4.1 The Strategy Section of the Plan outlines the housing land requirements set out in the approved Humberside Structure Plan Alteration No 1 . That document, which was approved by the Secretary of State for the Environment in March 1993, states that 10,500 additional new dwellings will be needed to accommodate projected population changes within East Yorkshire from 1989 to 2006. This calculation reflects not only a likely increase in population but also changes in household size and structure in line with the national trend towards smaller household sizes.
4.2 At the time the Structure Plan was reviewed a proposal was being actively pursued to create a marina to the south of Bridlington. The Bridlington Bay project was to include a major residential component, and the Structure Plan Alteration No. 1 includes provision for up to 2,500 additional dwellings to be built. This housing was to be additional to the Borough housing requirement for 10,500 new dwellings. The proposals in this Local Plan do not seek to implement the housing element of the Bridlington Bay project but identity the site (BRIDl7) as suitable for major tourism/leisure development.
4.3 At the time of approval of the Structure Plan Alteration No 1, the preliminary results of the 1991 Census were not sufficiently refined to provide a confident base for population or household projections . In approving the Plan, the Secretary of State acknowledged that the publication of detailed Census data could necessitate changes to the proposed housing figures but that these changes should only be effected through review of the Structure Plan. Until such a review is complete, local planning authorities, including East Yorkshire, are advised to take a cautious approach towards housing land allocations, particularly in the later years of the Plan period.
4.4 The Structure Plan Alteration No 1 covers the time period from mid 1989 to mid 2006. The Borough Wide Local Plan is intended to cover the period from mid 1993 to mid 2004, the housing need figure is therefore reduced on a pro-rata basis to 9265. New housing completions between mid 1989 and mid 1993 have already provided 2,210 new dwellings in the Borough, suggesting a need for a further 7,055 dwellings up to 2004.
4.5 To assist in determining the distribution of housing land allocations, Policies S3, S4, S5, S6 and S13 of the Structure Plan define a hierarchy of settlements. In East Yorkshire, the hierarchy is fourfold: urban centres and selected settlements, which are specifically identified, and non-selected settlements and open countryside, which should be identified through Local Plans. The roles of each settlement and amount of land allocations may differ dependent on their size. For all settlements, other than those regarded as being in the open countryside, the Local Plan defines development limits to guide new development. Supportive text describes the status of the settlement and important features which would influence the considerationof development proposals.
4.5.1 Urban Centres
Bridlington; Pocklington; Driffield; Market Weighton.
These are medium-sized towns which provide a range of services for both the resident population and that of the surrounding rural area. These services include employment opportunities, education and health facilities . The bulk of residential land allocations will be concentrated in these centres. In allocating areas of land for development, however, there is a need to try and protect the best agricultural land and to keep a relatively compact form to the towns.
4.5.2 Selected Settlements
Barmby Moor; Melbourne; Beeford; Middleton on the Wolds; Bempton; Nafferton; Fangfoss; Skipsea; Flamborough; Stamford Bridge; Hutton Cranswick; Wetwang; Kilham; Wilberfoss.
The role of these settlements is to complement the urban centres in meeting the housing needs of the area. Usually a reasonable amount of land is available for residential development which is compatible with the size and character of the village. These villages normally provide a local level of community services including shops and a primary school and, in certain circumstances, there may be scope for some small scale industry or commercial allocations to be made.
4.5.3 Non-Selected Settlements
Allerthorpe; Lissett; Bainton; Little Driffield; Barmston; Londesborough; Bielby; Low Catton; Bishop Wilton; Meltonby; Bofton; Millington; Boynton; Newton upon Derwent; Buckton; North Dalton; Bugthorpe; North Frodingham; Burnby; Nunburnholme; Burton Agnes; Rudston; Burton Fleming; Ruston Parva; Camaby; Sancton; East Cottingwith; Seaton Ross; Everingham; Sewerby; Fimber; Shiptonthorpe; Foston on the Wolds; Skerne; Fridaythorpe; Skirpenbeck; Full Sutton; Sledmere; Garton on the Wolds; Sutton upon Derwent; Goodmanham; Thornton; Great Kelk; Thwing; Grindate; Tibthorpe; Harpham; Ulrome; Hayton; Wansford; High Catton; Warter; Huggate; Watton; Kirkbum; Wold Newton; Langtott; Yapham.
New housing development in the non-selected settlements will be restricted by physical and environmental constraints, lack of services or the fact that other nearby villages are more suited to residential development. The rural character of these villages is important and, therefore, in trying to maintain this, future residential development will normally be limited to infill only. In exceptional cases, local site specific allocations have been made within the terms of Structure Plan Policy S6.
4.5.4 Open Countryside
Bessingby; Little Kelk; Brigham; Lowthorpe; Cottam; North Cliffe; Fordon; Painsthorpe; Fraisthorpe; Skipsea; Brough; Gembling; Southbum; Gowthorpe; South Cliffe; Gransmoor; Spittal; Great Givendale; Storwood; Haisthorpe; Thomholme; Harswell; Thorpe le Street; Kirby; Underdale; Uncleby; Little Givendale; Youtthorpe.
