Planning for Housing
Planning for Housing
Preferred Housing Sites September 2006
Local Development Framework
Planning for Housing Preferred Housing Sites
Local Development Framework
September 2006
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
Contents 1.
Introduction
5
2.
The Objectives of Planning for Housing
7
3.
Planning for Housing – the preferred strategy 9 Housing Numbers 9 Preferred Options for Planning for Housing – Issue 1 (What level of growth should the district be aiming for?) – a clarification 12
4.
Sustainability Appraisal
15
5.
General considerations
15
6.
Selecting preferred sites for residential development Selection criteria Summary of the preferred sites
17 17 19
7.
The Preferred Sites 23 Land at Tail Upon End Lane, Bowburn 23 Land at Horton Crescent, Bowburn 27 Land east of Brandon Football Club, Brandon 30 Land at Lynn Crescent, Cassop 34 Land adjacent to Lowfield Bungalow, Foundry Row, Coxhoe 38 Land at Sidegate House, Sidegate, Durham 42 Land at Willowtree Avenue, Gilesgate Moor, Durham 46 Durham Police Station, New Elvet 50 Durham Johnston Comprehensive School, Whinney Hill site, Durham 53 Service Direct Depot, Finchale Road, Pity Me, Durham 57 County Durham Fire & Rescue Service HQ, Finchale Road, Framwellgate Moor, Durham 61 Community Centre, Carr House Drive, Newton Hall, Durham 65 Land at Bent House Lane, Durham 69 Land at Paddock House, Low Pittington 73 Oversteads House and land adjacent to Oversteads House, Ushaw Moor 77 Land at works east of Station Road, Ushaw Moor 81
8.
Other sites not recommended as preferred sites
85
9.
How to comment on this document
93
Appendix 1 – Map of district showing location of all housing sites
95
Appendix 2 – Location plans for sites (by settlement)
99
Maps in this document are reproduced from Ordnance Survey material with the permission of the Ordnance Survey on behalf of the Controller of Her Majesty’s Stationary Office © Crown copyright. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings. Durham City Council. Licence No. LA077798.2005
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
1.
Introduction
1.1
Planning for Housing (Preferred Housing Sites) follows on from our Preferred Options for Housing published in September 2005 and sets out the Council’s preferred sites for residential development for the period from now to 2021. It forms part of the new City of Durham Local Development Framework (LDF) which is replacing gradually the existing Local Plan for the district (Planning for Housing will be a Development Plan Document within the LDF).
1.2
Our September 2005 consultation requested that sites be submitted to the Council to be considered as new housing allocations for Planning for Housing. Including a number of City Council owned sites, a total of 78 sites were put forward as a result of this request and all of these have been considered by the Council. They have been considered against the principles of sustainable development and the Council’s goals of promoting a Capital City and Flourishing Communities within the district.
1.3
This document forms an additional ‘Regulation 26’ consultation as previous consultations did not include any housing sites for consideration. It is the last consultation document prior to producing a final draft for submission to the Secretary of State in summer 2007 and examination in public in early 2008.
1.4
Through this consultation we are looking for comments on the following aspects of the document: • • • •
the specific sites put forward as our preferred sites; the sites that have not been selected; the number of dwellings that we intend to allocate land for; and the Sustainability Appraisal of all the sites.
Specifically, we are not looking for comments on issues previously covered in detail in the Planning for Housing Preferred Options published in September 2005. 1.5
We are also consulting on the following documents concurrently with the consultation on this document: • • •
1.6
Sustainability Appraisal of Housing Sites; Issues and Alternative Options for Development Control Policies; and Issues and Alternative Options for Planning for our Heritage
Details of how to comment on any these documents can be found at the end of this document.
5
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
1.7
For reference copies of all comments and the Council’s response made on the Planning for Housing (Preferred Options) of September 2005 are available for inspection at the Council’s offices at Byland Lodge, Hawthorn Terrace, Durham between 8.30am and 5pm Monday to Thursday and 8.30am and 4.30pm Fridays. Individual consultees will have received notification of the Council’s response to their representation(s) when being informed about the consultation on this document.
6
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
2.
The Objectives of Planning for Housing
2.1
The objectives for Planning for Housing derive from the overall objectives of the Local Development Framework. They are set out below underneath the relevant LDF objective D
E
I
Developing the Wellbeing of the District – Developing the well being of the district, through tackling inequalities in health, lowering crime and perceptions of crime, investing in our communities, improving local neighbourhoods, valuing creativity and diversity and providing social economic and cultural prosperity. •
Encouraging the formation of mixed and balanced communities
•
Ensure any new housing developments are within easy reach of employment opportunities, public transport networks, and local services including shops, schools and health facilities.
•
Ensure that benefits are sought from housing developers through Planning Obligations, particularly in relation to necessary infrastructure associated with the development.
Population and Housing – Housing provision for new homes, variety of house types, and provision for a variety of occupant. Housing to be situated within existing towns and villages with existing infrastructure. •
Ensure the delivery of the housing supply allocated to Durham City District by Government Office for the North East and the North East Assembly.
•
To ensure that the housing requirement for Durham during the plan period is met, including the requirement for affordable housing.
•
To make the most efficient use of land by maximising the use of previously developed sites (in accordance with Government Policy), by increasing the conversion and re-use of existing buildings for housing development.
Environment – Improvement of poor quality environments especially in towns and villages. To conserve attractive landscapes and buildings and to conserve and enhance natural habitats. Conservation and enhancement of the special character of the World Heritage Site.
7
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
•
Ensure that any new housing is constructed to a high quality of design.
8
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
3.
Planning for Housing – the preferred strategy
3.1
This consultation set out the Council’s approach towards allocating sites for housing. In summary it is as follows: •
Housing numbers will accord with a strategy of providing for regeneration of the district, provision of affordable housing and some limited growth;
•
New housing will be located in Durham City and the larger villages most readily accessible to the city;
•
Through the allocation of sites and approval of planning permissions the Council will aim to meet the government and regional target of developing 65% of new dwellings on previously-developed land;
•
Ensuring increased provision of affordable housing through new residential developments to help address the affordable housing need identified in the district’s Housing Needs Study;
•
Restricting new development in the countryside to homes for essential agricultural and forestry workers only; and
•
Looking at the possibility of providing an additional site for travellers and gypsies in the district.
