2.2.1 The population of Holderness in 1991 was 51,000. The main towns are Hedon and the coastal resorts of Hornsea and Withernsea. Appendix 6 indicates population by parishes for 1981 and 1991.
2.2.2 The 1991 Census indicated that the area's housing stock was 20,265 dwellings, an average of 2.52 persons per household. Hornsea had 3,330 dwellings, Withernsea 2,666 and Hedon 2,168. Between 1981 and 1991 the housing stock increased by approximately 14% in comparison to 9% on average for Humberside. These figures reflect an increasing trend for city residents to move out to more rural areas.
2.2.3 House completion rates have averaged 225 dwellings per year over the 10 year period between 1983 and 1992. Completion rates have been greatest in Hedon which averaged 49 dwellings per year over the last 10 year period, followed by Hornsea which averaged 34 per year and Preston 23 per year. Many of the completions at Preston were located within the township of Hedon. Of the selected settlements Sigglesthorne has had the lowest completion rate of 8 dwellings in total over the same 10 year period, followed by Withernwick with 18. Between 1983 and 1992 3% of the total houses built were one bedroomed, 33% 2 bedroomed, 48% 3 bedroomed and 16% 4 bedroomed and above.
2.2.4 Local housing statistics published by the Department of the Environment show that the rate of council house sales has fallen in Holderness over the last decade. In the period from 1980 to 1985 the annual average was 94 in comparison to 77 between 1986 1990. This reduction can be attributed to less properties being available for sale and to the fact that those tenants who could afford to buy have already done so.
2.2.5 The 1991 Census showed that housing conditions in Holderness are generally good with less than 1% of households having no central heating, lacking or sharing the use of bath/shower and/or an inside WC. The 1993 Electoral Register for Holderness shows that 807 residential units were vacant. As expected the urban centres have the highest vacancy rates with Hornsea having 181 vacancies, Hedon 102 and Withernsea 93. The vacancy rate for Holderness is 4.1% and this is expected to rise to 4.4% over the Plan period. Similarly, the vacancy rate for Humberside is 4.1%.
2.2.6 A survey carried out by Humberside County Council in May 1993 showed that house prices in Holderness reflect the averages for Humberside generally. The average price of a detached house in Holderness was £84,390, some £4,520 less than the average for Humberside, although the average price of a terraced house was £37,260, some £2,630 more than the comparative figure for Humberside reflecting the generally greater value of such properties in a village setting.
2.2.7 The Council considers that the following matters should be addressed in the Local Plan :
1. The Council needs to identify the most appropriate locations to allocate land for future housing development in the Borough.
2. The distribution of housing allocations within Holderness needs to take account of environmental conditions, existing facilities, infrastructure provision, market forces and scale in relation to size of individual settlements.
3. The range of accommodation to be provided and if necessary the provision of affordable housing.
4 The need to balance the density of new housing including open space and landscape provision with land need.
5. Whether additional housing should be allowed in appropriate nonselected settlements and investigate housing issues in the open countryside.
6. The need to incorporate the concept of sustainability into housing policies. The Council must ensure that new housing development is sensitive to the Holderness environment and complements its character. It must also assess where developers can be encouraged to locate near to existing transport and infrastructure provision.
National
2.2.8 Government guidance on housing matters indicates that the planning system must not only provide an adequate and continuous supply of land for housing but that this must be balanced against the need to ensure that established environmental policies are maintained and enhanced. These include the protection of the countryside including the best and most versatile agricultural land, conservation and enhancement of the environment and the built heritage.
2.2.9 As a means of achieving these objectives the planning system must identify an acceptable choice of sites which are both suitable and available for house building. Increased emphasis is placed on reusing urban land, particularly derelict or underused land as a means of relieving pressure in the countryside. Green spaces in towns needed for recreation and amenity purposes should not be sacrificed. Guidance recommends that housing is made available in the areas where jobs are being created so that economic growth is not frustrated by a lack of homes for those wishing to take up new job opportunities.
2.2.10 Developers are encouraged to aim for a high quality of design and landscaping. Development needs to be considered carefully to avoid poor designs that are out of scale or character with their surroundings. This applies to new developments, redevelopment or development of sites not identified in the Plan and for conversions and changes of use. New housing needs to be well integrated with the existing settlement pattern and surrounding land uses. Economy in the use of agricultural land is not so pressing at the present time and higher levels of design perhaps at lower densities are more likely to be achieved in rural areas provided the character of a particular settlement is respected.