Settlements vary in size and some are little more than farm hamlets. Development of these small settlements would be inappropriate except to meet agricultural needs. A number of factors have been considered in determining whether to regard a settlement as being within the open countryside in planning policy terms. Principle among these has been the extent to which agriculture buildings outnumber existing houses, the size and character of the settlement, its relationship to nearby settlements and the ability to accommodate infill development. No village development limits have been prepared for the above settlements.
4.6 The aim of the Plan is to ensure that housing needs can be met and, accordingly, land has been allocated taking account of the above hierarchy which, if developed at the generally accepted average density of 25 dwellings per hectare, would provide sufficient new housing land. In addition to these specific allocations plan policies provide a positive basis for the development of additional dwellings, either through the redevelopment of unidentified sites or through the conversion of existing properties.
4.7 The Borough is large and diverse and the housing market is subject to the influence of population centres outside the Borough. In particular, York, Beverley and Hull create pressures due to the ease of commuting to work or to the main retail centres. The aim of past planning policies has consistently been to encourage greater self-sufficiency within the main towns by ensuring that retail and employment provision was capable of serving local needs. As development has taken place, three distinct Housing Market Areas have been recognised which can be defined by population distribution and growth, travel to work patterns, building completions and planning policies.
4.8 Government guidance in PPG3 - "Housing", advocates the preparation of joint housing studies to identity a suitable supply of available land for housing development. Since 1985, the Borough Council has prepared regular Joint Housing Studies in association with the County Council and representatives of the house building industry. These studies have always acknowledged the existence of the three specific Housing Market Areas of Bridlington, Driffield and Pocklington and have sought to identity a suitable distribution of housing land according to the role of each area.
4.9 Although there have been some changes since the Market Areas were originally defined, none have been so significant to warrant alteration of the boundaries of each area. The boundaries of the Housing Market Areas are indicated in Figure 1. The need to reflect Government advice to reduce the need for travel and to conserve resources lends weight to the principle of directing development towards those locations capable of supporting it without resulting in loss of character. This principle supports the allocation of land in the four urban centres and 14 selected settlements but, in making allocations, the particular characteristics of individual settlements and their setting within the countryside needs to be taken into account.
4.10 Environmental constraints recognised in the preparation of the Pocklington and Westem Parishes Local Plan suggest a need to slow down the rate of growth in the Pocklington Area where development pressure in recent years has threatened the character of the settlements and the importance of the Derwent valley. Additionally, given the general small size of the settlements and the limited afternatives to car usage, further development will inevitably result in commuting to the larger population centres.
4.11 Market pressure has been less marked in the Bridlington and Driffield Market Areas but many of the settlements within these areas are better situated to accommodate development in a manner which is more likely to achieve the national objective of increasing energy efficiency and reducing vehicle emissions. Allocations have therefore been made which will enable market demand to be satisfied within the context of these objectives.
4.12 A Joint Housing Study begun in 1993 and completed immediately prior to the Deposit of the Local Plan has been used to examine housing land supply and to assess the suitability of Local Plan allocations for the longer term. Again the 3 distinct Housing Market Areas have been recognised and agreement has been reached on a suitable 5 year supply of housing land from mid 1993.
4.13 Housing land supply and the level of agreement reached through the Joint Housing Study can be described according to both the Structure Plan requirement to 2004 and the S year requirement. A summary of this supply is set out in Table 1 . Tables 2a and 2b indicate how this supply is distributed between the 3 Market Areas. Appendix 8 to the Plan explains the assumptions used in calculating the anticipated contribution from windfall sites, conversions and infill development in the non-selected settlements. These assumptions relate directly to the implementation of proposals through Policies H1, H2, H7 and H10 of the Plan.
4.14 Clear agreement has been reached on the adequacy of the 5 year supply. Changes made to the Local Plan in response to representations received at the Consultation Draft stage have not been considered through the Joint Housing Study and as such there is no agreement in place on the longer term housing land supply. The Borough Council considers, however, that notwithstanding the views of the housebuilders' representatives regarding market performance on particular sites, the assumptions used in calculating land supply are sound and will provide sufficient flexibility to take account of market fluctuations and will enable market demand to be satisfied in an acceptable manner. Additionally, if the housebuilders' representatives concern s regarding the marketability of sites which do not currently form part of the agreed supply can be addressed , then these sites will provide further flexibility beyond that set out in Table 1.
4.15 The following objectives have guided the allocation of land and the preparation of planning policies:
OBJECTIVES
1.TO IDENTIFY AN ADEQUATE SUPPLY AND CHOICE OF LAND FOR HOUSING TO EN SURE THAT THE BOROUGH RETAINS ITS ATTRACTION FOR NEW INVESTMENT.
2.TO ENSURE THAT THE HOUSING NEEDS OF THE BOROUGH ARE MET THROUGH AN APPROPRIATE CHOICE OF HOUSING IN A VARIETY OF LOCATIONS.
3.TO MEET THE SPECIFIC NEEDS OF GROUPS WHO ARE LESS ABLE TO PARTICIPATE IN THE HOUSING MARKET.
POLICY H1 - HOUSING LAND PROVISION
SUFFICIENT HOUSING LAND WILL BE RELEASED THROUGH LAND ALLOCATIONS AND PLAN POLICIES TO ACCOMMODATE APPROXIMATELY 7,055 NEW DWELLINGS WITHIN THE PERIOD MID 1993 TO MID 2004.