Housing Numbers 3.2
The number of new dwellings to be provided in the City of Durham district has traditionally been set out in the Structure Plan for County Durham. This is now being replaced by the emerging Regional Spatial Strategy (RSS) for the North East, which has recently been subject to an Examination in Public in front of a panel of independent inspectors from the Planning Inspectorate.
3.3
In the Panel Report Draft of the RSS (the most recent draft) the City of Durham was allocated 3200 dwellings for the period 2004 – 2021 equating to an average of 188.2 dwellings per annum. The figure was further broken down into three phases as set out in Table 3.1 below: Table 3.1 – Panel Report RSS Housing Allocation for the City of Durham
3.4
2004-11
2011-16
2016-21
2004-21
225 dwellings per annum
180 dwellings per annum
145 dwellings per annum
Total: 3200 dwellings
This allocation has raised a number of issues for the district given the number of completions in the period 2004-6 and the number of
9
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
planning permissions granted that have yet to be implemented or are still under construction. 3.5
As of 30th June 2006 the combined figures for housing completions and commitments for the RSS period of 2004 – 2021 were as follows: Table 3.2 – Housing completions and commitments in the City of Durham District since 2004 Net Completions 2004-6
Planning permissions (granted)
Minus Doublecounted applications (Outline/ Revised)
Number of dwellings
777
1747
-265
37
2296
% on Previously Developed Land
66.1
88.7
93.6
100
80.8
Allocations (current Local Plan)
TOTAL
Fig 3.1 - City of Durham Housing Requirements 2004-2021 500 450 400 Net additional dwellings (completions to date)
Number of Dwellings
350 Net additional dwellings (existing commitments)
300
Net additional dwellings (RSS required)
250 200
Submission Draft RSS annual requirement
150
Net Additional dwellings required (based on RSS allocation compared to build rate)
100 50
2020/21
2019/20
2018/19
2017/18
2016/17
2015/16
2014/15
2013/14
2012/13
2011/12
2010/11
2009/10
2008/09
2007/08
2006/07
2005/06
2004/05
0
Year
3.6
The City of Durham district has exceeded its County Durham Structure Plan allocation for the period 1991 – 2006 by 1232 dwellings (which equates to a 41.1% oversupply). If this oversupply were to be taken into account, existing permissions and allocations would result in a projected oversupply of 106 dwellings over the total Submission Draft RSS housing allocation by 2010/11 (based on current completion rates). This would result in an untenable position where by the district would not be able to provide any new housing for the remaining ten years of the RSS. Therefore it has been decided not to take the Structure Plan oversupply into account, in line with the position taken by the other six districts in County Durham. This results in a housing requirement of 904 net additional dwellings over the remainder of the RSS plan period equating to 82 dwellings per annum in the period 2011 – 2021 as shown in Figure 3.1.
10
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
3.7
However in line with the preferred option (Regeneration and Affordable Housing and limited growth) as set on out in Planning for Housing Preferred Options (September 2005) the Council is proposing to plan for 1104 net additional dwellings over the period 2006-2021. This was highlighted as the most sustainable approach and equates to an average of 200 dwellings per annum between 2004 and 2021. Given recent completion rates well in excess of this figure it equates to a planned completion rate of around 100 net additional dwellings per annum from 2011 to 2021.
3.8
This is further reduced to 75 dwellings per annum as allocated land for approximately 305 dwellings in the period 2006-2011, sites for 369 dwellings are reserved for the period 2011-2016 and sites for 158 dwellings are reserved for the period 2016-2021. The remaining 272 dwellings are divided between regeneration sites in the villages and mixed-use sites allocated in Planning for the City Centre and Retailing DPD. Details of this are shown in Fig 3.2. Fig 3.2 - City of Durham planned build rate 2004-2021 500
400
300 Number of Dwellings
Net additional dwellings (completions to date)
Net additional dwellings (existing commitments)
200
Net Additional dwellings (planned completion rate in Planning for Housing)
100
Submission Draft RSS annual requirement
2020/21
2019/20
2018/19
2017/18
2016/17
2015/16
2014/15
2013/14
2012/13
2011/12
2010/11
2009/10
2008/09
2007/08
2006/07
2005/06
2004/05
0
Number of houses that should be built to achieve RSS allocation
-100
-200 Year
3.9
The proposed allocation in Planning for Housing results in 200 more dwellings in the district in the period up to 2021 then provided for in the Panel Report draft figures for the RSS. This option was highlighted as the most sustainable option in the Sustainability Appraisal of Planning for Housing Preferred Options in September 2005. It also takes into account a 6.25% margin of flexibility into the draft RSS figures. This is considered reasonable given the fluctuations in housing requirements that the RSS models have produced including a 31.4% rise for Durham City itself between the models of November 2004 and March 2006 and a 7% range for County Durham as a whole.
3.10
The preferred number of net additional dwellings takes into account the need to deliver regeneration in some of the villages and also to provide more affordable homes across the district, but especially in Durham City itself. With regard to the provision of affordable housing a number of the preferred sites will be reserved for affordable housing only (to be
11
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
provided by a Registered Social Landlord or other equivalent provider and to be affordable in perpetuity). 3.11
It is hoped that the RSS will proceed towards an early review with new housing allocations for the districts being produced. In line with draft Planning Policy Statement (PPS) 3 these should be based on Housing Market Assessments. Work on producing a Housing Market Assessment for the County Durham sub-region has recently commenced.
