policies H6A, H7, H10, and H11) Enforcement action to control unauthorised subdivision of housing Focus on the mix of affordable housing, in terms of dwelling type and tenure, within private housing developments (see Policy H9) Achieving a mix of housing both within individual developments and across the neighbourhood as a whole (see Policy H1 and H6A) New housing in conjunction with improved community facilities and services as part of wider regeneration policies Further research into the housing needs of specific groups such as the black and minority ethnic population (BME) The publication of supplementary planning guidance for Policy H10 8.3.1 To protect and improve the quality and range of housing in the city, 8.3.2 To set realistic requirements for new housing, and to identify sites for development to fulfil Structure Plan requirements, 8.3.3 To increase the supply of a wide range of house types to match identified local need, particularly affordable housing and housing for people with special needs. 8.3.4 To ensure that all new housing schemes are assessed in line with the guidance on standards achieves a high quality of development. 8.3.5 To recognise the important contribution that conversion of houses to smaller units of residential accommodation can make to the housing supply. and to ensure that good quality housing is provided. 8.3.6 To encourage improvement and use of upper floors in shopping and commercial areas where suitable for residential use to increase housing supply. 8.3.7 To develop a housing strategy with the council, adjoining Authorities, the Health Authorities and Housing Associations to ensure adequate provision for special needs housing in the city. 8.3.8 To adopt a strategy for urban regeneration in the inner city and outer estates. CHAPTER 8 297

8.4 POLICIES Retention of Residential Accommodation 8.4.1 Since 1981 Bristol City Council has pursued a policy to resist In order that the loss of residential accommodation in the City has no effect on Bristol s housing supply, the cumulative number of dwellings lost through demolition and changes of use will be monitored, and provision made, through Policy H2, for an equivalent number of new dwellings over and above the Structure Plan housing provision figure. There are situations where the loss of existing housing should be resisted, for example in order to retain a valuable mix of housing types in an area. In view of the high level of demand for homes, as indicated in the council house waiting lists, an increase in the levels of homelessness, the increasing number of small households and the declining opportunities to build on new land without environmental damage it is proposed to adopt this policy in the Local Plan. The existing housing stock must be maintained and further housing provided to meet the city s need for housing. Exceptions will only be However, where an applicant demonstrates an overriding local need for an alternative use for which no other site or buildings are available in the area, for example allowing an existing business to expand, the loss of residential accommodation can be allowed. It is important for applicants to demonstrate the benefits that would accrue, for example new employment opportunities for local residents, (see Chapter 9: Community Services), or to show that where the property is unsuitable for continued residential use, or is such as a listed building that could be better preserved by other uses (see also Policy CC4). 8.4.1a It is to be noted that the majority of dwelling losses in Bristol involve demolition, rather than changes of use. Monitoring shows that losses through changes of use average just 12 dwellings per annum, mainly to nonresidential institutional (D1) uses 24. Demolitions have averaged 125 dwellings per annum in recent years 25, mainly involving former local authority housing. In addition there is a continuing programme of prefabricated bungalow replacement. Policy H1 cannot control demolitions (which are permitted development ), but it is relevant where proposals involve the redevelopment of existing housing. This is to ensure that stock replacement schemes contribute to a mix of housing types in the area 26. H1 (i) (ii) ALL PROPOSALS INVOLVING THE LOSS OF EXISTING RESIDENTIAL ACCOMMODATION (WHICH INCLUDES C2 AND SUI GENERIS USES), SHOULD TAKE ACCOUNT OF THE NEED TO RETAIN OR PROVIDE A MIX OF TYPES IN THE AREA. DEVELOPMENT INVOLVING THE CHANGE OF USE OF EXISTING RESIDENTIAL ACCOMMODATION WILL ONLY BE PERMITTED WHEN:- IT WOULD NOT UNACCEPTABLY ERODE THE CITY S STOCK, OR THERE ARE NO SUITABLE ALTERNATIVE SITES OR PREMISES IN THE AREA FOR THE PROPOSED USE, AND IT CONSISTS OF A COMMUNITY SERVICE USE WHICH PROVIDES BENEFITS FOR THE LOCAL RESIDENTS; OR 298 CHAPTER 8

