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7.1 A central challenge for this Structure Plan
is to provide sufficient housing while protecting Kent's countryside
and enhancing the quality of urban and rural environments. People
in Kent and Medway should have access to a range and diversity of
good quality housing. With the relatively buoyant housing markets
found throughout much of the county the ability to purchase or rent
affordable housing is currently very important.
7.2 This Chapter covers the key policy issues relating to housing
provision, and has strong links with Chapters 2 (Spatial Strategy),
3 (Area Policies) and 5 (Quality of Life).
- Balancing housing growth with economic development needs
and opportunities
- Reducing reliance in greenfield sites in favour of previously
developed land
- Respecting wide ranging environmental and other policy
constraints affecting Kent
- Re-balancing household growth pressure from West to North
Kent and Ashford
- Responding to the housing needs of the whole community
- Accommodating regional requirements for housing growth
|
- There are aspirations to increase the rate of housing
completions and ensure that Regional Planning Guidance (RPG)
provisions are met; RPG9 suggests that the rate of regional
housing provision will need to increase beyond 2006.
- The average annual rate of housing provision set out in
RPG9 is 5700 dwellings per annum in Kent and Medway for
the period 2001-2016. This is equivalent to a total of 85,500
dwellings.
- In 'Sustainable Communities: building for the future'
the Government has identified four major growth areas in
London and the South East. Two of these, Ashford and a substantial
part of Thames Gateway, lie within Kent. In these areas
Government policy is to secure a substantial increase in
the supply of new housing.
|
|
Earlier public consultation for this Plan* produced strong
support for policies of urban regeneration and renaissance;
reduced reliance on greenfield development; an uplift in the
quality and design of housing development and closer tailoring
of housing provision to the needs of local communities. There
was also a clear demand for better phasing of essential community
support facilities and services and the creation of new jobs
to match new housing development. |
*Mapping out the Future: Policy Directions for the Kent and
Medway Structure Plan, Spring 2002
7.3 The scale and distribution of new housing provision needs to
take into account:
- population growth;
- other social and demographic changes;
- the scale of existing labour markets in Kent and the baIance
of housing with job supply;
- where jobs are likely to be created and strategic priorities
for economic development and regeneration;
- the quality of the environment and other locational issues.
|
Population growth, the net movement of people in and out
of different parts of the county, changing age structures
and household composition are key influences in the future
demand for housing and trends in these factors have been used
to project future household growth*
These projections indicate that if the trends continued there
would be a need for some 5,900 homes per annum in Kent and
Medway to 2016 (closely comparable with the regional guidance
provision) but with significant decline in the rate of growth
beyond 2016. The net increase in the housing stock in Kent
and Medway between 1991 and 2001 was 50,100 (5010 dwellings
per annum) - significantly (-15%) below the trend projection
and the rate anticipated in regional guidance (-14%).
More than two thirds of the projected household growth over
the 20 year period 2001-2021 is attributable to a growing
number of households (particularly one person) within the
existing population. Consequently whilst movement of people
into Kent accounts for the majority of population growth it
accounts for only about a third of the overall household growth
which is the main generator of housing needs.
Although inward migration is relatively modest overall, it
is very significant in certain areas particularly Ashford,
Canterbury, Thanet and Shepway.
Trend Based Population Change 2001-2021: Kent and Medway
| |
Total Growth |
Share of Change |
| Natural Change
(Births - Deaths) |
+34,500 |
30% |
| Net Migration into Kent |
+82,200 |
70% |
| Total Change |
+116,700 |
100% |
Trend Based Household Growth 2001-2021: Kent and Medway
| |
Household Growth |
Share of Change |
| Trend Based Growth including trend rate of net migration |
113,300 |
100% |
| Trend based growth with nil gain/loss from net migration |
76,400 |
67% |
| Effect of net migration |
36,900 |
33% |
These projections do not constitute policy guidance for individual
Districts - while projections of local household growth contribute
to the development of housing policy they should not be slavishly
converted into policy for the release of land for individual
areas. A range of other factors needs to be taken into account. |
*Details of these projections are contained in KMSP Working
Paper 1/03
7.4 Housing distribution also has to consider the varied and distinctive
character and quality of Kent's environment, the need to make the
most of development opportunities involving previously used or damaged
land and the prospects for urban housing capacity. Past development
has relied upon a significant contribution from greenfield development
and the current substantial supply of housing land already identified
also reflects considerable reliance upon this source. Some 35% of
the capacity identified in 2001 related to greenfield sites.