3.12
As the housing provision in this document is based on the Submission Draft RSS it may be subject to change. The Examination in Public for the RSS has been completed and we are awaiting the Panel Report this summer, followed by the Secretary of State’s proposed modifications in the autumn. Therefore by the time Planning for Housing is submitted to the Secretary of State in summer 2007 there will be a clear indication of what the final RSS housing allocation is likely to be.
Preferred Options for Planning for Housing – Issue 1 (What level of growth should the district be aiming for?) – a clarification 3.13
3.14
In our consultation in September – November 2005 we set out our preferred option for the level of growth the district should be aiming for. We set out four options, however what was not stated was how many dwellings this would deliver and to clarify this point the figures which were used to appraise these options are included here. The options (including proposed number of dwellings) were as follows: •
No new housing developments – at that time if all existing permissions were built it would result in 154 dwellings per annum for the RSS period (2625 dwellings in total);
•
Regeneration and affordable housing only – 176 dwellings per annum in line with the submission draft RSS (3000 dwellings in total);
•
Regeneration and affordable housing and limited growth – 200 dwellings per annum throughout the RSS period (3400 dwellings in total) (PREFERRED OPTION);
•
Modest or significant growth – 350 dwellings per annum (5950 dwellings in total).
As these numbers were not specified in the original consultation on the Preferred Options for Planning for Housing, they are included within this consultation. We would welcome comments on the above build rates where this materially alters any representations made previously on Planning for Housing. Representations may also be made on the
12
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
number of dwellings proposed as part of the Preferred Option during the consultation on this document.
13
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
4.
Sustainability Appraisal
4.1
The Preferred Options for Planning for Housing (September 2005) was subject to a full Sustainability Appraisal and the Council’s preferred strategy for residential development was found to be a sustainable approach.
4.2
All of the sites put forward for consideration as potential allocations have been subject to a Sustainability Appraisal which is out for consultation concurrently with this document. The appraisals have been used to inform the selection of the Council’s preferred sites.
4.3
Details of the selection criteria and key aspects of individual Sustainability Appraisals are discussed in Chapter 6 where the sites themselves are looked at in more detail.
5.
General considerations
5.1
At this stage the Council is only consulting on the suitability of the sites for housing. The final selection of sites for the submission draft of Planning for Housing will be dependent on a Strategic Flood Risk Assessment of all the sites, the capacity of the utilities infrastructure and the highways network serving each site. This work will be undertaken concurrently with this consultation and before work commences on producing the submission draft of Planning for Housing.
5.2
Each site will be subject to a design brief before planning permission is granted for development to ensure that a high standard of design prevails in the district and on the individual sites.
5.3
Developer contributions towards affordable housing, regeneration of the locality of the sites, provision of public art and provision of amenity space, in accord with the preferred options set out in our September 2005 consultation on the Preferred Options for Planning for Housing, will also be required for each site.
5.4
The City Council is currently preparing new Development Control Policies covering design, accessibility and layout of development. These policies will be adopted by the Council in 2009 and subsequent to this all development proposals on any of the preferred sites must be in accord with these policies. The Issues and Alternative Options for Development Control Policies are on consultation concurrently with this document.
15
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
6.
Selecting preferred sites for residential development
6.1
A total of 78 sites have been submitted to and considered by the Council as to their suitability to being a housing allocation in Planning for Housing. If all these sites had been developed an estimated 6914 new dwellings could have been provided within the district on 31.61ha of previously developed land and 179.04ha of greenfield land.
6.2
The development of this number of dwellings would be well in excess of our submission draft RSS allocation so therefore it has been necessary to devise some criteria to select sites in order not to go over our RSS allocation. The selection criteria also needed to promote sustainable development and the Council’s goals of being a Capital City and having Flourishing Communities.
Selection criteria 6.3
The primary criterion was to find land for 1104 dwellings within the district. Enough land was put forward following our consultation on the Preferred Options for Planning for Housing in September 2005 for 6914 additional dwellings in the district so rigorous selection criteria were required.
6.4
Therefore the following criteria were applied to the sites which resulted in ten of the sixteen preferred sites being selected: a)
The sites had to be in Durham City or one of the larger villages as set out in our preferred options from September 2005;
b)
They were not part of an existing allocation for a non-residential use in the City of Durham Local Plan 2004 as the small number of new dwellings required did not warrant any de-allocations;
c)
The Sustainability Appraisal score had to be 0 or above (a neutral or positive effect of developing the site);
d)
They were less than five minutes walk from a bus stop;
e)
They were either in the City Centre or had a minimum daytime bus service frequency to the City Centre of one bus every half hour;
f)
They were within ten minutes walk of a local shop and fifteen minutes walk of a post office and supermarket; and
g)
They were within twenty minutes walk of the nearest primary school.
17
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
6.5
The six remaining sites were selected for the following reasons: a)
Land at Tail Upon End Lane, Bowburn is part of the masterplan for the regeneration of Bowburn village. The site is in a larger village and meets all the selection criteria apart from the Sustainability Appraisal score of 0 or above. It has been included because it has already been identified as part of a published masterplan. Residential development of the site would be contrary to Local Plan policy at the current time.
b)
Land at Lynn Crescent, Cassop is put forward as an existing Durham Villages Regeneration Company development proposal that has yet to receive planning consent. It is for this reason alone that it has been put forward as the only criteria it meets are accessibility to a bus stop and accessibility to a primary school. There is a post office and shop in the village.
c)
Land at Bent House Lane, Durham is put forward as an ‘exception site’ for affordable housing only to help meet the demand for affordable homes in Durham City. It meets all the selection criteria except the Sustainability Appraisal score of 0 or above and being within fifteen minutes walk of a Post Office.
d)
Land at Willowtree Avenue, Gilesgate Moor, Durham is put forward as an ‘exception site’ for affordable housing only to help meet the need for affordable homes in Durham City. It is similar to Bent House Lane, the main difference being it’s slightly better Sustainability Appraisal score. This site meets all the selection criteria except the Sustainability Appraisal score of 0 or above.
e)
Community Centre, Carr House Drive, Newton Hall, Durham meets all the criteria for selection apart from it being located within the Newton Hall Local Centre. However the community centre is relocating to a purpose built facility adjacent to Abbey Woods Sports Centre and as part of Planning for the City Centre and Retailing the existing site is proposed for de-allocation. As such the Community Centre, Carr House Drive is proposed as a housing site in this document.
f)
Land at Paddock House, Low Pittington has been included as it was previously recommended that the land be included within the settlement boundary of Low Pittington by the Inspector at the Inquiry into the existing Local Plan. This change was not made then but following a review of the site it is proposed to include it through Planning for Housing. The site meets all the selection criteria except the Sustainability Appraisal score of 0 or above, being within fifteen minutes walk of a small supermarket and being located in Durham City or a larger village.
