6.1 Different groups within our community, including families, older people, younger people, people with disabilities requiring more specialist accommodation and the Gypsy and Traveller community have differing accommodation needs. The policies within the Plan set out how a wide variety of high-quality homes, of all tenures, types and sizes, which meet the needs of our residents will be delivered.
6.2 The Borough’s accessible location, together with the diverse natural environment and prospering economy means the Borough offers a good quality of life. While this has many positive impacts, the desirability of Spelthorne as a place to live does have a negative impact on affordability. The policies within the Plan set out ambitious targets for meeting the needs of our residents who are not able to afford adequate housing on the open market.
H1: Homes for All Housing Need
Housing Mix and Standards
Accessible Homes
Specialist Accommodation
Self and Custom Build Housing
|
Definitions
6.3 Specialist Housing: Housing that has been specifically designed to meet the needs of people with particular requirements (including sheltered housing, supported housing, extra care housing and residential/nursing care homes). It can refer to housing that has been purpose designed or designated for a particular client group to assist tenants to live independently.
6.4 Self-Build and Custom Housebuilding: The building or completion by a) individuals,
b) associations of individuals, or c) persons working with or for individuals, of houses to be occupied as homes by those individuals; but does not include the building of a house on a plot acquired from a person who builds the house wholly or mainly to plans or specifications decided or offered by that person.
6.5 M4(2) Housing: Accessible and adaptable dwellings as set out in Building Regulations. Where a new dwelling makes reasonable provision for most people to access the dwelling and incorporates features that make it potentially suitable for a wide range of occupants, including older people, those with reduced mobility and some wheelchair users.
6.6 M4(3) Housing: Wheelchair user adaptable dwellings as set out in Building Regulations. Where a new dwelling makes reasonable provision, either at completion or at a point following completion, for a wheelchair user to live in the dwelling and use any associated private outdoor space, parking and communal facilities that may be provided for the use of the occupants.
Reasoned Justification
6.7 The Council wants to deliver a wide variety of high quality homes that provide all tenures, types and sizes of housing to meet the needs of the community. The Council will seek to enable housing delivery which meets the needs of different groups including families, older people, younger people, people with disabilities, people requiring more specialist accommodation, the Gypsy and Traveller community and Travelling Showpeople community. The Plan will also seek to make provision for self-build/custom build projects and starter homes.
Housing Need
6.8 In September 2017 the Government published a consultation document ‘Planning for the right homes in the right places’. This put forward a standard approach to assessing local housing need, in the interests of simplicity, speed and transparency. It is based on a formula that uses affordability ratios and average household growth over a 10 year period, with the current year being the first year from household projections. Planning Practice Guidance confirms that local authorities should use the 2014-based household projections to set the baseline. In the long term the Government proposes to review the formula with a view to establishing a new method.
6.9 Using the standardised methodology, Spelthorne has a need of 618 new dwellings per annum. The Government makes clear that local planning authorities should be able to rely on the evidence used to justify their local housing need for a period of two years from the date they submit their Plan.
Housing Mix and Size Requirements
6.10 The need for different types, sizes and tenures of homes required has been assessed through the Strategic Housing Market Assessment (SHMA) 2015 and SHMA update 2019. This includes accommodation needs of families, older people, people with disabilities, service families, people wishing to build their own homes and students. The Gypsy and Traveller Accommodation Assessment has assessed the need for traveller accommodation. The Council will have regard to the findings of the latest SHMA when determining the right balance of homes in new development and would encourage applicants to discuss housing mix with the Council’s Planning and Housing Officers.
6.11 The SHMA 2015 and SHMA update 2019 indicate that:
6.12 A flexible housing stock will help meet the wide range of accommodation needs so the Council will expect all new homes to be flexible, accessible, adaptable and age friendly. New homes should support the changing needs of individuals and families at different stages of life. Housing developments should help to meet the needs of all members of the community and in turn reduce inequalities. National Planning Policy requires local planning authorities to plan for a mix of housing, taking account of local demographic trends, market trends and the needs of different groups of the community. Local planning authorities should identify the size, type, tenure and range of housing that is required in their area.
6.13 The NPPF emphasises the importance of health and wellbeing and that LPAs should take account of current and future needs of the local population and identify the relevant barriers to improving health and well-being. Housing should be sustainably located with access to local services and transport links. Development proposals should facilitate healthy lifestyles and should help to achieve sustainable development and sustainable mixed communities.