7.5 Kent's environment has only limited capacity to accommodate
further development on greenfield sites without adverse impact.
The easier options for expanding Kent's towns have generally been
acted upon. Most towns are now very close to, or hard up against,
land that is protected from development, for example because of
its intrinsic quality. |
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7.6 The strategy for housing provision and distribution provides
for:
- An average annual rate of housing development of 5,760 dwellings
between 2001 and 2006 in accordance with RPG9;
- A rate of development between 2006 and 2016 in accordance with
RPG9. This also reflects the provision for accelerated growth
at Ashford beyond 2006 in line with its planned status as a regional
growth area for the South East;
- A lower average rate of housing development overall in Kent
and Medway for 2016-2021 (5,300 dwellings per annum). This reflects
demographic indicators which imply reducing indigenous household
growth pressures but also a continuation of Ashford's regional
role and a sustained but moderating emphasis on Thames Gateway;
- Total housing provisions are therefore:
- 89,600 dwellings for the
- period 2001-2016
- 116,100 dwellings for the
- period 2001-2021
7.7 In meeting these requirements the housing strategy of this
Plan takes account of:
- the emphasis on regenerating and reinvesting in Kent's towns,
and the concentration of development at the principal urban areas.
The five major urban areas in particular (see Chapter
2 and Chapter 3), are locations
which offer higher quality accessibility by public transport and
serve as the main focal points for services and jobs;
- the need to make the fullest possible use of previously developed
('brownfield') land taking account of the scale, pattern and timing
of development opportunities associated with it - particularly
in Thames Gateway;
- past experience of development within existing urban areas and
opportunities for providing additional housing within them;
- the full extent of existing housing land commitments including
the contribution made to them by previously developed land.
- a review of previously identified locations for strategic scale
development which have yet to be implemented including the scope
for using them more intensively.
- the amount of employment land provision and the impact of associated
new job generation.
- an extension of Ashford's strategic role over the medium and
longer terms to reflect its contribution to regionally significant
growth. This will depend on the resolution of critical infrastructure
thresholds that will govern the rate at which development can
be accelerated and on a more balanced pattern of housing and job
creation.
- no adjustment to the extent of the Green Belt in North and West
Kent and retention of the Strategic Gap in Mid Kent.
- identification of a need for new or extended strategic development
locations in some areas.
7.8 The Plan seeks a better balance between housing and jobs, especially
where housing quantities are higher than would be needed to support
local demands and would support greater movement of population into
an area. In large parts of Kent and Medway improved local employment
performance is essential if housing provision is to support a sustainable
pattern of development. At Ashford it is a specific regional objective
that growth should provide for a parallel increase in jobs and homes.
In parts of North and West Kent there is a strong reliance on commuting
to London. The Channel Tunnel Rail Link and other service improvements
will add to these commuting pressures by improving access to, and
from, parts of Kent.
7.9 Accommodating these levels of housing throughout Kent is critically
dependent upon essential social, educational, community and transport
infrastructure being provided at the right time and properly funded
(see Policies QL12 and IMP1).
7.10 Policy HP1 sets the quantities of housing for Medway and each
district council area for the 2001-2021 period.