TO CONTRIBUTE TOWARDS THIS PROVISION, PROPOSALS WILL BE PERMITTED ON THE FOLLOWING SITES SUBJECT TO MEETING THE DETAILED REOUIREMENTS OF THE PLAN:
BRID5 NORTH OF MARTONGATE, BRIDLINGTON 6.7 ha
BRID6 NORTH OF CADMAN LANE, BRIDLINGTON 4.5 ha
BRID7 WEST OF AIREDALE DRIVE, BRIDLINGTON 6.0 ha
BRID8 EAST OF BEMPTON LANE, BRIDLINGTON 8.1 ha
BRID9 WEST OF BEMPTON LANE, BRIDLINGTON 5.3 ha
BRIDl0 NORTH OF EASTON ROAD, BRIDLINGTON 17.6 ha
BEM1 FLAMBOROUGH ROAD, BEMPTON 1.0 ha
BEM2 BACK LANE, BEMPTON 0.8 ha
BEM3 WHITE WALLS, BEMPTON 1.5 ha
BEM4 SOUTH OF CLARKE CRESCENT, BEMPTON 0.8 ha
FLAM1 WOODCOCK ROAD, FLAMBOROUGH 1.9 ha
FLAM2 MERESIDE, FLAMBOROUGH 0.8 ha
FLAM3 HARTENDALE FARM, FLAMBOROUGH 0.4 ha
SKIP1 HORNSEA ROAD, SKIPSEA 0.8 ha
SKIP2 CLEETON LANE, SKIPSEA 2.3 ha
DRIFF2 YORK ROAD, DRIFFIELD 1.2 ha
DRIFF3 EAST OF NEW WALK/THE CHASE, DRIFFIELD 9.0 ha
DRIFF4 BRIDLINGTON ROAD, DRIFFIELD 0.1 ha
DRIFF5 FIELD HOUSE FARM, DRIFFIELD 1.8 ha
DRIFF6 MEADOW ROAD, DRIFFIELD 9.1 ha
BEE1 PIGGERY, MAIN STREET, BEEFORD 0.8 ha
BEE2 MAIN STREET, BEEFORD 0.9 ha
HUTT1 CHURCHILL AVENUE, CRANSWICK 1.1 ha
HUTT2 EAST OF SOUTHGATE, CRANSWICK 2.5 ha
KIL1 WEST END, KILHAM 0.7 ha
KIL2 SOUTH SIDE, KILHAM 0.5 ha
MID1 MANOR FARM, MIDDLETON 0.3 ha
MID2 STATION ROAD, MIDDLETON 4.2 ha
MID3 FORMER PIT, FRONT STREET, MIDDLETON 0.5 ha
MID4 WEST OF BEVERLEY ROAD, MIDDLETON 0.7 ha
NAFF1 NORTH STREET, NAFFERTON 0.3 ha
NAFF2 LOWTHORPE LANE, NAFFERTON 2.0 ha
NAFF3 WEST END FALLS, NAFFERTON 3.4 ha
WET1 MAIN STREET, WETWANG 0.3 ha
WET2 MANOR FARM, WETWANG 0.6 ha
WET3 WALNUT TREE FARM, WETWANG 0.6 ha
MARK4 SOUTHGATE, MARKET WEIGHTON 0.4 ha
MARK5 SOUTH OF MARKET PLACE, MARKET WEIGHTON 1.0 ha
MARK6 WESTFIELD CRESCENT, MARKET WEIGHTON 0.4 ha
MARK7 HALL ROAD, MARKET WEIGHTON 0.6 ha
MARK8 BEVERLEY ROAD, MARKET WEIGHTON 3.6 ha
MARK9 EAST OF CLIFFE ROAD, MARKET WEIGHTON 1.9 ha
MARK10 WEST OF CLIFFE ROAD, MARKET WEIGHTON 12.5 ha
MARK11 HOLME ROAD, MARKET WEIGHTON 8.5 ha
MARK12 SOUTH OF HOLME ROAD, MARKET WEIGHTON 3.3 ha
POCK1 THE BALK, POCKLINGTON 14.6 ha
POCK2 NORTH OF THE BALK, POCKLINGTON 2.6 ha
POCK3 SCRAPYARD, CEMETERY LANE, POCKLINGTON 0.2 ha
POCK4 DEPOT SITE, CEMETERY LANE, POCKLINGTON 0.7 ha
BAR7 EAST OF BACK LANE, BARMBY MOOR 0.7 ha
BAR2 BACK LANE, BARMBY MOOR 1.0 ha
BAR3 SOUTH OF 81246, BARMBY MOOR 0.2 ha
BAR4 BRIARSFIELD, BARMBY MOOR 0.6 ha
BAR5 HOLBORN FARM, BARMBY MOOR 0.5 ha
FANG1 NORTH OF WEST VIEW, FANGFOSS 0.6 ha
STAM1 MOOR ROAD, STAMFORD BRIDGE 3.4 ha
WILB1 WEST OF BUTTS LANE, WILBERFOSS 1.8 ha
WILB2 EAST OF BUTTS LANE, WILBERFOSS 1.0 ha
WILB3 MOORFIELD WAY, WILBERFOSS 1.8 ha
WILB4 STORKING LANE, WILBERFOSS 0.9 ha
Total: 171.9 ha
Justification
4.16 The above land allocations are set out in Part II of the Plan which details site specific requirements in order that development can proceed in a suitable manner.