6.14 The minimum size for a bedroom is defined by the Housing Act 1985. The Licensing and Management of Houses in Multiple Occupation and Other Houses (Miscellaneous Provisions) (England) Regulations 2006 require kitchens, bathrooms and WCs to be of adequate size. If there are no communal living areas, bedrooms need to be larger.
6.15 Build to rent involves the construction of dwellings specifically for the rental market, rather than the more traditional route in which developers build dwellings which they then sell, either to householders or to landlords. Build to rent schemes require long- term professional management to deal with the maintenance of the building and day- to-day issues. It provides an opportunity to boost the rate of overall housing delivery, as it does not compete directly with traditional housing which are built for sale. Build to rent housing can offer a range of benefits, making it a more attractive product than traditional private rented sector housing to developers, tenants, councils and stakeholders, as this sector has grown significantly over recent years while home ownership levels have declined. The Council supports the provision of Built to Rent homes where these are well-designed, where evidence is provided that high standards of management will be put in place, and where the benefits of such housing are balanced against the level of affordable housing provision. The need for Build to Rent housing should be demonstrated if this type of development is proposed. Any Build to Rent housing provision should be delivered in accordance with the Council’s latest guidance, policies and evidence.
Accessible Homes
6.16 The NPPF requires local planning authorities to have a clear understanding of housing needs in their area, including those for people with specific housing needs. Part M4(3) relates to wheelchair accessible dwellings; Part M4(3)(2)(a) relates to dwellings which can be adapted for wheelchair users in the future and M4(3)(2)(b) relates to dwellings which are built to be accessible to wheelchair users.
6.17 The intention of this approach will be to maximise the flexibility of new housing to accommodate a wider spectrum of housing needs. This will support the housing needs of older people but also those with specialist needs such as those who are disabled and wheelchair users, leading to positive impacts on health and well-being.
6.18 The National Building Regulations include specific nationally agreed construction standards (the M4(2) standard) which would deliver accessible and adaptable homes. However, as a national standard they are optional and depend partly on the viability of this aspect when considered with other requirements of the Local Plan. The Borough Council is therefore requiring that all dwellings must meet the M4(2) standard. Homes built to this standard are more flexible and readily adaptable as people’s needs change. They are suitable not just for the elderly but also for families with pushchair needs, or those with a temporary or permanent disability or health issue.
6.19 Where the specific requirements of Building Regulations may not be achievable, an element of flexibility is recognised as being required in the delivery of these standards. This may be due to, site specific challenges around topography, flood risk and/or the relationship to design. It is acknowledged that a significant proportion of the Borough is at risk to flooding, and that this could be a constraint to achieving this. Where developers demonstrate that the M4(2) or M4(3) requirements are not feasible to be delivered on viability grounds exemptions will be on a case by case basis on the clear evidence submitted at planning application stage, e.g. the topography of the site makes provision as a whole not feasible and impacts development viability significantly.
Specialist Accommodation
6.20 Some of the community require accommodation that caters for their specific needs. This is often for more vulnerable members of our society, such as the frail, elderly or those needing specialist social support, who would benefit from on-site support. To create inclusive communities, this type of accommodation should be located in accessible areas with links to public transport and local facilities. The Council will work with specialist providers and bodies, such as Surrey County Council, to identify and secure provision of suitable sites for specialist housing.
6.21 The Council is aware of companies and organisations specialising in the provision of innovative, well designed residential units which would not be compliant with the space standards. Whilst such units are smaller than ideally would be required, it is acknowledged that such products are designed to offer high quality living spaces to meet specific needs and demands.
6.22 To deliver sustainable communities means to support the needs of the current population and any future populations. Paragraph 60 of the NPPF states that the needs of groups with specific housing requirements should be addressed. Paragraph 62 continues: within this context, the type of housing needed for different groups in the community should be assessed and reflected in planning policies including, but not limited to older people, and people with disabilities. Paragraph 92 of the NPPF states that planning policies should ensure that developments create places that are safe, inclusive and accessible and which promote health and well-being, with a high standard of amenity for existing and future users and do not undermine the quality of life or community cohesion and resilience.