|
|
|
Policy HP1:
Provision for housing for 2001-2021 will be made in accordance
with the following quantities:
| |
|
Dwellings (net)
|
|
|
| |
|
|
|
|
|
|
|
Ashford
|
3,500
|
5,000
|
5,500
|
14,000*
|
6,000
|
20,000*
|
|
Canterbury
|
2,100
|
2,100
|
2,000
|
6,200
|
1,500
|
7,700
|
|
Dartford
|
3,900
|
4,000
|
4,500
|
12,400
|
3,100
|
15,500
|
|
Dover
|
1,600
|
1,600
|
1,300
|
4,500
|
1,000
|
5,500
|
|
Gravesham
|
1,400
|
1,500
|
1,500
|
4,400
|
1,100
|
5,500
|
|
Maidstone
|
2,300
|
2,200
|
2,000
|
6,500
|
1,800
|
8,300
|
|
Sevenoaks
|
800
|
800
|
800
|
2,400
|
700
|
3,100
|
|
Shepway
|
1,800
|
1,500
|
1,400
|
4,700
|
1,200
|
5,900
|
|
Swale
|
2,500
|
2,500
|
2,500
|
7,500
|
2,000
|
9,500
|
|
Thanet
|
1,700
|
1,700
|
1,700
|
5,100
|
1,500
|
6,600
|
|
Tonbridge & Malling
|
2,200
|
2,100
|
2,100
|
6,400
|
1,900
|
8,300
|
|
Tunbridge Wells
|
1,500
|
1,400
|
1,100
|
4,000
|
1,100
|
5,100
|
|
(KCC area)
|
25,300
|
26,400
|
26,400
|
78,100
|
22,900
|
101,000
|
|
Medway
|
3,500
|
3,900
|
4,100
|
11,500
|
3,600
|
15,100
|
|
Kent
|
28,800
|
30,300
|
30,500
|
86,600
|
26,500
|
116,100
|
|
|
|
|
The quantities in Policy HP1 include all forms of housing development
providing self contained dwelling units for permanent accommodation
and relate to net increases to the housing stock after 31st March
2001 i.e. net of demolitions or other losses from the housing stock.
In order to secure the overall average annual rate of provision
for the 2001/2016 period the quantities for the three phasing periods
to 2016 are cumulative i.e. any surplus or shortfall from the early
periods of the Plan are carried forward to subsequent periods. Provision
for 2016-2021 is subject to review in the light of monitoring and
a further review of RPG9.
For the purposes of implementing Policy HP1 housing provision will
mean the expected net dwelling capacity of planning permissions
and allocations in previously adopted or deposited development plans
which were outstanding at 31st March 2001 (including dwellings then
under construction) plus the planned net dwelling capacity on sites
subsequently released or to be released for development through
allocations in development plans and planning permissions. The assessment
of the level of provision in relation to Policy HP1 will also allow
for:
(i) the expected contribution from sites below the site size
threshold adopted for the identification of development plan allocations;
and
(ii) the expected contribution from other windfall sites involving
previously developed land.
|
|
7.11 Some of the key considerations in housing
provision for the sub areas of Kent and individual districts are
discussed below and in Chapter 3 (Area Based Policies), which should
be read alongside this section. |
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7.12 Dartford and Gravesham
- The provision for new housing in Kent Thameside is substantially
above demographic and household growth trends. It reflects the
established strategic role of Kent Thameside and the particular
concentration of development opportunities within the Dartford
area.
- Housing provisions fully reflect the large-scale development
opportunities associated with brownfield land including the mixed-use
developments identified in Policy NK1. The planned capacity of
these sites already takes into account higher density development
associated with good accessibility to improved public transport.
- Beyond these opportunities further releases of land for housing
on a strategic scale would conflict with the careful and phased
implementation of the long-term programme of regeneration for
the area. It would also impact upon the protection of greenfield
land and the maintenance of Green Belt boundaries.
- The amount and phasing of development intended for Kent Thameside
recognises that some sites are so large that their development
will continue beyond 2016. This is particularly the case with
Eastern Quarry within Dartford with a total envisaged capacity
of more than 7000 homes.
- In Dartford and Gravesham the level and phasing of housing provision
is firmly linked to progress with the chain of large-scale strategic
development locations identified in this Plan and the new urban
form they will support. This scale of development requires physical
and community infrastructure to support both existing and new
communities. This will need the backing of central Government
and a comprehensive programme of investment by public and private
agencies.
- The area will account for a greater share of the county's housing
provision because of the amount of previously developed and other
damaged land available for development. Housing policy provides
for significant population growth which will help support the
area's substantial potential for creating new jobs.
|
|
|
7.13 Medway
- Housing provision in Medway is broadly in line with the housing
requirements indicated by recent demographic trends. These reflect
the fact that Medway has modest population gains primarily as
a result of positive natural change (more births than deaths)
and balanced in and out migration.
- The priority for housing development in Medway will continue
to be the regeneration of key urban brownfield sites, particularly
along the riverside. However these and other sites within the
urban area will not be sufficient on their own to meet Medway's
housing requirements. Other opportunities for development are
limited by a combination of constraints. Chattenden and its immediate
environment has been identified in RPG9a as having potential for
development. The opportunity for a new or expanded settlement
will centre upon the Defence Estate which comprises the only substantial
area of previously developed land outside the urban area of Medway
which could support development of such a scale. It is expected
to be released from military use shortly.