2.2.11 Additionally, planning authorities must ensure that a five year supply of housing land is available. This must be free or easily freed from planning, physical and ownership constraints, capable of being developed economically in areas where potential house buyers want to live and be suitable for the wide range of housing types which the housing market requires. A mix of house types is recommended and these may include affordable housing in certain areas if the particular need is identified.
Strategic
2.2.12 The distribution of housing within the district is the responsibility of this Authority but within the strategic framework set out in the Structure Plan. The relevant Structure Plan Policies are S1, S2, S3, S4, S5, S6 and S7.
S1 For the period 1989 to 2006 land will be provided in the County for about 58,000 (plus 2,500*) dwellings. This will be distributed amongst the Districts as follows:
Beverley 9,000
Grimsby 3,000
Boothferry 5,500
Holderness 5,250
Cleethorpes 4,350
Kingston Upon Hull 11,900
East Yorkshire 10,500
Scunthorpe 1,000 (+2,500*)
Glanford 7,500
* To be included only if the Bridlington Bay project proceeds.
S2 New housing development will, wherever possible, be related to existing and potential jobs, educational facilities, public transport and services. Encouragement will be given wherever practicable to the improvement, conversion and rehabilitation of the existing housing stock. Proposals to develop suitable sites within the main built up areas will be favourably considered where local conditions are suitable and where such development accords with local planning policies.
When considering proposals for housing development on previously undeveloped sites planning authorities will take account of the need to conserve good quality agricultural land and to protect attractive open areas. A range of different types of sites for new housing development will be provided.
Medium to high density housing development will normally be acceptable in the urban areas and urban centres provided:
1. it does not adversely affect its surroundings; and
2. a high standard of design and layout is achieved.
S3 Priority will be given to the provision of services and land for housing in the three main urban areas of Hull, Grimsby/Cleethorpes and Scunthorpe, defined in Policies S9 to S11.
Elsewhere, land for housing will be provided mainly in the urban centres and, to a lesser extent, in the selected settlements; these are defined in Policies S4, S5 and S9 TO S13.
Only limited housing development will be permitted in nonselected settlements, as set out in Policy S6.
2.2.13 Settlements in Holderness are ranked as either, urban centres, selected settlements, nonselected settlements. A list of the status of settlement in Holderness is included in Appendix 7. New housing can be accommodated in these settlements according to the scale of development in relation to the level of services and development potential of the settlement.
S4 In urban centres, provision will be made for housing and a range of community services including secondary schools. The scale of such development will be compatible with the size and character of the urban centre. Where an urban centre is substantially bounded by good quality agricultural land or important amenity areas, planning permission will not normally be granted nor allocations made in local plans for housing development on this land, unless it is accepted by the planning authorities that its development is essential to meeting the housing provision for the District as set out in Policy S1.
S5 In selected settlements, provision will be made for new housing development. As far as is practicable local community, education and service facilities will be retained. New development should be compatible with the size and character of the settlement and the range of community and service facilities available. Development which would place a strain on public services or which would detract from the amenity or character of the village should not be permitted. Proposals to improve and re use existing buildings within the builtup area of the village will, subject to local planning and design considerations, be approved.
Selected settlements reaching their planned size (where this is determined through local plans) will retain their status insofar as the provision of services is concerned; in such villages only a limited scale of new housing development will be permitted.
S6 In nonselected settlements the conversion or replacement of existing dwellings and the building of single or very small groups of dwellings on infilling plots in the main body of the village will normally be permitted.
Exceptionally, a larger scale of housing development may be permitted provided local services are adequate. Such sites should be identified in local plans. All housing development in nonselected settlements should be in keeping with the existing size and character of the settlement.
2.2.14 Outside settlements ( including nonselected settlements listed in Appendix 7), in the open countryside Policy S7 applies.
S7 Residential development in the open countryside will not normally be permitted except where it is essential for the purposes of agriculture or forestry. S7A As an exception to Policies S5, S6, S7 and S9, planning permission may be granted for affordable housing on land which would not normally be released for development within or adjoining selected and non selected settlements provided that:
1. any such land released will be additional to the general provision made for housing;
2. the scheme would meet a proven local need that would not otherwise be met;
3. there are arrangements to ensure that the benefits of affordable housing will be enjoyed by subsequent as well as initial occupiers;
4. the development is in keeping with the existing size and character of the settlement.