4.17 In addition to these allocated sites in the larger settlements, additional development can be expected through the implementation of other Plan policies for the conversion of properties (Policies H7 and H8), the redevelopment of sites (Policies H2 and H10) or the infilling of gaps (Policy H2). Appendix 8 explains the contribution towards housing provision that may be expected.
4.18 A limited number of non-selected settlements include specific allocations but, in the main, their contribution will be by way of infill development through Policy H2.
4.19 In the Driffield Area, the Alamein Barracks site provides potential for conversions to residential use or bringing vacant properties back into use (Policies KELL4 and KELL5). Whilst this could make a significant contribution to housing land supply, there are uncertainties about the release of land and the site cannot be relied upon to meet identified housing need.
4.20 In line with PPG3 - "Housing", and PPGt 2 - "Development Plans and Regional Planning Guidance", the Borough Council will continue to monitor the housing land situation to ensure that a five year supply of land is available . If a shortfall or other marked change in the supply of land arises, this may point towards a need for review of the Plan in advance of the intended five yearly review period, or may necessitate the use of planning conditions to phase the release of land for development.
PROPOSALS FOR RESIDENTIAL DEVELOPMENT WITHIN DEVELOPMENT LIMITS WILL BE PERMITTED WHERE THEY ARE OF A SCALE, CHARACTER AND DENSITY APPROPRIATE TO THE SURROUNDING AREA AND WILL NOT PREJUDICE, OR CONFLICT WITH, THE IMPLEMENTATION OF ALLOCATIONS MADE ON ADJOINING LAND.
PROPOSALS OUTSIDE DEVELOPMENT LIMITS WILL ONLY BE PERMITTED WITHIN THE TERMS OF POLICIES H3, H4, H6, H7, H9, H10, KELL4, AND KELLS.
Justification
4.21 Development limits have been defined primarily to provide guidance as to where residential development could take place within the Plan period, so as to avoid the sporadic development of housing in the open countryside and to control the rate of housing growth.
4.22 Development limits have only been defined for settlements where there is potential for further development without giving rise to an unsatisfactory pattern of land uses. Outside development limits proposals will need to satisfy policies for development in the open countryside.
4.23 For the main towns, the defined limits indicate the outer limits of all development other than sites used for appropriate countryside uses such as recreation.
4.24 In the selected and non-selected settlements, development limits have been defined to identify the "main body" of the village where further residential development may be appropriate. In many of the smaller villages, this approach has resulted in the exclusion of large parts of the village. This is not to diminish the contribution which such areas make to the village character but to recognise that development within these areas would not be appropriate within the plan period. In some instances, the exclusion of parts of the village will provide further protection to the character of these areas.
4.25 Within the confines of a development limit applications for development will be subject to consideration of the contribution which the particular site makes to the character of the settlement and the likely effect of the development proposed.
4.26 The inclusion of a site within a development limit is no guarantee that planning permission for development will be granted.
4.27 Given the considerable variety in the character of settlements across the Borough, there is no single convention which can be applied to the definition of development limits. In most cases, development limits have been drawn to follow specific plot boundaries or landscape features. In other cases, this approach could have given a misleading impression and notional boundaries have had to be drawn to relate more appropriately to what the spirit and purpose of policies applying in the particular settlement would allow. This is particularly the case in many non-selected settlements with buildings situated in large grounds with irregular frontages to the road where a notional boundary at a fixed distance from the road. frontage has been drawn. Development limits are intended to indicate where built development can occur, but not to be a rigid limit with regard to garden areas or landscaped grounds which will, with appropriate safeguards, be permitted beyond development limits where this would not give rise to objections under policy EN2, or other policies in the Local Plan.
4.28 To achieve consistency when defining development limits, the following principles have been generally adopted:
Included Within Development Limits
1. Existing residential development clearly forming part of the main body of the village.
2. School buildings where they form part of the main body of the village.
3. Sites with a current planning permission for residential use.
Excluded from Development Limits
1. Residential development not forming part of the main body of the village or where additional development would not be encouraged within the plan period.
2. Playing fields including public, private and school playing field.
3. Church yards and cemeteries.
4. Farm units.
5. Employment uses.
6. Allotments.
7. Open areas essential to the character of the settlement or where development would be inappropriate.
H3 - NEW DWELLINGS IN THE OPEN COUNTRYSIDE
WITH THE EXCEPTION OF PROPOSALS ACCEPTABLE WITHIN THE TERMS OF POLICIES H4, H6, H7, H9, H10, KELL4 AND KELLS, NEW RESIDENTIAL DEVELOPMENT IN THE OPEN COUNTRYSIDE WILL ONLY BE PERMITTED WHERE IT IS ESSENTIAL FOR THE PURPOSES OF AGRICULTURE, HORTICULTURE OR FORESTRY OR FOR THE ESSENTIAL SUPERVISION OF EXISTING COUNTRYSIDE ACTIVITIES. WHERE THE DEVELOPMENT IS PROPOSED TO SUPPORT A NEW AGRICULTURAL ENTERPRISE, PLANNING CONDITIONS WILL PREVENT OCCUPATION OF THE DWELLING IN ADVANCE OF CONSTRUCTION OF THE UNIT.