- The development of Chattenden will be phased to begin after
the major urban regeneration sites are substantially completed
and is anticipated to extend beyond 2016. Chattenden and the larger
sites within the urban area will need to be provided with job
opportunities, social and community facilities and appropriate
infrastructure within a comprehensive development. Providing new
jobs will also help to meet Medway's strategic objective of reducing
its dependency on commuting out of the area.
|
|
|
7.14 Swale
- Although much of Swale (Sittingbourne area and Sheppey) is within
Thames Gateway housing supply has, to date, relied heavily on
greenfield development around Sittingbourne and parts of Sheppey
(Minster).
- For this reason the level and phasing of housing provision in
Swale is adjusted in this Plan to:
- reflect more accurately the distribution of previously developed
land across Thames Gateway and Kent as a whole;
- place a stronger focus on regeneration and urban renaissance
within the principal urban areas ;
- concentrate on integrated housing, economic development
and transport and accessibility improvements at the principal
urban areas of Sittingbourne and Sheerness/Queenborough /Minster.
- Notwithstanding this approach there will continue to be significant
reliance on greenfield land given the scale of existing strategic
sites;
- This Plan's housing provision for Swale remains well above locally
generated demand. It maintains recent average rates of development
into the medium and longer terms but reduces the dependence on
greenfield land. It confirms commitment to completion of strategic
development locations at North East Sittingbourne and Iwade.
|
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7.15 Canterbury
- Trend based housing requirements are influenced by the high
levels of movement of people into the area in the past. Although
strategic policy reflects restraint provision is well above requirements
associated solely with local population and household change.
New housing should be located to support the growth in the Canterbury
economy envisaged by this Plan.
- There is not expected to be any requirement for new strategic
housing locations before 2011 although this depends on progress
with implementing development at brownfield sites and regeneration
opportunities as well as making more efficient use of previously
allocated land.
|
|
| 7.16 Dover
- Housing provisions match the dwelling requirements indicated
by recent demographic trends which reflect modest gains from net
inward migration to the District.
- There is a continuing need for strategic expansion at Aylesham
(up to 1000 dwellings) which has been recently confirmed through
adoption of the Dover District Local Plan. Provision at Aylesham
is intended to go some way towards offsetting, the restraint applied
to the neighbouring Canterbury District. The strategy does not
envisage substitution between provision at Aylesham and land release
elsewhere in Dover District. Development at Aylesham is now expected
to be completed over the 2006-2016 period.
- Additional housing provision to meet strategic requirements
should be guided by detailed assessments of urban capacity, particularly
within the principal urban areas of Dover and Deal. It should
also respect the tight strategic environmental constraints around
Dover including the North Downs AONB and the need to support continuing
economic and business growth to the north of Sandwich. Policy
EK2 earmarks provision of some 300 dwellings beyond 2006 for these
purposes.
|
|
|
7.17 Thanet
- Past trends indicate that about three-quarters of the housing
requirement in Thanet is derived from inward migration. However
a substantial increase in the housing stock in the 1990's was
accompanied by poor local economic and employment performance,
despite reductions in unemployment.
- Housing provision is set substantially above the household growth
generated by local demographic and social changes. There are challenging
requirements for urban housing capacity which are appropriate
to the scale of this major urban area. There is currently a very
limited contribution to housing land supply from greenfield development.
- An extension to the urban area located close to existing public
transport corridors serving the town and district centres or accessible
to the concentration of employment and retailing in the Westwood
area will have an impact on high quality agricultural land. Policy
EK3 identifies a new Strategic Development Location adjoining
the Thanet urban area at Westwood. Its phasing will depend on
the outcome of local assessments of urban housing capacity in
Thanet. Consideration should also be given to the contribution
Westwood could make to housing provision beyond 2016.
- If the local economy develops substantially and new jobs are
created within the 'Central Island' area (particularly that associated
with the developing role of Manston airport) then strategic policy
regarding the scale of housing provision in Thanet beyond 2011
period should be reviewed by 2006.