The Council's Aims and Objectives
AIM 1 THE COUNCIL WILL PROVIDE A SUPPLY OF HOUSING LAND IN HOLDERNESS THAT WILL ACCOMMODATE THE LIKELY FUTURE LEVELS OF POPULATION. THIS SHOULD PROVIDE A CHOICE OF SITES SUITABLE FOR DEVELOPMENT AND ENABLE THE PROVISION OF A RANGE OF HOUSE TYPES AND TENURE TO MEET THE PARTICULAR NEEDS OF INDIVIDUALS.
AIM 2 THE COUNCIL WILL DIRECT NEW HOUSING DEVELOPMENT TO THOSE SETTLEMENTS THAT OFFER ADEQUATE SUPPLIES OR LEVEL OF SERVICES CAPABLE OF ACCOMMODATING SUCH GROWTH AND IN LOCATIONS COMPATIBLE WITH THE NEED TO CONSERVE THE ENVIRONMENTAL RESOURCE TO RETAIN THE FORM, CHARACTER, APPEARANCE AND IDENTITY OF HOLDERNESS AND ITS INDIVIDUAL SETTLEMENTS.
AIM 3 THE COUNCIL WILL RESIST NONESSENTIAL DEVELOPMENT IN THE OPEN COUNTRYSIDE.
2.2.15 The Council will seek to:
provide land for a range of house types that cater for the needs of the areas residents and encourage the provision of affordable housing where there is an identified need.
ensure new housing development is of such a scale and density that it complements or improves the character of the Holderness environment in which it is located and does not encroach unnecessarily into the open countryside.
direct new housing development to the areas main towns and selected settlements as defined in the Humberside Structure Plan settlement hierarchy and ensure that community facilities, infrastructure and the highway network is adequate to meet future needs.
adopt a sustainable approach to housing allocations, by ensuring that new development is located close to the main centres of employment and transport corridors in order to minimise the need to travel.
minimise the impact of residential development on the environmental resource of Holderness and in particular the open countryside by controlling the conversion of rural buildings, by resisting development on unallocated sites and by encouraging landscape provision on future housing development.
2.2.16 In accordance with Government advice contained in PPG3 a joint housing study was established with local authorities in Humberside and representatives of the building industry. The purpose of the study is to ensure that there is a 5year supply of land for house building. This Council monitors housing land availability within Holderness in a housing land availability booklet which is produced each year.
2.2.17 One of the most important implications of strategic guidance for Holderness is the Approved Humberside Structure Plan requirement to provide sufficient land to accommodate 5,250 dwellings in the area for the period 19892006. This being the Holderness share of the county wide housing requirement of 58,000 dwellings over the same period and is equivalent to a housing need requirement of 310 dwellings per annum.
2.2.18 The 5,250 dwellings to be accommodated in Holderness over the period 1989 to 2006 will consist of:
1. Houses constructed between 19891994.
2. An allowance for small sites. Dwellings on sites where the principle of residential development is already established (existing allocations).
4. New allocations.
(1) Houses Constructed Between 1989 1994
2.2.19 Houses completed in Holderness between mid 1989 and mid1994 totalled 1,310 units, an average of 262 units per year. This figure is subtracted from the 5250 above to give a shortfall of 3940 units.
(2) Small Sites Allowance
2.2.20 An allowance needs to be made for small sites of less than 0.4 hectare and individual building plots which make an important contribution to the total housing land availability in Holderness.
2.2.21 This contribution is recognised by the housing building industry and a fixed allowance of 45 dwellings per year has been agreed with the building industry in assessing housing need. This includes conversions from nonresidential to residential use and infilling plots. It does not allow for windfall sites which may become available from time to time. The small sites allowance results in a figure of 540 dwellings over the 12 years between mid1994 and mid 2006. This figure is deducted from 3940 (see (1) above) to give a housing need requirement of 3400.
2.2.22 The 3400 housing need requirement for the period 1994 2006 will be provided for on established sites and new allocations. To allow for choice and flexibility of site an additional 10% has been allowed (340 units), giving an overall housing need requirement of 3740 dwellings to be met on established and newly allocated sites.
(3) Dwellings on Sites Where the Principle of Residential Development is Already Established (Established Allocations)
2.2.23 The Council prepares annually a Housing Land Availability document setting out land that is currently available for house building in the areas main towns and villages. Sites identified are those upon which the principle of allowing housing has been established, either through their allocation in an informal Local Plan approved by the Council or by way of a previous or extant planning permission.