18
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
6.6
Sites would have been selected so that at least 60% were on previously-developed land had this been necessary. However as the Sustainability Appraisal scoring favoured previously-developed sites, the chosen sites already resulted in this target being met so there was no need to select any other sites to ensure that the target was met.
Summary of the preferred sites 6.7
The Council is proposing seventeen sites as its preferred locations for residential development up to 2021. Two of these sites are proposed as allocations for the period up to 2011 and the remainder as reserved sites for phased development between 2011-2016 and 2016-2021. Table 6.1 below contains a summary of the sites. Table 6.1 – Summary details of preferred housing sites Our Settlement Site Est. no. of Site Size dwellings Code (ha) Land at Tail Upon End Lane, Bowburn BO01
Bowburn
1.49
Brownfield/ Greenfield
44
Bowburn
1.23
Brandon
2.58
36
Mixed
77
Greenfield
16
Mixed
Land at Lynn Crescent, Cassop CA02
Cassop
0.56
-12
Public recreation ground
Development phase: 2006-2011
Land east of Brandon Football Club, Brandon BR01
Current Use
Development phase: 2011-2016 Greenfield
Land at Horton Crescent, Bowburn BO02
Sustainability Appraisal score
27
Open space/demolition site
Development phase: 2011-2016 6
North end of site is scrub land Southern section is open space Part of northern site used for grazing horses
Development phase: 2006-2011 -27
Garages Open space Bus turning circle
Land adjacent to Lowfield Bungalow, Foundry Row, Coxhoe CO05 Coxhoe 0.41 12 Greenfield
Development phase: 2011-2016
Land at Sidegate House, Sidegate, Durham
Development phase: 2006-2011
CF04
Durham City
0.23
11
Mixed
Land at Willowtree Avenue, Gilesgate Moor, Durham (Affordable Housing only) CG01 Durham City 1.51 60 Greenfield
19
18
12
Field
House and residential curtilage and adjacent overgrown land
Development phase: 2016-2021 -12
Scrubland used for dog walking
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
Table 6.1 – Summary details of preferred housing sites Our Settlement Site Est. no. of Site Size dwellings Code (ha) Durham Police Station, New Elvet E01
Durham City
0.39
20
Brownfield/ Greenfield
Sustainability Appraisal score
Current Use
Development phase: 2016-2021 Brownfield
Durham Johnston Comprehensive School, Whinney Hill site, Durham E02 Durham City 2.64 104 Brownfield
30
Police Station
Development phase: 2011-2016 15
School
Service Direct Depot, Finchale Road, Pity Me, Durham Development phase: 2006-2011 FM01
Durham City
5.9
236
Brownfield
33
Durham County Council Service Direct depot
County Durham Fire and Rescue Service HQ, Finchale Development phase: 2016-2021 Road, Framwellgate Moor FM02 Durham City 1.97 78 Brownfield 42 Fire and ambulance station Community Centre, Carr House Drive, Newton Hall, Durham NS01 Durham City 0.94 37 Brownfield
Development phase: 2011-2016
Land at Bent House Lane, Durham (Affordable Housing only) PG01 Durham City 0.96 38
Development phase: 2011-2016 Greenfield
Land at Paddock House, Low Pittington LP01
Low Pittington
0.2
6
33
-18
Recreational and community facilities
Field
Development phase: 2006-2011 Brownfield
-12
Stables & Ménage area
Oversteads House and land adj to Oversteads House, Ushaw Moor UM05 Ushaw Moor 1.1 33 Mixed
Development phase: 2011-2016
Land at works east of Station Road, Ushaw Moor
Development phase: 2011-2016
UM06
Ushaw Moor
0.81
24
Brownfield
18
21
Open Space Oversteads House
Light industry factory unit
NB: The estimated number of dwellings is simply the site size multiplied by 50 (for 50 dwellings per hectare in Durham City Centre), by 40 (for 40 dwellings per hectare in the suburban areas of Durham City) or by 30 (for 30 dwellings per hectare in the villages). This number will be subject to change in the submission draft of Planning for Housing.
6.8
A further source of housing will come from regeneration developments in the villages (Village regeneration sites). 130 dwellings from the total number planned are set aside for the purpose of (re)development of previously developed land and small greenfield sites (having a total developable area of less than 0.33ha) within the villages.
6.9
In addition it is proposed to allocate land for approximately 130 dwellings in the City Centre. These allocations are covered in our
20
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
Preferred Options for the City Centre and Retailing which is subject to a separate consultation concurrent to the consultation on this document. 6.10
A set of summary statistics regarding the preferred sites is shown in Table 6.2 below: Total size of all sites (ha) 22.92 1
6.11
Table 6.2 – Summary statistics of preferred sites Total number % Previously% of of dwellings developed dwellings in land Villages 66.9 2
1104
35.1
Est. number of affordable homes in Durham City 234 3
Details of the preferred sites are discussed in the next section and following that there is a summary section covering the sites that have not been put forward as preferred sites including the reasons why they have not been selected.
1
Not including sites from Planning for the City Centre and Retailing or Village regeneration sites 2 Not including Village regeneration sites 3 Includes 100% affordable homes on “Land at Willowtree Ave” and “Land at Bent House Lane”. Not including sites from Planning for the City Centre and Retailing
21
Preferred Housing Sites September 2006
Local Development Framework
Planning for Housing Preferred Housing Sites
Local Development Framework
September 2006
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
Contents 1.