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7.18 Ashford
- The provision for new housing in Ashford is set well above the
amount indicated by existing trends and provides for an accelerating
rate of net inward migration and local population growth. A close
relationship between economic performance and housing provision
is essential if Ashford is to achieve balanced growth in line
with regional and strategic objectives.
- The housing provisions in policy HP1 are for the Borough as
a whole. However the approach to the regional growth area at Ashford
and the requirements of Policy SS1 mean that the great majority
of housing is provided at the Ashford urban area. The Ashford's
Future Study envisages that provision be made for 13,100 dwellings
at the growth area between 2001 and 2016 and 18,500 between 2001and
2021.
- Continuation of rates of housing development provided for in
the 1996 Structure Plan and their future acceleration in line
with the conclusions of the 'Ashford's Future' Study will need
major investment in infrastructure, as set out in Policy CC1.
Strategic housing provision reflects a staged approach to growth
beyond 2006 that supports an average rate of development of c.
1200 dwellings per annum by 2021. Growth will continue to be strongly
concentrated at the Ashford urban area.
- The prospects for, and scale of, continued growth beyond 2016
will be subject to review by 2011. This should take account of
the scale, form and balance of development that has taken place
by then including economic performance and employment growth.
Progress with the provision of the major elements of community
infrastructure outlined in Policy CC1 that are essential to balanced
and sustainable growth at Ashford will be another key consideration.
- Greenfield land currently accounts for more than 80% of identified
land supply for housing. The capacity of the urban area should
be investigated further in order to increase the contribution
made by previously developed land and there is substantial scope
to increase the efficiency with which existing development sites
are used. However, further strategic scale greenfield land releases
will be required beyond 2006 in locations which are close to the
Ashford urban area and with good accessibility to it by a choice
of transport. Detailed definition of new strategic development
locations will need to take account of the provisions of this
Plan to 2016 and the potential beyond if Ashford's accelerated
rate of growth is to continue into the longer term.
|
Ashford's Future: The Overarching
Report. AShford Borough Council and Partners. December 2002
|
|
7.19 Maidstone
- Household growth generated by local demographic and social changes
is relatively high and is greater than that which would reflect
recent trends. These have reflected some net loss of population
from the Borough as a result of migration.
- There are tight countryside conservation constraints around
Maidstone and a strategic gap to the north and west maintains
its separation from the Medway Towns and Medway Gap urban areas.
Accessibility to the town centre and rail corridors is poor from
the south and east of the urban area. Urban regeneration within
central Maidstone has an important contribution to make to housing
requirements.
- With these considerations in mind the amount of land for housing
is set just above the level implied by indigenous population and
household growth and reflects a greater reliance on previously
developed land.
|
|
|
7.20 Shepway
- Housing requirements based on recent demographic trends are
strongly influenced by migration into the District, which accounts
for some 60% of the overall trend-based assessment of housing
demand.
- This Plan does not reflect the full trend requirement but still
makes provision well above the level which would accommodate household
growth, generated solely by local demographic and social changes.
The Plan provides for continued growth from migration, including
workforce growth in which will be needed to support economic regeneration
and diversification.
- The policy allows for significant use of urban development sites
and relies on both urban regeneration at Folkestone/Hythe (particularly
the harbour and waterfront opportunity areas) and completion of
the strategic expansion of Hawkinge.
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- Much of West Kent (the Districts of Sevenoaks, Tonbridge &
Malling and Tunbridge Wells) is in the Metropolitan Green Belt.
The growth of the principal towns is also limited by other major
planning constraints including nationally important landscape
designations (AONB). Policy WK1 allows for no structural change
to the Green Belt nor reliance on strategically significant new
releases of greenfield land.
|
|
| 7.22 Sevenoaks
- Dwelling requirements based on past demographic trends are very
similar to those which reflect indigenous pressures for population
and household growth.
- The size and character of Sevenoaks and Swanley (the two principal
centres) suggest that there is only modest potential for housing
in the urban areas, especially if they are to maintain a balanced
mix of land uses, including safeguarding of employment land. This
Plan envisages significant restraint on the trend housing requirement.
However the proximity of the northern part of the District, including
the Swanley area, to the regionally significant housing opportunities
arising within Dartford and Gravesham (Kent Thameside) has to
be taken into account.
|
|
|
7.23 Tonbridge and Malling
- The Borough has been growing in recent years as a result of
net inward migration although household growth generated by local
demographic and social changes accounts for some two thirds of
the overall trend housing requirement.