2.2.24 The South West Holderness Local Plan for example, made an important contribution to residential land allocations in the Hedon area. It established that there was sufficient land for residential purposes in the area to the year 1996 and identified further sites that have been considered as part of this exercise. The timescale of the District Wide Plan is to the year 2006 and further allocations to take account of this extended timescale will be necessary, in addition to other allocations, which will be made elsewhere in Holderness.
2.2.25 It is estimated that sufficient land exists on established sites to accommodate 2540 units on sites of 0.4 Hectare (1 acre) or above. For the purposes of calculating future housing need provision, only those sites of 0.4 Hectares or more are considered under this section. By subtracting 2540 from the 3740 housing need requirement (see (2) above), there is a need to provide for 1200 units on new local plan allocations throughout Holderness.
(4) New Allocations
2.2.26 The residual figure of 1200 dwellings (to cater for the housing needs of Holderness to the year 2006) will be provided by new housing allocations. At an average housing density of 25 dwellings per Ha. (10 dwellings per acre), the Council will need to identify sites for new housing totalling approximately 48 Ha. (118 acres).
2.2.27 In summary the housing need figure for Holderness between mid1989 and mid2006 is as follows:
Overall housing requirement 1989 2006
(Structure Plan) 5250
Less 1850, which comprises:
(1) Completions 19891994 1310
(2) Small sites allowance 540
This is a requirement (1994 -- 2006) of 3400 dwellings Plus 10% for flexibility 340 This results in a total requirement (1994 -- 2006) of 3740 dwellings (consisting of approximately 2540 on existing sites and 1200 on new allocations)
Distribution of New Allocations
2.2.28 A number of factors influence the distribution of new housing allocations throughout Holderness. Whilst national guidance implies that housing requirements need only be applied on a district wide basis it is clear as suggested above, that there are distinct housing market areas within the district which need to be considered.
2.2.29 Within Holderness, the Council considers there are three broad housing market areas. These are the south west, south east and northern areas centred on the three main towns of Hedon, Withernsea and Hornsea respectively. These urban centres play an increasingly important role in the provision of housing, shopping, education, employment and community facilities. The Council anticipates that this role will continue and will therefore ensure that the majority of land for residential purposes is provided in these towns with the remainder being distributed amongst the area's selected settlements.
2.2.30 In apportioning land allocations for housing development in each of the three market areas, the Council has had regard to a number of factors. These include the national guideline of working towards a more sustainable pattern of development and also the influence of the City of Hull as a main employment centre within easy reach of many of the area's larger settlements.
2.2.31 Based on previous experience the Council considers that housing allocations should be provided in each of the three housing market areas in approximately the following proportions:
South West Holderness housing market area 48%
South East Holderness housing market area 16%
North Holderness Housing market area 36%
2.2.32 These proportions reflect the importance of the south west Holderness area as a base for those wishing to commute into the City of Hull, the peripheral nature of the South East housing market area where demand is relatively low and the local significance of the northern area.
2.2.33 In identifying new sites for housing proposals in each of the market areas, the Council has attempted to select sites that are well related in scale and location to existing development patterns as well as to existing transport infrastructure, although the importance of sustaining rural communities is also recognised. Further details of the housing market areas is given in Appendix 8.
H1 Provision will be made for the development of 5250 dwellings in Holderness between 1989 2006 (3740 dwellings between 1994 and 2006). Taking into account the anticipated level of development resulting on small sites the Council will allocate land as follows:
1. South West Holderness housing market area 1789 dwelling units 48%
2. South East Holderness housing market area 612 dwelling units 16%
3. North Holderness housing market area 1350 dwelling units 36%
Total provision 19942006 = 3751 dwelling units.
Residential Opportunities on Non Allocated Sites
2.2.34 In addition to those sites identified on the Proposals Map for residential purposes, further opportunities for new residential development may arise consisting of small scale developments on sites not previously allocated for residential development (windfall sites). These will generally be located within defined development limits or occasionally outside those limits but within existing substantial groups of dwellings.
2.2.35 Windfall sites and infill plots within defined development limits may become available for residential development as a result of the relocation of an existing use, demolition, underuse or dereliction.
2.2.36 In allowing development to proceed on windfall sites the Council will need to be satisfied that development will not detrimentally affect small but important open spaces, environmental features, important buildings or alter the character of the particular street scene by overdevelopment or cramming. Not all vacant plots within development limits will be suitable for development.