Self and Custom Build Housing
6.23 Self-Build or Custom-Build is defined through the National Planning Policy Framework as housing built by an individual, a group of individuals, or persons working with or for them, to be occupied by that individual. Such housing can be either market or affordable housing. It is seen to support the individual self-builder, or community group for the delivery of low cost sustainable housing on small scale infill or windfall sites, or as part of large-scale planned development, and will help in the delivery of a wide choice of high quality homes. Under section 1 of the Self Build and Custom Housebuilding Act 2015, local authorities are required to keep a register of those seeking to acquire serviced plots in the area for their own self-build and custom house building (which may or may not be meeting affordable housing need). They are also subject to duties under sections 2 and 2A of the Act to have regard to this and to give enough suitable development permissions to meet the identified demand.
Sustainability Appraisal Indicators
Monitoring Indicators
| Indicator | Target | Data source |
|---|---|---|
Permissions granted for different size and types of housing compared to the identified mix in the SHMA. |
To deliver the identified mix of housing sizes, types and numbers as set out in the latest Strategic Housing Market Assessment. |
Planning applications and appeals. |
Permissions granted for new or extended older persons’ specialist housing or general specialist housing. |
To meet the need identified in the latest Strategic Housing Market Assessment. |
Planning applications and appeals. |
Number of planning permissions for self-build or custom build housing. |
To meet the need as set out in the Self-build and Custom housebuilding register. |
Planning applications and appeals. |
Key Evidence
H2: Affordable Housing
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Definitions
6.24 Affordable housing is housing provided to those that are unable to meet their housing needs through the private sector. Government policy as set out in the NPPF defines affordable housing as affordable housing for rent, starter homes, discounted market sales housing, and other affordable routes to home ownership33 . To be affordable, the cost of housing must be low enough for eligible households to afford based on local incomes and house prices.
6.25 The Affordable Housing definition was amended to include First Homes in May 2021. First Homes are a specific kind of discounted market sale housing and should be considered to meet the definition of ‘affordable housing’ for planning purposes. Specifically, First Homes are discounted market sale units which: a) must be discounted by a minimum of 30% against the market value; b) are sold to a person or persons meeting the First Homes eligibility criteria (see below); c) on their first sale, will have a restriction registered on the title at HM Land Registry to ensure this discount (as a percentage of current market value) and certain other restrictions are passed on at each subsequent title transfer; and, d) after the discount has been applied, the first sale must be at a price no higher than £250,000 (or £420,000 in Greater London). First Homes are the government’s preferred discounted market tenure and should account for at least 25% of all affordable housing units delivered by developers through planning obligations. PPG 24 May 2021 Paragraph: 001 Reference ID: 70-001-20210524
Reasoned Justification
6.26 Spelthorne is a well-located Borough, situated immediately to the south of Heathrow Airport and adjacent to west London. The Borough offers a good quality of life with strong transport links to London. Whilst this has many positive impacts, the desirability of the location does mean that affordability is negatively affected.
6.27 The NPPF states that local authorities should assess the size, type and tenure of housing needed for different groups in the community, including those who require affordable housing, and should reflect this in policy. The importance of housing delivery is a central objective of the Local Plan since housing costs in the Borough and neighbouring areas, for purchase and for rent, are generally very high. The provision of affordable housing is necessary to ensure that housing is available to local people in priority housing need who are unable to afford adequate housing on the open market.
6.28 There is significant pressure on the affordability of housing in the Borough with median house prices being 12.66 times median workplace-based annual earnings34.
6.29 The SHMA update 2019 indicates that there is a need for 459 affordable homes in the Borough per annum over the plan period. While the affordable housing need identified in the SHMA is a considerable percentage of the overall housing need, it is not a like for like comparison and does not directly correlate, therefore it is recommended the Council seek as much affordable housing need as is viably possible. Consideration will be given to the latest affordable housing evidence and the Council will have due regard for the priority needs of the Borough, as set out in the Housing Register maintained by the Council.
6.30 The objective of this policy is therefore to provide a deliverable framework within which affordable housing can be secured from new development in the Borough in accordance with national planning policy and responding to local identified needs. It will help the Borough to bridge the gap between the supply of affordable housing and the identified housing need.
6.31 This arrangement will also contribute towards the creation of sustainable, inclusive and mixed communities and a wide choice of housing on new development sites. Developments that include an element of affordable housing will need to ensure that all groups of the community are given equal access to new or improved facilities and amenities. This includes, but is not limited to, playgrounds, open space or community infrastructure.
6.32 Given the level of local housing need, the Council will seek 30% of housing on qualifying sites to be affordable either by means of on-site provision, off-site provision or by a financial contribution and to be delivered as part of a mix of housing types and tenures as set out in Policy H1. This will ensure that the required housing mix is reflected across the whole development scheme as far as possible. Greenfield sites (including those formerly designated as Green Belt and released through the Local Plan) will be expected to deliver at least 50% affordable housing. This requirement is based on the Spelthorne Viability Assessment evidence which confirms the feasibility of providing a higher level of affordable housing on greenfield sites.