- The Borough has existing Strategic Development Locations which
consist of previously developed or damaged land identified in
previous Structure Plans as set out in Policy WK3. Most of these
remain unimplemented. Making more efficient use of land at these
major development locations is significant strategically in terms
of housing capacity and its phasing.
|
|
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7.24 Tunbridge Wells
- Trend based housing requirements show only a very modest increase
from net inward migration. More than four fifths of the requirement
comes from indigenous demographic and household change.
- The policy provision for housing matches the trend housing requirement
and places a very strong emphasis on urban capacity to meet future
dwelling requirements.
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7.25 Housing land releases must be managed to ensure that land
is not released unnecessarily or prematurely, particularly at greenfield
sites. The Plan extends to 2021 and needs a policy framework aimed
at preventing undue or premature use of housing land in the early
years of the Plan. This has to:
- take account of the nature of existing commitments;
- provide for the flow of urban housing capacity within built
up areas during the lifetime of the Plan; and
- allow existing and new strategic development locations to be
implemented.
7.26 The planning authorities will need to ensure that sufficient
land comes forward to enable the average rates of development under
Policy HP1 for each of its phases to be achieved whilst optimising
the use of previously used land within the major/principal urban
areas and at other sustainable locations before using greenfield
land. Phasing will help to prevent the early release of greenfield
sites prejudicing urban regeneration. It will also help to achieve
the recycling target for the use of previously developed land (Policy
HP3).
7.27 Strong market demand for homes in some areas may result in
pressure for allocated sites to be developed rapidly during the
early stages of the plan period and for a higher than expected number
of 'windfall' sites to come forward. Careful phasing of the release
of land, including windfalls, will ensure that a steady supply of
sites is forthcoming throughout the whole of the plan period and
that targets are not exceeded. Phasing can also help ensure that,
if necessary, community and physical infrastructure is improved
or provided in parallel with the development of housing.
| Policy HP2:
The local planning authorities will phase and manage the
release of sites for housing development, including windfalls,
to ensure that generally previously developed sites are brought
forward before greenfield sites whilst meeting the housing
requirements for the phasing periods set out in Policy HP1. |
7.28 The average annual rate of development for each district in
each of the five year phases is shown in Table HP1. |
|
|
Table HP1:
| |
|
Dwellings
(net) ++ |
|
|
| |
|
|
|
|
|
|
| Ashford |
700 |
1,000 |
1,100 |
930 |
1,200 |
1,000 |
| Canterbury |
420 |
420 |
400 |
415 |
300 |
385 |
| Dartford |
780 |
800 |
900 |
825 |
620 |
775 |
| Dover |
320 |
320 |
260 |
300 |
200 |
275 |
| Gravesham |
280 |
300 |
300 |
295 |
220 |
275 |
| Maidstone |
460 |
440 |
400 |
435 |
360 |
415 |
| Sevenoaks |
160 |
160 |
160 |
160 |
140 |
155 |
| Shepway |
360 |
300 |
280 |
315 |
240 |
295 |
| Swale |
500 |
500 |
500 |
500 |
400 |
475 |
| Thanet |
340 |
340 |
340 |
340 |
300 |
330 |
| Tonbridge &
Malling |
440 |
420 |
420 |
425 |
380 |
415 |
| Tunbridge Wells |
300 |
280 |
220 |
270 |
220 |
255 |
| (KCC area) |
5,060 |
5,280 |
5,280 |
5,210 |
4,580 |
5,050 |
| Medway |
700 |
780 |
820 |
765 |
720 |
755 |
| Kent |
5,760 |
6,060* |
6,100* |
5,980* |
5,300* |
5,805* |
++ Rounded to the nearest five
* Including the additional provision associated with Ashford's regional
growth point role from 2006. |
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7.29 There needs to be enough land available to provide 89,600
homes in the period to 2016. At 2001 there was enough land identified
(sites with planning permission and those allocated in local plans),
on both previously developed and greenfield land for some 54,000
dwellings. However a significant proportion of this (c.11,000 dwellings),
primarily within Thames Gateway (Dartford), represents sites which
are not likely to be available until after 2011.
Additional land will come from sites identified through District
based urban housing capacity studies and other previously developed
land which comes forward as a result of windfall planning permissions.