H2 The development of nonallocated sites (windfall sites), within defined development limits, will normally be permitted provided the development:
1. is of a scale, layout and proportion appropriate to the character of the settlement in which it is located,
2. will not result in the significant loss of or damage to spaces and buildings which contribute to the character of the area,
3. will not create unacceptable highway problems,
4. will not have a significant adverse affect on protected species areas or buildings of historic or architectural interest, areas of nature conservation value or archaeological importance and
5. will not result in the significant loss of land of recreation or amenity value such as playing fields, playgrounds, informal open space and allotments.
In those settlements where development limits have not been defined, applications in the main body of the settlement will be similarly considered.
2.2.37 The Council will also apply the above policy to sites of less than 0.4 hectare (small sites), when they are proposed for development
Replacement Dwellings Outside Development Limits
2.2.38 Some existing dwellings in the area predate the advent of planning control and this is often in the case with isolated dwellings situated in open countryside. Many of these dwellings are built to inadequate standards, for example without proper foundations. There is a demand for their reconstruction which results in a replacement dwelling contrary to normal planning policy regarding development in the open countryside. In these cases the Council is prepared to approve the replacement of existing dwellings, even when these do not accord with normal planning policy subject to the following policy.
H3 The Council will normally permit the replacement of existing dwellings even where the siting of these dwellings does not accord with normal planning policy, provided that the existing dwelling is beyond reasonable economic repair, and that the replacement dwelling is of an appropriate design and is no larger in terms of its gross floor area (but taking into account any extensions which could be erected as "permitted development") than the original dwelling, provided there are no other planning objections.
The ReUse of Rural Buildings for Residential Purposes
2.2.39 New housing in the open countryside is subject to strict control, the principles of which can also be applied to the conversion or adaptation of rural buildings in these locations, especially where such buildings are unsuitable for conversion without extensive alteration, rebuilding or extension.
2.2.40 If the building cannot continue to be used for its original purposes the Council would favour conversion to commercial community or recreational uses rather than to a residential use as these are less likely to require such division of existing spaces, or the creation of more window or door openings. In addition, the creation of residential curtilages around newly converted buildings can sometimes have a harmful effect on the character of the countryside.
H4 The Council will favour the conversion of rural buildings in the open countryside for commercial, industrial or recreational uses provided that; the buildings are of permanent and substantial construction and are capable of conversion without major reconstruction; the conversion does not lead to any unacceptable traffic or environmental impact and would not (either by itself or in combination with other development) jeopardise the vitality of nearby towns or villages; and, the proposal accords with other policies of this plan: conversions to residential use will need to be in accordance with these criteria and, in addition, comply with policies H5 or H6.
2.2.41 Where conversion to residential use is appropriate, it is important to distinguish between those situations where it is in line with established planning policy and those where it will be a departure from the Humberside Structure Plan. Where the building is situated within the main builtup area of a settlement the presumption will be to permit the conversion unless there are clear and compelling reasons for refusal.
2.2.42 In cases where existing buildings are peripheral to settlements but are outside the development limits, buildings would normally be judged as being in the open countryside. However:
H5 Where the building is outside the approved development limit of a settlement but is, in the Council's opinion, located so close to the settlement as to be properly considered part of it, planning permission for conversion to residential use may be granted if all other planning matters are satisfied.
2.2.43 Applications to convert rural buildings to residential use in the open countryside will need to comply with tÏhe following policy;
H6 The conversion of buildings in the open countryside to residential use will only be approved when:
(a) it can be demonstrated that every reasonable attempt to secure suitable business reuse has been made, or;
(b) that the proposal is a subordinate part of a scheme for business reuse and;
(1) the proposed use will not conflict with other land uses in the immediate locality;
(2) it has been established that residential conversion can be carried out without a significant amount of alteration to the building;
(3) it can be demonstrated the resulting conversion would not have a detrimental effect on the existing architectural character and setting of the building;
(4) there are no significant adverse effects on wildlife habitats and nature conservation interests;
(5) all highway, infrastructure and servicing matters can be satisfied.
H6(1) above is useful in assessing whether the conversion of buildings in the open countryside will be affected by existing uses and may be particularly useful in relation to the juxtaposition of residential conversions and intensive livestock units or other rural businesses.