(iii) THE ACCOMMODATION IS UNSUITABLE FOR CONTINUED RESIDENTIAL USE AND THE SITUATION CANNOT BE REMEDIED AT REASONABLE COST. Implementation: Development control and the monitoring of planning permissions Land Allocated for Housing Development Providing sufficient housing 8.4.2 Policy 33 of the JRSP requires the City Council will to manage the release of housing sites to ensure that there is an adequate and balanced provision of housing land available in the city to meet housing needs and demand, including opportunities to provide affordable housing. The city council has a duty to identify sufficient housing land to comply with the requirements of the current Structure Plan. In so doing, account must be taken of progress in meeting requirements across the Structure Plan area as a whole. PPG3 advises that The city council also has a duty to identify a at least a five year land supply of housing land be shown on the Local Plan Proposals Map. that is available for development. The sites allocated in the Local Plan have the capacity to meet these requirements. Proposals for Bristol are set out in Policy H3. For the purposes of the Local Plan the requirements are divided into the suburban, inner and central area. This will help to ensure the proper distribution of housing throughout the city. It will restrict development in the outer area, on green field sites and encourage renewal of inner areas. However, land for housing development is now running out within the city boundary and future housing allocations will have to reflect this. New developments which will cause damage to the urban environment will not be allowed. Where appropriate encouragement will be given to schemes that provide new housing by the re-use and renewal of existing buildings. 8.4.3 Policy 33 also requires the City Council will carefully to monitor the uptake of sites and the types of opportunity presented by land which remains available for development on a consistent annual basis 27. Table 8.3 (row 2) shows that net housing provision in Bristol from 1996 to 2002 totals 4,305 dwellings (an average of 718 per annum). This annual rate of provision is about 17% below the annual rate of 867 p.a. required to meet the 13,000 figure for the 1996-2011 period (row 1). Changes within the housing stock, and the availability of any additional windfall sites will be taken into consideration. 8.4.3a The shortfall in net housing provision since 1996 is mainly due to the relatively low yield from major sites, particularly in 1999-2000 and 2000-01. Another contributory factor is the large number of major housing redevelopment schemes since 1996, some of which have involved a net loss of dwellings. Whilst there has been a substantial increase in housing provision in central Bristol, especially since 1996, some of the outer or suburban parts of Bristol have seen little net change in housing stock in the last decade (see Figure 8.1) The sources to deliver the required increase in provision to 966 dwellings p.a. for the rest of the plan period to 2011 (see Table 8.3, row 3) are considered below. 8.4.4 The Bristol Local Plan period runs concurrently with the Structure Plan period 1989-2001. The consultation CHAPTER 8 299

Figure: 8.1 Change in dwelling stock, 1991-2002 Change in dwellings: less than 100 100-299 300-499 500 or more Source: Bristol Residential Development Survey. Crown Copyright. All rights reserved. Bristol City Council. Licence No. LA 09055L. 2003 draft version of the Local Plan was produced in April 1992 and the assessment of the housing allocation for Bristol was consequently based on an assessment carried out in 1992 when three years of the policy period had already elapsed. The figures given below for housing provision within the whole policy period are therefore split into (i) the component for completions by March 1992 and (ii) the components anticipated for provision April 1992 onwards. Windfall sites (see Table 8.3, row 5) 8.4.4a In the 1996-2002 period, about 45% of housing provision on major sites in Bristol was achieved through windfalls 28. This amounted to an average of 205 dwellings p.a. (net). This relatively high yield from windfalls, nearly all of which were brownfield sites, reflects the dynamic pattern of land use change in Bristol during a period of strength in the housing market. Demand factors, 300 CHAPTER 8