Sites of this kind, involving previously developed land have recently
been adding an average of about 1500 dwellings per annum to the
housing supply. Further housing gains can also be expected as a
result of increased densities from already committed sites, particularly
on larger greenfield allocations.
7.30 Kent and Medway's Urban Capacity Protocol establishes a consistent
framework for assessing potential urban capacity within the principal
urban areas and other defined categories of settlement. These assessments
will, in turn, inform local development documents and allow more
efficient use of land.
7.31 In the light of these assessments, the planning authorities
will need to consider the amount of greenfield development needed
to meet strategic housing requirements. This will include reviewing
existing greenfield allocations against the criteria of Policies
HP4 and 5 and, if retained, reassessing their phasing and capacity
to avoid the premature release of new greenfield land. It is unlikely
that a major retrenchment in the need for greenfield land previously
committed for development will be appropriate over the Structure
Plan period as a whole.
7.32 Existing strategic development locations involving both previously
developed and greenfield land are largely retained and some new
greenfield provision will be required on a selective basis in the
medium term. New or extended strategic development locations will
be needed to accommodate requirements in Medway, Swale, Ashford,
Shepway and Thanet. Depending on progress in the use of previously
developed land, smaller scale additions to greenfield supply may
be necessary in Canterbury, Dover, Maidstone, and Tunbridge Wells
in the longer term. In assessing these requirements there will be
a need to take account of the indicative housing provisions for
the 2016-2021 period. These should be regarded as minimum requirements
for this period. |
A small
element of this longer term (post 2011) supply in Dartford (residual
part of Eastern Quarry) is likely to represent availability post
2021
|
|
| Policy
HP3:
| |
Housing Provision 2001-2016 |
Target for Previously Developed
Land (%) |
| Ashford |
14,000 |
30 |
| Canterbury |
6,200 |
70 |
| Dartford |
12,400 |
95* |
| Dover |
4,500 |
65 |
| Gravesham |
4,400 |
75 |
| Maidstone |
6,500 |
65 |
| Sevenoaks |
2,400 |
90 |
| Shepway |
4,700 |
60 |
| Swale |
7,500 |
30 |
| Thanet |
5,100 |
80 |
| Tonbridge
& Malling |
6,400 |
90 |
| Tunbridge
Wells |
4,000 |
90 |
| Medway |
11,500 |
80 |
| Kent |
89,600 |
70 |
Note to policy HP3
* Policy target includes former mineral workings and other
damaged land that falls outside the definition of previously
developed land within the terms of PPG3 |
|
|
7.33 Policy HP3 establishes a policy objective
for the county and individual Districts relating to the proportion
of housing development for 2001-2016 to be met from previously developed
land. Targets for beyond 2016 will be established in conjunction
with a future review of housing provision for this period. The Policy
HP3 targets take account of:
- the previously developed and greenfield elements of the existing
committed housing land supply;
- the likely scope for increasing the housing capacity of strategic
development locations and other major housing allocations (unless
they have already been assessed against current objectives for
better use of land);
- expectations for the future capacity of previously developed
land;
- provision made in this Plan for new or extended strategic development
locations involving both previously developed and greenfield land.
7.34 Given the extent of, and continuing reliance upon, existing
committed greenfield land these targets rely upon a much higher
proportion of previously developed land being identified in new
7.35 The policy targets for the use of previously developed land
are indicative and subject to testing through urban capacity assessments
and the preparation of local development documents. In interpreting
the target in Policy HP3 local planning authorities must still ensure
that they accommodate the overall housing quantities in Policy HP1,
and those for the individual phasing periods within it. |
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7.36 Housing development on urban sites has in the past come from
a variety of sources including:
- the recycling of land and buildings formerly in non-residential
use;
- developing vacant and previously undeveloped land;
- providing residential accommodation above commercial premises
in town centres;
- intensifying development within established residential areas
by way of subdivision and redevelopment of the existing housing
stock, infilling, and 'backland' development.
7.37 Such sources should continue to be explored. Vacant dwellings
could provide a valuable source of accommodation by being brought
back into use by, for example, applying an empty homes strategy
or similar. The housing provisions of this Plan, however entail
new, additional provision. Reoccupation of vacant dwellings does
not contribute to meeting Policy HP1 requirements unless there is
a net gain in dwellings, for example, through conversion of a property.