2.2.44 The provision of houses for specialist agricultural workers is one of the few circumstances in which isolated residential development in the countryside may be justified. It is clearly a departure from the normal policy of restraint and it is of great importance that planning applications for such accommodation are considered extremely carefully on their individual merits. Wherever possible, dwellings which house agricultural workers should be located in existing settlements where planning permission may be granted without a restriction on occupation. The Council will not normally be prepared to grant planning permission for dwellings in the open countryside which are isolated from the farm unit.
H7 Where the Council accepts that it is necessary to permit a dwelling to house a key agricultural worker in the open countryside it will expect the dwelling to be located close to the farm unit which it is designed to serve and to be serviced where practicable via the existing farm access road and not independently from the public highway.
Agricultural Occupancy Conditions
2.2.45 Where the need to provide accommodation to enable farm or forestry workers to live at or near their place or work has been accepted by the Council, it will be necessary to ensure that the dwelling is kept available for meeting this need. The Council has found that the use of a planning condition alone is not always satisfactory for this purpose and hence will seek to tie dwellings to agricultural occupation by means of a planning obligation under Section 106 of the 1990 Act. In particular, such an approach is likely where the justification for an additional dwelling for a farm worker depends crucially on the availability of a particular building or area of land, or where the unit is especially fragmented or where there is evidence to indicate that land or buildings have been disposed of in the past.
H8 In cases where the Council has accepted that further residential dwellings are required for agricultural workers in the open countryside, the Council will apply a planning condition to the approval limiting its future occupancy to persons working in the locality in agriculture or forestry. Where it is considered necessary the Council will also seek a planning obligation under S106 of the Town and Country Planning Act 1990 (as amended), to tie the dwelling to the agricultural unit.
2.2.46 The Council will not normally grant planning permission for a dwelling which is larger than the requirements of the farm enterprise justifies. Although it will not normally seek to remove permitted development rights to extend the dwelling once erected (unless special circumstances of the case warrant it), the Council will look carefully at any subsequent planning applications to extend the dwelling and will not grant planning permission for extensions which would lead to the dwelling becoming unusually large in relation to the holding which it serves.
H9 In considering planning applications for agricultural dwellings, the Council will take into consideration the size of the proposed dwelling in relation to the holding which it is designed to serve and will not grant planning permission for dwellings which are larger than necessary to cater for the needs of the agricultural holding. The Council will also consider very carefully, applications to extend existing agricultural dwellings taking into account the same issues.
2.2.47 Dwellings which were erected originally for agricultural purposes and are subject to an occupancy restriction sometimes become surrounded by new development. Under these circumstances, where permission would now be given on the same site for a dwelling with no agricultural links, the retention of the agricultural occupancy condition becomes meaningless and should be removed.
H10 In cases where an existing dwelling which is the subject of an agricultural occupancy condition or other similar agreement has been overtaken by new residential development unrelated to agricultural occupancy by virtue of a change in policy, or where a change in policy enables such development to take place, the Council will agree upon application, to remove the agricultural occupancy condition.
Agricultural Dwellings no Longer Required for their Original Purpose
2.2.48 While recognising that changes in agricultural practice may legitimately mean that dwellings are no longer required in connection with the holding on which they were originally built, it is important that such conditions are not removed without very careful consideration. The removal of agricultural occupancy conditions has the effect of increasing the value of individual houses in the countryside very substantially.
2.2.49 There are two separate issues which need to be considered by the Council. Firstly, whether any lack of viability of the holding is permanent and could not reasonably be reversed by a change in farm practice. Secondly, whether there is a supply of dwellings to serve the needs of agriculture in the general area as well as specifically related to individual farm units.
H11 The Council will only agree to the removal of an agricultural occupancy condition when the Council is convinced that the holding is such that no change in agricultural practice could restore the economic viability of that holding and that there is not a continuing need for agriculture accommodation for that holding or in the locality.
Housing Conversions to Holiday Accommodation
2.2.50 There is an increasing demand for holiday cottages, particularly in the coastal parts of the district. The locational constraints which apply to permanent residential accommodation are not appropriate to applications for holiday cottages and the normal planning standards may not apply so stringently. The Council may well be prepared to consider conversions to holiday accommodation in situations where permanent residential accommodation would be unacceptable, but in such cases would wish to safeguard its position by means of a planning obligation restricting occupation to holiday lettings only.