Introduction
5
2.
The Objectives of Planning for Housing
7
3.
Planning for Housing – the preferred strategy 9 Housing Numbers 9 Preferred Options for Planning for Housing – Issue 1 (What level of growth should the district be aiming for?) – a clarification 12
4.
Sustainability Appraisal
15
5.
General considerations
15
6.
Selecting preferred sites for residential development Selection criteria Summary of the preferred sites
17 17 19
7.
The Preferred Sites 23 Land at Tail Upon End Lane, Bowburn 23 Land at Horton Crescent, Bowburn 27 Land east of Brandon Football Club, Brandon 30 Land at Lynn Crescent, Cassop 34 Land adjacent to Lowfield Bungalow, Foundry Row, Coxhoe 38 Land at Sidegate House, Sidegate, Durham 42 Land at Willowtree Avenue, Gilesgate Moor, Durham 46 Durham Police Station, New Elvet 50 Durham Johnston Comprehensive School, Whinney Hill site, Durham 53 Service Direct Depot, Finchale Road, Pity Me, Durham 57 County Durham Fire & Rescue Service HQ, Finchale Road, Framwellgate Moor, Durham 61 Community Centre, Carr House Drive, Newton Hall, Durham 65 Land at Bent House Lane, Durham 69 Land at Paddock House, Low Pittington 73 Oversteads House and land adjacent to Oversteads House, Ushaw Moor 77 Land at works east of Station Road, Ushaw Moor 81
8.
Other sites not recommended as preferred sites
85
9.
How to comment on this document
93
Appendix 1 – Map of district showing location of all housing sites
95
Appendix 2 – Location plans for sites (by settlement)
99
Maps in this document are reproduced from Ordnance Survey material with the permission of the Ordnance Survey on behalf of the Controller of Her Majesty’s Stationary Office © Crown copyright. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings. Durham City Council. Licence No. LA077798.2005
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
1.
Introduction
1.1
Planning for Housing (Preferred Housing Sites) follows on from our Preferred Options for Housing published in September 2005 and sets out the Council’s preferred sites for residential development for the period from now to 2021. It forms part of the new City of Durham Local Development Framework (LDF) which is replacing gradually the existing Local Plan for the district (Planning for Housing will be a Development Plan Document within the LDF).
1.2
Our September 2005 consultation requested that sites be submitted to the Council to be considered as new housing allocations for Planning for Housing. Including a number of City Council owned sites, a total of 78 sites were put forward as a result of this request and all of these have been considered by the Council. They have been considered against the principles of sustainable development and the Council’s goals of promoting a Capital City and Flourishing Communities within the district.
1.3
This document forms an additional ‘Regulation 26’ consultation as previous consultations did not include any housing sites for consideration. It is the last consultation document prior to producing a final draft for submission to the Secretary of State in summer 2007 and examination in public in early 2008.
1.4
Through this consultation we are looking for comments on the following aspects of the document: • • • •
the specific sites put forward as our preferred sites; the sites that have not been selected; the number of dwellings that we intend to allocate land for; and the Sustainability Appraisal of all the sites.
Specifically, we are not looking for comments on issues previously covered in detail in the Planning for Housing Preferred Options published in September 2005. 1.5
We are also consulting on the following documents concurrently with the consultation on this document: • • •
1.6
Sustainability Appraisal of Housing Sites; Issues and Alternative Options for Development Control Policies; and Issues and Alternative Options for Planning for our Heritage
Details of how to comment on any these documents can be found at the end of this document.
5
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
1.7
For reference copies of all comments and the Council’s response made on the Planning for Housing (Preferred Options) of September 2005 are available for inspection at the Council’s offices at Byland Lodge, Hawthorn Terrace, Durham between 8.30am and 5pm Monday to Thursday and 8.30am and 4.30pm Fridays. Individual consultees will have received notification of the Council’s response to their representation(s) when being informed about the consultation on this document.
6
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
2.
The Objectives of Planning for Housing
2.1
The objectives for Planning for Housing derive from the overall objectives of the Local Development Framework. They are set out below underneath the relevant LDF objective D
E
I
Developing the Wellbeing of the District – Developing the well being of the district, through tackling inequalities in health, lowering crime and perceptions of crime, investing in our communities, improving local neighbourhoods, valuing creativity and diversity and providing social economic and cultural prosperity. •
Encouraging the formation of mixed and balanced communities
•
Ensure any new housing developments are within easy reach of employment opportunities, public transport networks, and local services including shops, schools and health facilities.
•
Ensure that benefits are sought from housing developers through Planning Obligations, particularly in relation to necessary infrastructure associated with the development.
Population and Housing – Housing provision for new homes, variety of house types, and provision for a variety of occupant. Housing to be situated within existing towns and villages with existing infrastructure. •
Ensure the delivery of the housing supply allocated to Durham City District by Government Office for the North East and the North East Assembly.
•
To ensure that the housing requirement for Durham during the plan period is met, including the requirement for affordable housing.
•
To make the most efficient use of land by maximising the use of previously developed sites (in accordance with Government Policy), by increasing the conversion and re-use of existing buildings for housing development.
Environment – Improvement of poor quality environments especially in towns and villages. To conserve attractive landscapes and buildings and to conserve and enhance natural habitats. Conservation and enhancement of the special character of the World Heritage Site.
7
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
•
Ensure that any new housing is constructed to a high quality of design.
8
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
3.
Planning for Housing – the preferred strategy
3.1
This consultation set out the Council’s approach towards allocating sites for housing. In summary it is as follows: •
Housing numbers will accord with a strategy of providing for regeneration of the district, provision of affordable housing and some limited growth;
•
New housing will be located in Durham City and the larger villages most readily accessible to the city;
•
Through the allocation of sites and approval of planning permissions the Council will aim to meet the government and regional target of developing 65% of new dwellings on previously-developed land;
•
Ensuring increased provision of affordable housing through new residential developments to help address the affordable housing need identified in the district’s Housing Needs Study;
•
Restricting new development in the countryside to homes for essential agricultural and forestry workers only; and
•
Looking at the possibility of providing an additional site for travellers and gypsies in the district.