the range of site opportunities identified in the Bristol Urban Housing Capacity Study, and a continuing stream of planning applications and permissions for housing suggest that a trend-based allowance for major windfalls should continue to be made, totalling 1,845 dwellings for the 2002-2011 period. No allowance is made for greenfield windfalls, in accordance with PPG3. Small sites and conversions of existing dwellings (see Table 8.3, row 6) 8.4.4b Despite a buoyant level of housing completions on small sites since 1998, the combined net supply from small sites and from the conversion of existing dwellings in the 1996-2002 period (274 dwellings net p.a.) in Bristol is still a little short of the rate of 300 dwellings p.a. specified in the coordinated Urban Housing Capacity Studies carried out by the four local authorities in the structure plan area 29. The achievement of the required level of provision of 2,700 dwellings in the 2002-2011 period will require a supportive policy framework in particular through Policies H4, H7 and H8. 8.4.4c Major sites identified in the Local Plan The total anticipated supply from unidentified sites, specified in Table 8.3, is thus 4,545 dwellings, comprising 1,845 from major windfalls (row 5) and 2,700 from small sources (row 6). The remainder of the housing requirement to 2011 (4,150 dwellings) can be delivered from sites identified in Policy H3. 8.4.4d Note that the combined capacity of the sites identified in the Schedule to Policy H3 is about 5,800 dwellings, which is well in excess of the requirement of 4,150. There are two reasons for building this amount of slack into the policy: i) Although housing development schemes for a number of the sites are already well advanced, and for some, planning permission for housing has already been granted (as at 1 April 2002), national research and local trends suggest that not all sites that have a current planning permission will necessarily be built in the plan period 30. ii) A number of the sites identified in Policy H3 are greenfield sites, and on the basis of the sequential approach set out in Policy H3 (to give priority to housing development on brownfield sites), it cannot be assumed that all will come forward for development before 2011. Empty Homes 8.4.4e The potential of empty residential properties, and the success of the City Council s Empty Homes Strategy in bringing vacant dwellings back into use to meet housing needs, are recognised in the plan. In the calculation of the Structure Plan housing requirement, it was assumed that a 2,200 reduction in the number of vacant dwellings in the Structure Plan area will be achieved in the 1996-2011 period. This reduction is allowed for in Policy 33 of the JRSP. 8.4.4f The expected reduction in the number of empty homes in each unitary authority area is not specified in JRSP Policy 33. As over 40% of the vacant stock is in Bristol 31, the City s pro rata share of the -2,200 total might be in the region of 1,000 fewer vacant dwellings. However Council Tax data suggest that recent reductions in the overall number of vacant dwellings in CHAPTER 8 301

TABLE 8.3: ESTIMATED PROVISION TO MEET ALLOCATION 1989 2001 REQUIREMENT 1996-2011 No. of dwellings (net) Per annum Proposed dwelling allocation 1989 2001 6,300 1. Housing requirement 1996-2011 13,000 867 Dwelling completions 1989-1992 (all sites) 1,703 2. Change in dwelling stock, 1996-200233 4,305 718 3. Outstanding requirement (row1 row2) 8,695 966 4. Estimated provision 1992 2001 2002-2011 from 3,457 large major sites identified in the Local Plan 4,150 461 (see Policy H3) 8,695 Capacity of sites with planning permission in 1992 2,969 5. Estimated provision 1992-2001 2002-2011 from 420 large major sites not identified in the Local Plan - 1,845 205 windfall sites 6. Estimated provision 1992-2001 2002-2011 from 720 unidentified small sites and conversions of existing 2,700 300 dwellings Source: Bristol Residential Development Survey the city has been negligible 32. The long-term pattern should be a little clearer when 2001 Census data become available in early 2003. If reductions in the vacant stock do not materialise, it will be necessary to make provision for additional new housing in any review of the plan. H2 PROVISION WILL BE MADE FOR 13,000 6,300 ADDITIONAL DWELLINGS ARE PROPOSED TO BE BUILT IN THE 1996-2011 PERIOD 1989-2001 IN THE FOLLOWING AREAS CENTRAL 1,000 INNER 1,700 SUBURBAN 3,600 Implementation: By public, private and voluntary sector including promotion of sites by the city council. Sites identified for development Maintaining a supply of housing 8.4.5a Policy 33 of the JRSP requires Local Plans to set out proposals for controlling the release of sites for housing development. Proposals must: reflect the locational strategy of the Structure Plan; and take account of implementation progress across the Structure Plan area as a whole 8.4.5b It has been established, through Urban Housing Capacity Study work, that 90% of housing provision in Bristol to 2011 can be accommodated on brownfield sites, with the remaining 10% on greenfield sites 34. For the purposes of the Capacity Study, all of the land within the City Council boundary was classified as urban. Therefore by 302 CHAPTER 8