H12 The conversion of rural buildings to holiday accommodation may be acceptable in a location where permanent residential accommodation would be unacceptable, or where the appropriate standards for permanent residential accommodation cannot be met, provided the applicant enters into a planning obligation under Section 106 of the Town & Country Planning Act 1990 (or such other form of agreement as is considered appropriate) limiting occupation to holiday lettings only.
2.2.51 Changes in the housing market may bring about difficulties in "local" residents not being able to buy or rent homes in their native villages. New dwellings in the Holderness villages may no longer be "affordable" to certain groups due to the house building industry moving away from the lower end of the housing market. Nevertheless, house prices in Holderness are generally competitively low and so the problem of affordable housing is not perceived as being as acute here as elsewhere.
2.2.52 A community's need for affordable housing is a material consideration in formulating local plan policies. The Council will encourage developers to provide a mix of house types on new development where this is appropriate. Additionally where there is evidence of a need for affordable housing the Council will require an element of such housing to be provided on suitable sites. Suitable sites are those of 1 hectare or more or 25 dwellings or more, or in settlements with a population of 3000 or less, sites of 0.6 hectares or 15 dwellings or more.
2.2.53 The proportion of affordable housing to be provided on any particular site will be a matter for negotiation and will be dependent on other considerations material to the particular site. In all cases the Council will be willing to discuss such affordable housing provision on a site specific basis and to negotiate, at the time, the level and type of affordable houses in the light of housing need and market and site conditions.
2.2.54 Government advice (Circular 6/98 `Affordable Housing') considers 'affordable housing' to encompass both low cost market housing and subsidised housing irrespective of tenure, ownership whether exclusive or shared or financial arrangements, that will be available to people who cannot afford to rent or buy houses generally available on the open market.
2.2.55 The Council will expect applicants to demonstrate clearly how the 'affordability' of such 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 trust. Where such arrangements are not clear the Council will expect the applicant to enter into a Section 106 Agreement or will condition any planning consent accordingly to secure this objective.
H13 Where appropriate the Council will encourage developers to provide a mix of dwelling types on new developments.
Additionally, where a local need for affordable housing is demonstrated the Council will require the provision of an appropriate element of affordable housing on sites of 25 dwellings or more, (or 1 hectare or more irrespective of the number of dwellings) in settlements with a population of 3000 or more. Elsewhere in settlements with a population of fewer than 3000 the threshold is sites of 15 dwellings or more or 0.6 hectares or more (irrespective of the number of dwellings).
The appropriate element of affordable housing on each site will be negotiated in the light of the housing needs of the area and other material planning, market and site conditions. Where there is a clearly identified local need for affordable housing the Council may be willing to allow development at a higher density thereby enabling the provision of such housing in the settlement.
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 affordable status.
2.2.56 In other circumstances affordable housing may be provided in accordance with Structure Plan Policy S7A (see Appendix 1). Where schemes for affordable housing on sites that would not normally be appropriate for housing are worthy of detailed consideration, the Council would wish to ensure the following:
1. That a genuine need supported by the Parish Council, local community and recognised by the Council exists.
2. That the accommodation is made available for those who have a genuine need.
3. That a suitable lettings formula regarding terms, financial arrangement and future availability is agreed.
4. That the accommodation remains permanently available at a low cost.
H14 Small scale affordable housing on unallocated sites in or adjoining a particular settlement may be considered positively provided a housing need for this type of property is identified and binding agreements can be made to ensure that development is reserved on a long term basis for local people. Such development would normally be limited to a maximum of 6 dwellings but must in any case be no greater than necessary to meet the identified need or exceed the scale the existing settlement can comfortably accommodate.
"Local people" are those residing or employed in the parish or those having family associations (immediate family) in the parish.
Residential Design Considerations
2.2.57 The Council aims to achieve a high standard of design and landscaping in all new housing development. The broad design policies as set out in the 'General Principles Chapter' apply to all new housing development and hence encourage developers to have regard to such matters as scale, density and layout. The Council will have particular regard to development proposals in terms of relationship to setting and impact on the character and quality of the local environment. Transport matters such as access and car parking will also be given careful consideration in the assessment of new housing schemes. Where appropriate and resources permit, development briefs will be prepared for housing sites allocated in the Local Plan. These documents will give more detailed guidance outlining the site specific expectations of the Council.
H15 Where it is considered necessary and resources permit the Council will prepare development briefs for those sites where additional guidance is considered appropriate and will have particular regard to the design policies contained in approved development briefs in determining planning applications. Planning permission will not normally be granted for the development of a part of a larger residential site unless the Council are satisfied that the eventual development of the remainder will not be prejudiced.