Housing Numbers 3.2
The number of new dwellings to be provided in the City of Durham district has traditionally been set out in the Structure Plan for County Durham. This is now being replaced by the emerging Regional Spatial Strategy (RSS) for the North East, which has recently been subject to an Examination in Public in front of a panel of independent inspectors from the Planning Inspectorate.
3.3
In the Panel Report Draft of the RSS (the most recent draft) the City of Durham was allocated 3200 dwellings for the period 2004 – 2021 equating to an average of 188.2 dwellings per annum. The figure was further broken down into three phases as set out in Table 3.1 below: Table 3.1 – Panel Report RSS Housing Allocation for the City of Durham
3.4
2004-11
2011-16
2016-21
2004-21
225 dwellings per annum
180 dwellings per annum
145 dwellings per annum
Total: 3200 dwellings
This allocation has raised a number of issues for the district given the number of completions in the period 2004-6 and the number of
9
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
planning permissions granted that have yet to be implemented or are still under construction. 3.5
As of 30th June 2006 the combined figures for housing completions and commitments for the RSS period of 2004 – 2021 were as follows: Table 3.2 – Housing completions and commitments in the City of Durham District since 2004 Net Completions 2004-6
Planning permissions (granted)
Minus Doublecounted applications (Outline/ Revised)
Number of dwellings
777
1747
-265
37
2296
% on Previously Developed Land
66.1
88.7
93.6
100
80.8
Allocations (current Local Plan)
TOTAL
Fig 3.1 - City of Durham Housing Requirements 2004-2021 500 450 400 Net additional dwellings (completions to date)
Number of Dwellings
350 Net additional dwellings (existing commitments)
300
Net additional dwellings (RSS required)
250 200
Submission Draft RSS annual requirement
150
Net Additional dwellings required (based on RSS allocation compared to build rate)
100 50
2020/21
2019/20
2018/19
2017/18
2016/17
2015/16
2014/15
2013/14
2012/13
2011/12
2010/11
2009/10
2008/09
2007/08
2006/07
2005/06
2004/05
0
Year
3.6
The City of Durham district has exceeded its County Durham Structure Plan allocation for the period 1991 – 2006 by 1232 dwellings (which equates to a 41.1% oversupply). If this oversupply were to be taken into account, existing permissions and allocations would result in a projected oversupply of 106 dwellings over the total Submission Draft RSS housing allocation by 2010/11 (based on current completion rates). This would result in an untenable position where by the district would not be able to provide any new housing for the remaining ten years of the RSS. Therefore it has been decided not to take the Structure Plan oversupply into account, in line with the position taken by the other six districts in County Durham. This results in a housing requirement of 904 net additional dwellings over the remainder of the RSS plan period equating to 82 dwellings per annum in the period 2011 – 2021 as shown in Figure 3.1.
10
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
3.7
However in line with the preferred option (Regeneration and Affordable Housing and limited growth) as set on out in Planning for Housing Preferred Options (September 2005) the Council is proposing to plan for 1104 net additional dwellings over the period 2006-2021. This was highlighted as the most sustainable approach and equates to an average of 200 dwellings per annum between 2004 and 2021. Given recent completion rates well in excess of this figure it equates to a planned completion rate of around 100 net additional dwellings per annum from 2011 to 2021.
3.8
This is further reduced to 75 dwellings per annum as allocated land for approximately 305 dwellings in the period 2006-2011, sites for 369 dwellings are reserved for the period 2011-2016 and sites for 158 dwellings are reserved for the period 2016-2021. The remaining 272 dwellings are divided between regeneration sites in the villages and mixed-use sites allocated in Planning for the City Centre and Retailing DPD. Details of this are shown in Fig 3.2. Fig 3.2 - City of Durham planned build rate 2004-2021 500
400
300 Number of Dwellings
Net additional dwellings (completions to date)
Net additional dwellings (existing commitments)
200
Net Additional dwellings (planned completion rate in Planning for Housing)
100
Submission Draft RSS annual requirement
2020/21
2019/20
2018/19
2017/18
2016/17
2015/16
2014/15
2013/14
2012/13
2011/12
2010/11
2009/10
2008/09
2007/08
2006/07
2005/06
2004/05
0
Number of houses that should be built to achieve RSS allocation
-100
-200 Year
3.9
The proposed allocation in Planning for Housing results in 200 more dwellings in the district in the period up to 2021 then provided for in the Panel Report draft figures for the RSS. This option was highlighted as the most sustainable option in the Sustainability Appraisal of Planning for Housing Preferred Options in September 2005. It also takes into account a 6.25% margin of flexibility into the draft RSS figures. This is considered reasonable given the fluctuations in housing requirements that the RSS models have produced including a 31.4% rise for Durham City itself between the models of November 2004 and March 2006 and a 7% range for County Durham as a whole.
3.10
The preferred number of net additional dwellings takes into account the need to deliver regeneration in some of the villages and also to provide more affordable homes across the district, but especially in Durham City itself. With regard to the provision of affordable housing a number of the preferred sites will be reserved for affordable housing only (to be
11
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
provided by a Registered Social Landlord or other equivalent provider and to be affordable in perpetuity). 3.11
It is hoped that the RSS will proceed towards an early review with new housing allocations for the districts being produced. In line with draft Planning Policy Statement (PPS) 3 these should be based on Housing Market Assessments. Work on producing a Housing Market Assessment for the County Durham sub-region has recently commenced.
3.12
As the housing provision in this document is based on the Submission Draft RSS it may be subject to change. The Examination in Public for the RSS has been completed and we are awaiting the Panel Report this summer, followed by the Secretary of State’s proposed modifications in the autumn. Therefore by the time Planning for Housing is submitted to the Secretary of State in summer 2007 there will be a clear indication of what the final RSS housing allocation is likely to be.