IN ALL CASES, PROPOSALS SHOULD SATISFY RELEVANT ENVIRONMENTAL POLICIES OF THE PLAN.
Justification
4.29 Adequate provision is made for new residential development within existing settlements to avoid the need for sporadic development in the open countryside. Such development, unless sufficiently linked to the rural economy, does little to sustain rural services and can seriously affect the visual quality of the countryside. It makes unnecessary use of agricultural land and is inefficient in terms of services, infrastructure provision and land use patterns.
4.30 Exceptions can be made where there is a proven need for a dwelling to support an agricultural, horticulture or forestry enterprise. A full definition of these terms is provided in Appendix 2. Stud farms are considered to be within this definition. The Policy will also permit the erection of a dwelling where it is essential for the supervision of existing countryside activities. To quality for this exception, the activity should be already established and one which is acceptable under other policies in the Local Plan. This could include tourism and recreation activities, in addition to other forms of rural enterprise.
4.31 In considering proposals for isolated development in the countryside the Borough Council will have regard to the functional requirements, both existing and proposed, of the farm enterprise and will consider the financial viability of the enterprise. Where the functional requirement is not conclusive, PPG7 - "The Countryside and The Rural Economy", provides more detailed information on the scope and content of supportive information . The intention is to avoid the unnecessary proliferation of buildings in the open countryside and to ensure that where they exist or are permitted, they remain available to meet the needs of farming and forestry workers generally within the Borough and not a specific farm. It is important, therefore, that new housing is related in scale and type to the needs of farm workers generally.
4.32 Occupancy conditions will be imposed on any planning permission to ensure that dwellings do not become part of the general housing supply and will not be removed unless it is clearly demonstrated that the property no longer has a role to play in supporting the rural economy and there is clear evidence of attempts to market the property at a price which reflects the occupancy condition.
H4 - REPLACEMENT DWELLINGS IN THE OPEN COUNTRYSIDE
PROPOSALS FOR THE REPLACEMENT OF AN EXISTING DWELLING IN THE OPEN COUNTRYSIDE WILL BE PERMITTED WHERE THEY FORM PART OF A GROUP OF HOUSES. ELSEWHERE PROPOSALS WILL ONLY BE PERMITTED WHERE THE PREVIOUS RESIDENTIAL USE HAS NOT BEEN ABANDONED.
IN ALL CASES, PROPOSALS WILL ONLY BE ACCEPTABLE WHERE THEY ARE OF A SIMILAR SIZE TO THE EXISTING DWELLING TO BE REPLACED AND WILL BE OF A DESIGN AND CHARACTER TO REFLECT THE SURROUNDING AREA.
Justification
4.33 Development limits have been defined to indicate an appropriate supply of housing land within the plan period. As such, they may exclude some parts of villages which, in subsequent plan reviews, may be included. Additionally, a number of small hamlets have been defined as open countryside rather than non-selected settlements. Proposals for the replacement of existing dwellings in these locations would normally be acceptable subject to consideration of their siting and design.
4.34 In other circumstances, sporadic housing development remote from local services would be inefficient and could harm the appearance of the countryside. In these cases, the Council will need to be satisfied that residential use of the existing building has not been abandoned and that replacement proposals will incorporate measures to reduce their impact on the landscape.
4.35 The affordability of housing is a major factor in the operation of the housing market and is an important consideration in preparing policies which will guide the development of communities into the next century. In certain areas, house prices may be forced beyond the reach of local people or young families by an influx of people who can afford to spend more but contribute less to the local economy.
4.36 To avoid extreme situations occurring, the Local Planning Authority will, in considering proposals for residential development, encourage the provision of a range of house types which should increase the likelihood of achieving balanced communities and give greater certainty to those wishing to invest in the area. Through planning decisions, the Borough Council will be concerned to ensure that the housing market provides opportunities for all sections of the community.
4.37 Government guidance set out in PPG3 - "Housing", recognises that there may be circumstances where affordability of housing is a major constraint to those wishing to be part of the housing market. This can prejudice the development of balanced communities which are essential for sustainable growth. Where evidence clearly demonstrates this to be the case, planning policies can be used to encourage developers of new housing sites to provide more affordable accommodation. Usually this would involve the participation of a Housing Association or other social body to ensure that housing is provided, managed and remains available to meet the identified need. Other measures could be through a requirement for higher density development which would tend to provide smaller accommodation as starter homes on the open market.
4.38 In the rural areas, PPG3 - "Housing", acknowledges that there are likely to be fewer opportunities to encourage provision within the above terms. Policy S7A of the Humberside Structure Plan Alteration No 1 provides a framework for considering proposals on unallocated sites in the rural areas, if necessary, outside of defined development limits.
4.39 The following policies set out more specific guidance on the provision of affordable housing.
POLICY HS - AFFORDABLE HOUSING
WHERE A LOCAL NEED FOR AFFORDABLE HOUSING HAS BEEN DEMONSTRATED , THE COUNCIL WILL NEGOTIATE THE PROVISION OF AN APPROPRIATE ELEMENT OF AFFORDABLE HOUSING IN SETTLEMENTS WITH A POPULATION OF 3000 OR FEWER ON DEVELOPMENTS 0F25 OR MORE DWELLINGS OR TO ANY RESIDENTIAL SITE OF 1 OR MORE HECTARES IRRESPECTIVE OF THE NUMBER OF DWELLINGS, AND ELSEWHERE TO DEVELOPMENTS OF 40 OR MORE DWELLINGS OR RESIDENTIAL SITES OF 1.5 HECTARES OR MORE.