6.33 National policy and guidance set out that the role for viability assessment is primarily at the plan making stage. Policies should be realistic and for affordable housing, required levels should be set as to take account of affordable housing and infrastructure needs and allows for the planned types of sites and development to be deliverable, without the need for further viability assessment at the decision-making stage. Given the viability assessment work undertaken at the plan making stage, all development will be expected to be policy compliant. It is up to the applicant to demonstrate whether particular circumstances justify the need for a viability assessment at the application stage.
6.34 If the Council determines that the full on-site affordable housing delivery cannot be made at the time of the decision, the Council will require a review mechanism by way of a planning obligation, to assess if circumstances have improved to increase the provision to the full policy compliant amount. This is more likely to be appropriate on larger or phased developments.
6.35 In instances where development viability is an issue, developers will need to submit sufficiently detailed viability evidence which will be reviewed by the Council and a third party35. To allow this analysis to take place in an open and transparent manner a viability report, completed using a recognised toolkit3636, should be provided as part of pre-application discussions or the application submission with the data and information available in an open book format. The assessment should clearly outline the maximum number of affordable dwellings which can be achieved on site. Costs associated with the assessment and third-party review should be met by the developer.
6.36 The Council aims to secure the delivery of affordable housing on-site or where it can be demonstrated that it is not viable or feasible to provide any affordable housing on- site, the Council will consider accepting off-site provision and/or financial contributions in lieu of on-site provision.
6.37 Given the viability work in preparation of the Local Plan, it is considered that the 30% affordable housing contribution and tenure splits in Policy H2 are viable and realistic in most development locations in the Borough. It is, however, recognised that there may be sites where on-site provision would not be viable or would be impractical (due to its size or location), therefore financial contributions in lieu may be accepted. Any relaxation in the provision of affordable housing must be the minimum to make the scheme viable. The applicant will be expected to provide a viable amount of affordable housing on-site with the rest provided via financial contribution. This payment is expected to be of broadly equivalent value relative to on-site provision.
6.38 The National Planning Policy Framework states that affordable housing on build to rent schemes should be provided by default in the form of affordable private rent, a class of affordable housing specifically designed for build to rent. Affordable private rent and private market rent units within a development should be managed collectively by a single build to rent landlord. The benchmark for the level of affordable private rent homes to be provided should be in line with national policy and guidance until such a time that the Council sets its own benchmark level based on local evidence, strategies and guidance.
6.39 Any claims that a site cannot be developed viably with an affordable housing contribution must be justified with clear and robust evidence which stands up to scrutiny and independent review (which must be carried out at the expense of the applicant).
6.40 Evidence in the SHMA update 2019 indicates that single key workers are likely to require social rental accommodation or support from Local Housing Allowance in order to get a home of their own.
6.41 Planning obligations will be used to ensure that the affordable housing will remain as such in perpetuity, where practicable.
Sustainability Appraisal Indicators
Monitoring Indicators
| Indicator | Target | Data source |
|---|---|---|
Number of affordable units (net) approved and delivered each year by tenure and type |
Achieve mix set out in the SHMA. Over the lifetime of the Plan achieve 30% of dwellings to be affordable. |
Planning applications and appeals |
Percentage of all new affordable homes that are for rent |
75% |
Planning applications and appeals |
Value and allocation of contributions to secure delivery of affordable housing each year |
To ensure that contributions are spent to secure the delivery of affordable housing. |
In house monitoring |
Where a review mechanism is triggered, it is implemented and the number of extra homes delivered, or cash in lieu secured, is recorded. |
Extra homes delivered of contribution in lieu. |
In house monitoring |
H3: Meeting the needs of Gypsy, Traveller and Travelling Showpeople
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Definitions
6.42 For the purposes of this planning policy, ‘Travellers’ means ‘Gypsies and Travellers’
and ‘Travelling Showpeople’ as defined below.
6.43 For the purposes of this planning policy, ‘pitch’ means a pitch on a ‘Gypsy and Traveller’ site and ‘plot’ means a pitch on a ‘Travelling Showpeople’ site (often called a ‘yard’). This terminology differentiates between residential pitches for ‘Gypsies and Travellers’ and mixed-use plots for ‘Travelling Showpeople’, which may/will need to incorporate space or to be split to allow for the storage of equipment.