Preferred Options for Planning for Housing – Issue 1 (What level of growth should the district be aiming for?) – a clarification 3.13
3.14
In our consultation in September – November 2005 we set out our preferred option for the level of growth the district should be aiming for. We set out four options, however what was not stated was how many dwellings this would deliver and to clarify this point the figures which were used to appraise these options are included here. The options (including proposed number of dwellings) were as follows: •
No new housing developments – at that time if all existing permissions were built it would result in 154 dwellings per annum for the RSS period (2625 dwellings in total);
•
Regeneration and affordable housing only – 176 dwellings per annum in line with the submission draft RSS (3000 dwellings in total);
•
Regeneration and affordable housing and limited growth – 200 dwellings per annum throughout the RSS period (3400 dwellings in total) (PREFERRED OPTION);
•
Modest or significant growth – 350 dwellings per annum (5950 dwellings in total).
As these numbers were not specified in the original consultation on the Preferred Options for Planning for Housing, they are included within this consultation. We would welcome comments on the above build rates where this materially alters any representations made previously on Planning for Housing. Representations may also be made on the
12
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
number of dwellings proposed as part of the Preferred Option during the consultation on this document.
13
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
4.
Sustainability Appraisal
4.1
The Preferred Options for Planning for Housing (September 2005) was subject to a full Sustainability Appraisal and the Council’s preferred strategy for residential development was found to be a sustainable approach.
4.2
All of the sites put forward for consideration as potential allocations have been subject to a Sustainability Appraisal which is out for consultation concurrently with this document. The appraisals have been used to inform the selection of the Council’s preferred sites.
4.3
Details of the selection criteria and key aspects of individual Sustainability Appraisals are discussed in Chapter 6 where the sites themselves are looked at in more detail.
5.
General considerations
5.1
At this stage the Council is only consulting on the suitability of the sites for housing. The final selection of sites for the submission draft of Planning for Housing will be dependent on a Strategic Flood Risk Assessment of all the sites, the capacity of the utilities infrastructure and the highways network serving each site. This work will be undertaken concurrently with this consultation and before work commences on producing the submission draft of Planning for Housing.
5.2
Each site will be subject to a design brief before planning permission is granted for development to ensure that a high standard of design prevails in the district and on the individual sites.
5.3
Developer contributions towards affordable housing, regeneration of the locality of the sites, provision of public art and provision of amenity space, in accord with the preferred options set out in our September 2005 consultation on the Preferred Options for Planning for Housing, will also be required for each site.
5.4
The City Council is currently preparing new Development Control Policies covering design, accessibility and layout of development. These policies will be adopted by the Council in 2009 and subsequent to this all development proposals on any of the preferred sites must be in accord with these policies. The Issues and Alternative Options for Development Control Policies are on consultation concurrently with this document.
15
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
6.
Selecting preferred sites for residential development
6.1
A total of 78 sites have been submitted to and considered by the Council as to their suitability to being a housing allocation in Planning for Housing. If all these sites had been developed an estimated 6914 new dwellings could have been provided within the district on 31.61ha of previously developed land and 179.04ha of greenfield land.
6.2
The development of this number of dwellings would be well in excess of our submission draft RSS allocation so therefore it has been necessary to devise some criteria to select sites in order not to go over our RSS allocation. The selection criteria also needed to promote sustainable development and the Council’s goals of being a Capital City and having Flourishing Communities.
Selection criteria 6.3
The primary criterion was to find land for 1104 dwellings within the district. Enough land was put forward following our consultation on the Preferred Options for Planning for Housing in September 2005 for 6914 additional dwellings in the district so rigorous selection criteria were required.
6.4
Therefore the following criteria were applied to the sites which resulted in ten of the sixteen preferred sites being selected: a)
The sites had to be in Durham City or one of the larger villages as set out in our preferred options from September 2005;
b)
They were not part of an existing allocation for a non-residential use in the City of Durham Local Plan 2004 as the small number of new dwellings required did not warrant any de-allocations;
c)
The Sustainability Appraisal score had to be 0 or above (a neutral or positive effect of developing the site);
d)
They were less than five minutes walk from a bus stop;
e)
They were either in the City Centre or had a minimum daytime bus service frequency to the City Centre of one bus every half hour;
f)
They were within ten minutes walk of a local shop and fifteen minutes walk of a post office and supermarket; and
g)
They were within twenty minutes walk of the nearest primary school.
17
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
6.5
The six remaining sites were selected for the following reasons: a)
Land at Tail Upon End Lane, Bowburn is part of the masterplan for the regeneration of Bowburn village. The site is in a larger village and meets all the selection criteria apart from the Sustainability Appraisal score of 0 or above. It has been included because it has already been identified as part of a published masterplan. Residential development of the site would be contrary to Local Plan policy at the current time.
b)
Land at Lynn Crescent, Cassop is put forward as an existing Durham Villages Regeneration Company development proposal that has yet to receive planning consent. It is for this reason alone that it has been put forward as the only criteria it meets are accessibility to a bus stop and accessibility to a primary school. There is a post office and shop in the village.
c)
Land at Bent House Lane, Durham is put forward as an ‘exception site’ for affordable housing only to help meet the demand for affordable homes in Durham City. It meets all the selection criteria except the Sustainability Appraisal score of 0 or above and being within fifteen minutes walk of a Post Office.
d)
Land at Willowtree Avenue, Gilesgate Moor, Durham is put forward as an ‘exception site’ for affordable housing only to help meet the need for affordable homes in Durham City. It is similar to Bent House Lane, the main difference being it’s slightly better Sustainability Appraisal score. This site meets all the selection criteria except the Sustainability Appraisal score of 0 or above.
e)
Community Centre, Carr House Drive, Newton Hall, Durham meets all the criteria for selection apart from it being located within the Newton Hall Local Centre. However the community centre is relocating to a purpose built facility adjacent to Abbey Woods Sports Centre and as part of Planning for the City Centre and Retailing the existing site is proposed for de-allocation. As such the Community Centre, Carr House Drive is proposed as a housing site in this document.
f)
Land at Paddock House, Low Pittington has been included as it was previously recommended that the land be included within the settlement boundary of Low Pittington by the Inspector at the Inquiry into the existing Local Plan. This change was not made then but following a review of the site it is proposed to include it through Planning for Housing. The site meets all the selection criteria except the Sustainability Appraisal score of 0 or above, being within fifteen minutes walk of a small supermarket and being located in Durham City or a larger village.