THE APPROPRIATE ELEMENT OF AFFORDABLE HOUSING ON EACH SITE WILL BE NEGOTIATED IN THE LIGHT OF THE HOUSING NEEDS OF THE AREA AND OF OTHER MATERIAL PLANNING, MARKET AND SITE CONDITIONS.
THE AFFORDABILITY OF SUCH HOUSING WILL BE REQUIRED TO BE GUARANTEED BY SECURE ARRANGEMENTS WHICH ENSURE THAT ALL SUCCESSIVE AS WELL AS INITIAL, OCCUPIERS, BENEFIT FROM ITS LOW COST STATUS.
Justification
4.40 The extent to which the housing market meets housing needs may change over time and could give rise to a situation which justifies intervention to ensure that the needs of all sections of the community are being met. Regular monitoring of the housing market will inform when and where the policy will be applied and will provide guidance on what will be regarded as affordable in this context.
4.41 PPG3 and Circular 13/96 recognise that a community's need for affordable housing is a material consideration in formulating local plan policies. It suggests authorities should set out their intentions to seek the inclusion of an element of affordable housing in settlements with a population of 3000 or fewer on developments of 25 or more dwellings or to any residential site of 1 or more hectare (irrespective of the number of dwellings) and elsewhere to developments of 40 or more dwellings or residential sites of 1.5 hectares or more. The proportion to be provided will be a matter for negotiation and will be dependent on other considerations material to the particular site.
4.42 In all cases, the Council will be willing to discuss such affordable housing provision on a site-specific basis and to negotiate at that time on the level and type of affordable housing to be provided in the light of housing needs and market and site conditions.
4.43 The Council will consider affordable housing to be that built for rent or for shared ownership through a housing association, registered social landlord or other social body (e.g. a trust) or that built for sale which is of a type or size that would be affordable to those in need. In either case provision should be related to local needs.
4.44 It is desirable to seek a wide range of dwellings to meet the requirements of all sections of the community from large family houses to small starter homes and even single bedroom flats. By ensuring that the building industry is required to make a mixed provision appropriate to the needs and demands of the locality in all housing developments it is hoped that the range of housing provided would include accommodation affordable to people seeking all types of accommodation whether it be their first home or a retirement home, small or large.
4.45 The Council will expect applicants to demonstrate clearly how the affordability of such affordable housing is to be guaranteed for all successive as well as initial occupiers of the property. This could be by demonstrating the involvement of a housing association or trusts. If affordable housing is to be provided determined by its size and that size could not be amended to substantially affect its affordability, then this would represent an acceptable secure arrangement. Where such arrangements are not clear, then the Council will expect the applicant to enter into a Section 106 obligation or will condition any planning consent accordingly to secure this objective.
POLICY H6 - AFFORDABLE HOUSING IN THE RURAL AREAS
IN EXCEPTIONAL CIRCUMSTANCES, PERMISSION MAY BE GRANTED FOR RESIDENTIAL DEVELOPMENT ON A SITE OUTSIDE THE DEVELOPMENT LIMITS OF A SETTLEMENT OR FOR A LARGER SCALE OF DEVELOPMENT THAN WOULD NORMALLY BE ACCEPTABLE ON A SITE WITHIN THE DEVELOPMENT LIMITS OF A NON-SELECTED SETTLEMENT, WHERE THE PROPOSAL WOULD MEET AN IDENTIFIED NEED FOR AFFORDABLE HOUSING IN THE LOCALITY WHICH COULD NOT BE MET ANY OTHER WAY. PERMISSION WILL ONLY BE GRANTED WHERE:
1. PROPOSALS ARE ACCEPTABLE WITHIN THE TERMS OF POLICY EN2; AND
2. SUITABLE ARRANGEMENTS HAVE BEEN MADE TO ENSURE THAT THE BENEFITS OF THE SCHEME WILL BE AVAILABLE IN PERPETUITY.
Justification
4.46 Affordable housing is essential to secure the viability of local communities, particular in rural areas. Although house prices generally, in East Yorkshire, are low relative to other parts of the region, there may be areas where local people, or those with a need to live in a particular locality because of their employment, have difficulty securing accommodation. Where such a need is identified in a locality, the Borough Council will consider granting planning permission as an exception to normal planning policy providing that the development is in the style and character of surrounding development and will remain available to meet the need for affordable housing. A rural needs survey is currently being undertaken but the final results are still awaited. Supplementary Planning Guidance, approved by the Borough Council in 1994, sets out the factors that will be taken into account in considering proposals under Policy H6. Any provision made under the policy will be regarded as additional to provision made to meet the strategic land requirement.