8.4.5c definition, housing provision in Bristol is consistent with the urban focus of the locational strategy set out in Policy 2 of the JRSP. In order that a sustainable pattern of housing provision is achieved (within the overall strategy), the suitability of proposals for major housing development 35 will be determined through the development control process. All such proposals will be assessed against the six criteria set out in Policy H3. 8.4.5d In order to give priority to housing on brownfield sites, and to achieve Bristol s 90% target for brownfield housing, an additional sequential approach test applies for major greenfield sites. Proposals for major housing development on a greenfield site will only be considered when the total capacity of previously-developed vacant land or buildings 36 in the city, that is suitable for major housing development, falls below 3500 dwellings. This mechanism is intended to ensure that: (a) (b) (c) Attention is focused on the development of brownfield land/buildings, suitable for housing, which has been vacant for a year or more; where there is considerable such capacity for housing (as is the case in 2002), then it is this capacity that should be developed first, and if the capacity of such sites starts to dry up, and drops below the pre-determined threshold, then major greenfield sites will be considered for release. 8.4.5e The proposed capacity threshold of 3500 is not arbitrary. It represents just over five years supply of housing that is required from major sites (666 dwellings per annum; Table 8.3, row 3 minus row 6). It is less than the 2002 capacity estimate of vacant brownfield land that is suitable for housing (4,118 dwellings), but is not at such an unrealistically low level that might artificially constrain housing land supply in the city. The City Council is committed to annual updates of urban housing capacity in conjunction with housing providers, that can help to ensure that brownfield and greenfield sources are clearly identified and are developed at the appropriate time. Sites identified for development 8.4.5 Sites proposed for housing development are identified in the schedule to this policy. There are some sites where there are particular issues relating to their open space value and/or where there are other land use allocations and these are indicated accordingly. 8.4.6 Within the city centre existing residential areas will be a focus for additional housing, through the allocation of specific sites and the exploitation of windfall opportunities (see Chapter 11: City Centre). 8.4.7 Most new housing development in the City Centre will be provided through mixed use schemes. involving other land uses. A number of sites are identified where such an approach is considered appropriate (see part 2 of the schedule) where in general the first priority in these locations will be to provide additional housing. Other uses will normally be supported where they enable physical or financial constraints to residential development to be overcome (see Chapter 11: City Centre). New Mixed use developments including housing should take CHAPTER 8 303

particular account of the need to protect residential amenity. will be assessed against the design criteria set out in Policy B8 8.4.8 It is also essential that opportunities are taken to revitalise the City, improve buildings and maximise the housing supply. This can be achieved by Renewal Schemes. Neighbourhood renewal schemes such as those established at Easton and St Agnes and St Werburghs require a comprehensive approach to regeneration. The need for refurbishment of older areas, the high numbers of sub-standard housing including PRCs (pre-reinforced concrete) and prefabs are all examples of the importance of renewal. Urban renewal projects likely to be considered in the near future are shown on the Proposals Map and listed in Appendix 1. Greenfield exception sites 8.4.8a The schedule to Policy H3 includes priority greenfield sites which will not be unnecessarily constrained by the sequential approach test. For these priority sites, housing development is intended to come forward to assist in the regeneration process, or is phased in conjunction with new public transport infrastructure. This is indicated in the wording of the policy, and is outlined in more detail below. 