6.44 A pitch is an area normally occupied by one household, which typically contains enough space for one or two caravans but can vary in size. A site is a collection of pitches which form a development exclusively for Gypsies and Travellers. For Travelling Showpeople, the most common descriptions used are a plot for the space occupied by one household and a yard for a collection of plots which are typically exclusively occupied by Travelling Showpeople.
Reasoned Justification
6.45 National planning policy for Gypsy, Traveller and Travelling Showpeople is set out in the National Planning Policy Framework and Planning Policy for Traveller Sites and the Council will expect all new sites to meet the requirements of national policy. New pitches and plots should have adequate utility services and amenity space, safe turning space and parking and be in areas with reasonable access to schools, health services and local services. Travelling Showpeople sites may also need space for related business storage.
6.46 The Planning Policy for Traveller Sites (PPTS) requires local planning authorities to identify and update annually a supply of specific deliverable sites sufficient to provide five years’ worth of sites against their own, locally-set targets. The Council published a Gypsy, Traveller and Travelling Showpeople Accommodation Assessment (GTAA) in 2018 which has identified the need for Traveller pitches and Travelling Showpeople plots in the Borough over the Plan period. The Housing Act 2004 requires local authorities to take account of the needs of travelling people and to create strategies to meet those needs. National policy requires local planning authorities to identify and if necessary, allocate sufficient sites to meet the needs of these groups within their local plans.
6.47 Households who do not travel fall outside the planning definition of a Traveller. However Romany Gypsies, Irish and Scottish Travellers may be able to claim a right to culturally appropriate accommodation under the Equality Act (2010). In addition, provisions set out in the Housing and Planning Act (2016) now include a duty (under Section 8 of the 1985 Housing Act that covers the requirement for a periodical review of housing needs) for local authorities to consider the needs of people residing in or resorting to their district with respect to the provision of sites on which caravans can be stationed.
6.48 The Council recognises the value of closer working relations with the local Traveller community. Often a socially excluded group, the community has a significantly lower life expectancy, lower educational attainment, and strikingly, a Gypsy and Traveller child is three times more likely to be taken into care than a child from the settled community37. The Council recognises the contribution that decent permanent culturally suitable accommodation can have to the overall wellbeing of Traveller families.
6.49 Gypsy and Traveller sites can either be publicly or privately owned residential sites. Pitches on public sites can be obtained through signing up to a waiting list, and the costs of running the sites are met from the rent paid by the licensees (similar to social housing). The alternative to public residential sites are private residential sites and yards for Gypsies, Travellers and Travelling Showpeople. These result from individuals or families buying areas of land and then obtaining planning permission to live on them. Households can also rent pitches on existing private sites. Therefore, these two forms of accommodation are the equivalent to private ownership and renting for those who live in bricks and mortar housing. Generally, the majority of Travelling Showpeople yards are privately owned and managed.
Monitoring Indicators
| Indicator | Target | Data source |
|---|---|---|
Number of pitches or plots granted planning permission for Gypsy, Traveller and Travelling Showpeople measured against the targets set out in this policy or, if applicable, an updated accommodation assessment. |
To meet the need for Gypsy, Traveller and Travelling Showpeople accommodation as set out in this policy, or the latest Traveller Accommodation Assessment or any document which replaces this. |
Planning applications and appeals. |
26 As calculated using the standard method for assessing housing need, 2021. The Council will review the local housing need figure as and when appropriate, guided by the Government's approach to assessing housing need
27 Or any future updated evidence produced or commission by the Council on housing need or Government Guidance
28 Definitions of C2 and C3 use classes are available from the Planning Portal
29 or subsequent affordable housing needs evidence (as previous) commissions or produced by the council
30 Site suitability will be dependent upon compliance with policies in the Local Plan.
31 or subsequent affordable housing needs evidence (as previous) commissions or produced by the council
32First Homes PG: Reference ID: 70-001-20210524
33 NPPF 2021, Annex 2: Glossary, 'Affordable Housing': https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/1005759/NPPF_July_2021.pdf
34 ONS, 2022. House price to workplace-based earnings ratio 2021.
35 Planning Practice Guidance Paragraph: 009, Reference ID: 10-009-20190509
34 A recognised toolkit such as HCA Developers Appraisal Toolkit or the Communities Agency Economic Appraisal Toolkit. https://www.gov.uk/government/publications/development-appraisal-tool
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