POLICY H7 - CONVERSIONS TO RESIDENTIAL USE
PROPOSALS FOR THE CONVERSION OF BUILDINGS TO FORM RESIDENTIAL ACCOMMODATION WILL BE PERMITTED WHERE:
1. RESIDENTIAL OCCUPANCY OF THE BUILDING AND ITS CURTILAGE WILL NOT ADVERSELY AFFECT THE CHARACTER OR VISUAL APPEARANCE OF THE SURROUNDING AREA; AND
2. THEY WILL NOT CONFLICT WITH ADJOINING USES; AND
3. THEY WILL NOT BE REMOTE FROM LOCAL SERVICES; AND
4. THE DEVELOPMENT DOES NOT INVOLVE SIGNIFICANT EXTENSIONS, ALTERATIONS OR REBUILDING WHICH WOULD UNACCEPTABLY ALTER THE CHARACTER OR SCALE OF THE ORIGINAL BUILDING; AND
5. THEY MAKE PROVISION FOR PROTECTING WILDLIFE WHERE APPROPRIATE IN
ACCORDANCE WITH POLICY EN11.
Justification
4.47 In the urban centres, conversions are one way of providing relatively low cost accommodation often from housing units which are too large for modern living standards or from buildings which are now no longer required for their original use. In many cases, these conversions are highly desirable and may offer an opportunity to bring new life into rundown areas, particularly by attracting young people who have the potential to make a significant contribution to the local economy.
4.48 Many traditional farm buildings are an intrinsic part of the character of the countryside and their reuse for residential purposes is one way of assisting their retention. However, the merits of retaining buildings will be reduced where proposals for conversions would significantly alter their character or where the new use would be out of character with the surrounding area.
4.49 PPG7 - "The Countryside and the Rural Economy", provides the Government's guidance on matters which should be taken into account in preparing and considering proposals for the reuse of rural buildings. Existing buildings should be capable of conversion without the need for significant alteration or extensions which would give the impression of a new building. The rural character should generally be protected by utilising existing openings with minimal new openings, the use of matching materials, avoiding breaks in the root and, in respect of the curtilage and setting, avoiding the use of walls, fencing, gardens and untypical plant species.
4.50 In the case of a Listed Building, any proposal should be minimal and not be detrimental to the special architectural and historical character of the building both internally and externally. The use of double height spacing and exposing of original timber beams will normally be encouraged in the conversion of farm buildings.
4.51 Where buildings proposed for conversion will be adjacent to operational farm buildings, the Borough Council will be concerned to avoid conflict between future occupants and farming practices, particularly in terms of noise, smell, visual amenity and operational arrangements. In these situations, the conversion of buildings to provide accommodation for agricultural, horticultural or forestry workers (Policy H3) or holiday accommodation (Policy T2) may be more acceptable and occupancy conditions may therefore be applied to any planning approval.
4.52 Redundant farm buildings can provide nesting and roosting places for protected species such as barn owls and bats and accordingly English Nature will be consulted on all applications for conversion, in accordance with Policy EN11. Where the building is known to contain protected species, planning permission will only be granted where the proposal includes satisfactory safeguards for the protected species.
4.53 In sensitive locations such as the defined Wolds Area of Landscape Protection, the Areas of Habitat Protection or the Coastal Zone, it may be necessary to consider whether the conversion of farm buildings is likely to give rise to a need for replacement buildings to serve the farm unit. Particularly where such buildings could undermine other environmental objectives, conditions may be applied to a planning permission for conversion, withdrawing permitted development rights for new farm buildings from that particular holding.
4.54 In Bridlington there have been problems in the past with the conversion of large houses and hotels to form flatted accommodation, bedsits and hostels. This has given rise to conflict with other policy objectives such as the need to protect holiday accommodation, or can lead to concentrations of low standard accommodation which change the character and appearance of the area. The conversion of buildings can also give rise to problems such as overlooking, noise and traffic generation, which could harm the character of an area. Policies BRIDl1 and BRID20 will therefore be applied to proposals for conversions in Bridlington.
POLICY H8 - RESIDENTIAL USES ABOVE COMMERCIAL PREMISES
THE USE OF UPPER FLOORS OF COMMERCIAL PREMISES FOR RESIDENTIAL PURPOSES WILL BE PERMITTED UNLESS IT WOULD GIVE RISE TO CONFLICT WITH EXISTING USES IN THE AREA.
Justification
4.55 Encouraging new residential uses in central locations will help to retain local facilities and can lead to the improvement of the upper floors of commercial property which might otherwise be neglected and detract from the street scene. In considering proposals it will be necessary to take account of surrounding land uses. The existence of such uses as hot food takeaways and amusement centres could give rise to nuisance complaints. Where this is likely, conversion to residential use may be inappropriate.
POLICY H9 - RESIDENTIAL CARE HOMES
PROPOSALS FOR THE ERECTION OF, OR USE OF PREMISES AS, A RESIDENTIAL CARE HOME WILL BE PERMITTED WHERE:
1. OCCUPANCY OF THE BUILDING AND ITS CURTILAGE WOULD NOT CONFLICT WITH ADJOINING USES OR OTHERWISE HARM THE CHARACTER OF THE SURROUNDING AREA; AND
2. THEY WOULD NOT BE REMOTE FROM A REASONABLE RANGE OF COMMUNITY, SOCIAL OR MEDICAL SUPPORT FACILITIES; AND
3. THE PREMISES ARE SUITABLE FOR THE PROPOSED USE IN RELATION TO INTERNAL ARRANGEMENTS, OUTSIDE AMENITY SPACE AND PARKING/SERVICING PROVISION.