8.4.8b In the Hengrove Park/Hartcliffe Campus Regeneration Area, a major mixed use development is envisaged, including about 740 dwellings. This is an opportunity to accelerate housing development outside central and inner Bristol. It will help to arrest population decline and will provide a greater mix of housing in this part of South Bristol. The development will incorporate improvements in public transport in order to improve the accessibility of 8.4.8c the area. Overall, the regeneration benefits of the proposals are such that the site is proposed as an exception to the sequential approach test. In the Broadmead Regeneration Area, a major mixed use scheme including about 100 dwellings is proposed at Wine Street. This will involve the development of part of Castle Park (currently greenfield ). This development will reflect the historic urban grain of the area, before it was bombed in World War Two and subsequently laid out as open space. This scheme is an important part of the regeneration of the area and hence will not be subject to the sequential approach test. Phasing 8.4.8d The dynamic nature of land use change in a large and relatively prosperous city such as Bristol generates many brownfield windfall opportunities. As a consequence, the plan contains sizeable windfall allowances and only limited use of phasing. There are two greenfield sites (Bonnington Walk; Wallscourt Farm) which will only be released for housing development in conjunction with new public transport infrastructure. For these sites, both in Lockleaze, the implementation of Light Rapid Transit (LRT) Line 1 would make a significant difference in accessibility for an area with an above-average rate of unemployment, which is prioritised for regeneration in the Bristol Neighbourhood Renewal Strategy. The Bonnington Walk site is adjacent to a proposed new Lockleaze station, which would provide much-improved public transport access to major employment centres including the city centre and parts of the North Fringe of Bristol. The land identified at Wallscourt Farm is part of a larger site, most of which 304 CHAPTER 8

falls within South Gloucestershire. The land within the Bristol boundary is envisaged as a compact mixed-use edge-of-city development, served by a spur of LRT Line 1 routed to the UWE campus to the north-east. Proposals for the development of either of these sites in advance of the LRT infrastructure will be considered to be premature. But to help to ensure that these two sites are phased in conjunction with new public transport infrastructure, they would not be subject to the sequential approach test. Alderman Moore s allotment 8.4.8e The land at Alderman Moore s allotment at Ashton is adjacent to a potential Electric Railbus link to the City Centre, as shown on the Proposals Map. It is also adjacent to the Portishead rail corridor which was reopened for freight services in 2002, for which there is potential for the reintroduction of passenger services. The site is therefore well placed to take advantage of, and to contribute to, improved access to a range of destinations by public transport. It is proposed that this site will be released for housing development, as an exception to the sequential approach test, if: (a) either of the above public transport infrastructure improvements are implemented, or (b) proposals satisfactorily provide for, and financially contribute to, access to the Electric Railbus link and the Portishead rail corridor. Otherwise the Alderman Moore s site could come forward, like other major greenfield sites, subject to satisfying the sequential approach test. 8.4.8f Monitoring and information The rapid pattern of land use change in Bristol highlights the importance of monitoring, as the implementation of a sequential approach to housing provision depends on an up-to-date picture of brownfield opportunities. Bristol City Council intends to annually update estimates of the capacity of previously-developed vacant land/buildings, that are suitable for residential development in the city, to ensure the correct operation of Policy H3. 8.4.8g The sequential approach also requires a policy framework that takes account of economic change and realistic requirements for land, in determining applications for the change of use of land or buildings to housing. Monitoring shows that in the Central Area of Bristol, land or buildings once in business use has been the main source for recent residential development. For the sites where major residential development has taken place or has started in the 1996-2001 period (involving about 2000 dwellings in total): 29% of dwellings have been provided through the conversion of vacant office floorspace (58,400 sq m in total); 54% of dwellings have been accommodated on just over 9 ha of former business or industrial land, and The remaining 17% of dwellings have involved changes of use from miscellaneous non-business uses (less than 1.5 ha in total). 8.4.8h Despite these substantial losses of business land/premises, the number of jobs in the Bristol Central Area is higher CHAPTER 8 305