Outdoor Playing Space within Residential Development
2.2.58 The Council considers it reasonable for developers to provide suitable Outdoor Playing Space (OPS) in new housing areas, where the existing amount or distribution of space is not adequate to meet the needs of the local community.
2.2.59 The NPFA Standard is a widely accepted standard for assessing the level of OPS required in a particular settlement based on the number and type of houses proposed and the existing level of provision. It recommends that 2.43 hectares of OPS is provided per 1000 population. This equates to 60.75 sq metres per dwelling, adjusted to 58.5 sq metres per dwelling in the Plan area to account for falling household sizes (average household size used is 2.4 persons per household). The NPFA Standard also distinguishes between OPS for adult/youth provision and that for children, recommending 1.6 -- 1.8 ha per 1000 population for adult/youth provision and 0.6 0.8 ha per 1000 population for children.
2.2.60 The summary table at the end of this chapter identifies the levels of OPS in the areas urban centres and selected settlements. If a development is proposed in a settlement where there is an existing shortfall in the level of OPS, or where as a result of the proposed development a shortfall would occur, the Council will secure arrangements for the appropriate provision of OPS on all schemes involving 15 or more dwellings.
2.2.61 In most cases the OPS for children element will be expected to be provided`on site'. On some sites however this may not be appropriate. In these rare situations the Council will require developers to make a financial contribution towards the creation of a larger area of OPS elsewhere in the locality supported by legal agreement to secure its proper implementation.
2.2.62 Similarly the adult /youth element of OPS provision might be more appropriately provided elsewhere in the locality. In such cases developers will be required to make an appropriate financial contribution by way of a commuted sum towards the 'off site' provision of OPS, supported by legal agreement to secure its proper implementation.
2.2.63 The formulae for calculating commuted sums for the provision of the youth/adult element of OPS being provided `offsite'equate to 39 sq metres per dwelling, based on the NPFA Standard. This will be applied to all residential sites of 15 or more dwellings at a rate of £10/sq metres (an approximate average cost for land acquisition, preparation and equipment).
2.2.64 For example, where the number of dwellings proposed on a site is known commuted sum equals the number of dwellings proposed x 39m2 per dwelling x £10 per m2..
2.2.65 Where the number of dwellings proposed on a site is not known commuted sum equals the site area (hectares) x 24.7 dwellings per ha. x 39m2 per dwelling x £10 / m2.
H16 Until local requirements are assessed, the Council will determine the level and type of outdoor playing space needed in a locality using the 'NPFA Standard' (broadly 2.22.6ha per 1000 population). Where, depending on local circumstances, (including the population profile and the nature of the proposed development), a need is demonstrated, the Council will secure arrangements for the appropriate provision of outdoor playing space on all schemes involving 15 dwellings or more, at a rate of 58.5 sq metres per dwelling, (39 sq metres adult/youth OPS and 19.5 sq metres children's OPS), unless otherwise agreed. The need for landscaping, screening or nature conservation will be assessed under other policies of this Plan.
2.2.66 There is not an identified need for designation of a site for gypsy accommodation at the current time. Should such a need arise within the plan period the Council would encourage private site provision by the gypsies and assist in selecting a suitable site.
2.2.67 The aim of the Council, if a demand arises, is to secure provision of a site appropriate to gypsy accommodation needs while protecting amenity. Overall proposals for gypsy sites should be determined solely in relation to land use factors.
2.2.68 The Council consider that suitable gypsy sites will be in rural or urban fringe locations which are consistent with agricultural, archaeological, countryside and environmental policies in the plan. A site needs to be close to an existing settlement to be within a reasonable distance of local services such as shops, hospitals and schools and have good access to the highway network. A site also needs to be able to accommodate mixed residential and business use as many gypsies prefer to run their businesses from where their caravans are stationed. On site provision of parking, turning and servicing needs to be considered together with provision of landscaping to help visual amenity.
H17 In the case of interest by gypsies to locate in Holderness, the Council will assist in selecting a suitable site subject to the following criteria:
1. Location in a rural or semirural area to be consistent with agricultural, archaeological, countryside and environmental policies in the plan.
2. Location should be well related to services and facilities.
3. Site to be able to accommodate mixed residential and business use.
4. A site to have good access to the highway network.
5. Provision is made for parking, turning and servicing needs and for landscaping.
Summary Table Housing Land Allocations