Justification
4.56 Although the need to make provision for care facilities is recognised it is necessary to ensure that the character of neighbourhoods can be protected and that the occupants of residential homes can be assimilated and cared for by the local community. In considering each application, the size of the proposed home, its proximity to others, its impact on the street scene, and the ability of the local community to assimilate prospective occupants will all need to be judged.
4.57 An application may be inappropriate in itself, for example if the proposed premises are a small mid-terrace unit in a quiet residential area, or if the proposed premises are in an area composed primarily of holiday accommodation.
4.58 An application may also be inappropriate if it would lead to a concentration of residential homes in a particular area which could not only change the character of the area but could also frustrate the aims of community care, which primarily are to promote integration into the wider community. In assessing whether a particular application would constitute an over-concentration, the Borough Council will normally look for a distance of 250 metres between residential homes which provide care.
4.59 The premises proposed for use as residential homes must themselves be suitably located and capable of conversion. In assessing this aspect, the Borough Council will normally seek the advice of the Social Services Authority and other interested departments and authorities where necessary.
4.60 Conditions limiting the period for implementation to 2 years, rather than the usual 5 years, will be applied to any permission to ensure that there is not a build up of unimplemented permissions which would affect those people who genuinely intended to open a residential home.
POLlCY H10 - REDEVELOPMENT OF INTENSIVE LIVESTOCK UNITS
WITHIN OR ADJOINING DEFINED DEVELOPMENT LIMITS PROPOSALS FOR THE REDEVELOPMENT OF INTENSIVE LIVESTOCK UNITS WILL BE PERMITTED WHERE THEY WILL RESULT IN A MATERIAL IMPROVEMENT TO THE AMENITY OF THE LOCALITY AND WHERE THEY REFLECT THE SCALE AND CHARACTER OF THE VILLAGE.
Justification
4.61 Intensive livestock production is an important part of the local economy and is supported generally through policies EN23 and EN24. However, many of the older units are located within or adjoining settlements where on occasions they have given rise to complaints. Recent animal welfare legislation and pollution control has improved generally the operational conditions of livestock units but in some cases this has increased the potential for nuisance complaints. Environmental Health legislation empowers the Borough Council to prosecute operators who unreasonably give rise to a statutory nuisance.
4.62 Where appropriate, the Borough Council will investigate the use of measures to secure the removal of buildings under the Building Regulations and will seek the improvement of neglected sites under the Planning Acts. Redevelopment for housing can provide additional opportunities. In situations where operators wish to relocate an offending unit. it wouid be in the interests of both the Borough Council and the operator to discuss at an early stage the suitability of the proposed relocation site.
4.63 In considering redevelopment proposals, the size and character of the existing settlement will be a guiding factor and proposals will not be acceptable where they will lead to a substantial increase in housing within the settlement or clearly after the character and pattern of development.
SITES PROPOSED FOR THE ACCOMMODATION OF TRAVELLERS OR GYPSIES WILL NOT BE PERMITTED WITHIN THE DEFINED AREAS OF LANDSCAPE OR HABITAT PROTECTION OR THE COASTAL ZONE. ELSEWHERE PROPOSALS WILL ONLY BE APPROVED WHERE THEY:
1. HAVE EASE OF ACCESS TO THE STRATEGIC ROAD NETWORK; AND
2. WILL NOT BE DETRIMENTAL TO HIGHWAY SAFETY; AND
3. WOULD HAVE EASE OF ACCESS TO SHOPS, SOCIAL, EDUCATIONAL AND HEALTH FACILITIES; AND
4. PROVIDE ADEQUATE ON SITE FACILITIES AND SERVICES TO SERVE ALL OCCUPIERS; AND 5. ARE OF A SCALE WHICH WOULD NOT FUNCTIONALLY DOMINATE THE LOCALITY AND WOULD BE SCREENED TO AVOID INTRUSION IN THE LANDSCAPE; AND
6. WOULD NOT GIVE RISE TO UNACCEPTABLE EFFECTS ON THE AMENITIES OF LOCAL RESIDENTS OR THE OPERATIONAL EFFICIENCY OF AGRICULTURAL UNITS; AND
7. WOULD NOT GIVE RISE TO DISTURBANCE OR INCREASE THE RISK OF POLLUTION WHICH COULD THREATEN THE SIGNIFICANCE OF AN AREA FOR NATURE CONSERVATION.
Justification
4.64 The Council is now committed to the establishment of a gypsy site at Woldgate, Bridlington and has designated six Tolerated Stopping Places as emergency stopping off points.This level of provision is considered to meet the traditional need for sites for gypsies and travellers and should enable the Borough to achieve Designated Status under the Caravan Sites Act 1968. Whilst no further allocations are needed, the proposed changes to legislation are noted and, if enacted, will remove Designated Status and require local planning authorities to consider future proposals on their merits. This Policy permits such consideration in line with guidance in DoE Circular 1/94 - "Gypsies", but prior to any approval, the Council will need to be satisfied that existing provision is inadequate.
4.65 In considering proposals, particular regard will be had to the appearance of the site and its effect on the surrounding area and the amenity of residents and tourists. As proposals would be likely to have a significant effect on areas of open countryside they would be unsuitable within the defined Area of Wolds Landscape Protection, the Areas of Habitat Protection or the Coastal Zone.