18
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
6.6
Sites would have been selected so that at least 60% were on previously-developed land had this been necessary. However as the Sustainability Appraisal scoring favoured previously-developed sites, the chosen sites already resulted in this target being met so there was no need to select any other sites to ensure that the target was met.
Summary of the preferred sites 6.7
The Council is proposing seventeen sites as its preferred locations for residential development up to 2021. Two of these sites are proposed as allocations for the period up to 2011 and the remainder as reserved sites for phased development between 2011-2016 and 2016-2021. Table 6.1 below contains a summary of the sites. Table 6.1 – Summary details of preferred housing sites Our Settlement Site Est. no. of Site Size dwellings Code (ha) Land at Tail Upon End Lane, Bowburn BO01
Bowburn
1.49
Brownfield/ Greenfield
44
Bowburn
1.23
Brandon
2.58
36
Mixed
77
Greenfield
16
Mixed
Land at Lynn Crescent, Cassop CA02
Cassop
0.56
-12
Public recreation ground
Development phase: 2006-2011
Land east of Brandon Football Club, Brandon BR01
Current Use
Development phase: 2011-2016 Greenfield
Land at Horton Crescent, Bowburn BO02
Sustainability Appraisal score
27
Open space/demolition site
Development phase: 2011-2016 6
North end of site is scrub land Southern section is open space Part of northern site used for grazing horses
Development phase: 2006-2011 -27
Garages Open space Bus turning circle
Land adjacent to Lowfield Bungalow, Foundry Row, Coxhoe CO05 Coxhoe 0.41 12 Greenfield
Development phase: 2011-2016
Land at Sidegate House, Sidegate, Durham
Development phase: 2006-2011
CF04
Durham City
0.23
11
Mixed
Land at Willowtree Avenue, Gilesgate Moor, Durham (Affordable Housing only) CG01 Durham City 1.51 60 Greenfield
19
18
12
Field
House and residential curtilage and adjacent overgrown land
Development phase: 2016-2021 -12
Scrubland used for dog walking
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
Table 6.1 – Summary details of preferred housing sites Our Settlement Site Est. no. of Site Size dwellings Code (ha) Durham Police Station, New Elvet E01
Durham City
0.39
20
Brownfield/ Greenfield
Sustainability Appraisal score
Current Use
Development phase: 2016-2021 Brownfield
Durham Johnston Comprehensive School, Whinney Hill site, Durham E02 Durham City 2.64 104 Brownfield
30
Police Station
Development phase: 2011-2016 15
School
Service Direct Depot, Finchale Road, Pity Me, Durham Development phase: 2006-2011 FM01
Durham City
5.9
236
Brownfield
33
Durham County Council Service Direct depot
County Durham Fire and Rescue Service HQ, Finchale Development phase: 2016-2021 Road, Framwellgate Moor FM02 Durham City 1.97 78 Brownfield 42 Fire and ambulance station Community Centre, Carr House Drive, Newton Hall, Durham NS01 Durham City 0.94 37 Brownfield
Development phase: 2011-2016
Land at Bent House Lane, Durham (Affordable Housing only) PG01 Durham City 0.96 38
Development phase: 2011-2016 Greenfield
Land at Paddock House, Low Pittington LP01
Low Pittington
0.2
6
33
-18
Recreational and community facilities
Field
Development phase: 2006-2011 Brownfield
-12
Stables & Ménage area
Oversteads House and land adj to Oversteads House, Ushaw Moor UM05 Ushaw Moor 1.1 33 Mixed
Development phase: 2011-2016
Land at works east of Station Road, Ushaw Moor
Development phase: 2011-2016
UM06
Ushaw Moor
0.81
24
Brownfield
18
21
Open Space Oversteads House
Light industry factory unit
NB: The estimated number of dwellings is simply the site size multiplied by 50 (for 50 dwellings per hectare in Durham City Centre), by 40 (for 40 dwellings per hectare in the suburban areas of Durham City) or by 30 (for 30 dwellings per hectare in the villages). This number will be subject to change in the submission draft of Planning for Housing.
6.8
A further source of housing will come from regeneration developments in the villages (Village regeneration sites). 130 dwellings from the total number planned are set aside for the purpose of (re)development of previously developed land and small greenfield sites (having a total developable area of less than 0.33ha) within the villages.
6.9
In addition it is proposed to allocate land for approximately 130 dwellings in the City Centre. These allocations are covered in our
20
City of Durham Local Development Framework Planning for Housing (Preferred Housing Sites)
Preferred Options for the City Centre and Retailing which is subject to a separate consultation concurrent to the consultation on this document. 6.10
A set of summary statistics regarding the preferred sites is shown in Table 6.2 below: Total size of all sites (ha) 22.92 1
6.11
Table 6.2 – Summary statistics of preferred sites Total number % Previously% of of dwellings developed dwellings in land Villages 66.9 2
1104
35.1
Est. number of affordable homes in Durham City 234 3
Details of the preferred sites are discussed in the next section and following that there is a summary section covering the sites that have not been put forward as preferred sites including the reasons why they have not been selected.
1
Not including sites from Planning for the City Centre and Retailing or Village regeneration sites 2 Not including Village regeneration sites 3 Includes 100% affordable homes on “Land at Willowtree Ave” and “Land at Bent House Lane”. Not including sites from Planning for the City Centre and Retailing
21