7.38 While it is desirable to make the best possible use of urban
development opportunities for housing this should not be done at
the expense of other important aspects of urban life. These include
improving the urban environment, protecting valuable amenities,
including open space, within settlements and the safeguarding of
centrally located and accessible business and employment land.
7.39 This Plan requires a sequential test to be applied to the
major/principal urban areas and rural service centres when land
for housing is under consideration in the preparation of Local Development
Documents. Priority must be given to the use of previously developed
land. Reliance on such land within smaller rural settlements, beyond
small scale infilling, will need to demonstrate tangible benefits
to village sustainability along with the potential for a sustainable
form of development with housing, employment and other facilities
in close proximity. In these circumstances such opportunities will
take precedence over the release of greenfield sites which would
involve extensions to the principal urban areas or rural service
centres.
7.40 This Plan identifies strategic development locations which
play an important part in implementing its development strategy.
In the case of greenfield development their release and phasing
will be depend on the prior application of the search sequence in
Policy HP4 to ensure that priority is given to the use of previously
developed land. Similar considerations will apply to smaller scale
greenfield land releases identified through Local Development Documents.
These will need to consider the nature and impact of strategic environmental
and planning constraints at the principal urban areas and the rural
service centres.
7.41 Identification of land for new housing at rural settlements
should normally be through Local Development Documents. This will
not imply that planning permission will be granted at those settlements
on sites other than allocations in local plans/development documents.
The amount of any new development should be consistent with the
scale of the existing settlement.
7.42 Development linked to nodes within good, or potentially good,
public transport corridors will need to take account of both the
level and frequency of public transport services and the connections
they provide to centres of employment and major services. Proposals
should be within reasonable walking distance of a railway station
or an existing or prospective bus stop.
7.43 All sites considered for housing should be assessed to ensure
that new development would be well located, accessible to essential
services and supported by adequate physical and community infrastructure
while having as little impact as possible on the environment.
| Policy HP4:
In identifying sites to be allocated for housing to meet
the housing requirements in Policy HP1 a search sequence will
be applied as follows:
1) The re-use of previously developed land and buildings:
a) within Kent's major/principal urban areas; followed
by:
b) within Kent's rural service centres; followed
by:
c) within a smaller rural settlement, as defined
in Local Development Documents, with the potential for a
sustainable form of development including ready access to
good quality public transport;
followed by:
2) Where applicable, settlement extensions or new
communities identified as strategic development locations
by this Plan;
followed by:
3) An extension or extensions to:
(a) a major/principal urban area; followed by:
(b) a rural service centre; followed by:
(c) a smaller rural settlement, as defined in Local
Development Documents, with the potential for a sustainable
form of development including ready access to good quality
public transport.
Where practical consideration of a settlement extension,
under 3) above, should give priority to the use of previously
developed land. |
| Policy
HP5:
In applying Policy HP4, the suitability of both previously
developed and greenfield sites for housing development should
demonstrate:
a) good quality accessibility to jobs, shops and
services by means other than the car including the potential
for improving such accessibility; and
b) adequate capacity within existing transport,
utility, social and community infrastructure to absorb further
development or the ability for new or enhanced facilities
to be provided; and
a) the role of development in sustaining local
services and facilities;
b) the absence of material harm arising from physical
and environmental constraints affecting the development
of land.
|
|
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7.44 New house building in the open countryside, away from established
settlements or areas allocated for development in Local Development
Documents, should be strictly controlled. The fact that a single
house on a particular site would be unobtrusive does not of itself
make development acceptable. A precedent could be set and a proliferation
of such developments could occur. Minor development within the defined
confines of rural settlements should not be detrimental to the character
of the settlement.
7.45 One of the few circumstances in which isolated residential
development in the countryside may be justified is when accommodation
is required to enable farm or forestry workers to live at, or in
the immediate vicinity of, their work. When setting out rural housing
policies, local planning authorities should apply the criteria set
out in PPG7 (Annex I).
| Policy HP6:
Housing development outside the confines of the major/principal
urban areas will not be permitted unless it is:
a) a site allocated for housing development in a
Local Development Document; or otherwise consistent with
Policy SS5; or
b) minor development within the confines of a rural
service centre or smaller rural settlement; or
c) a single dwelling demanding a rural location
for farm or forestry workers; or
d) the rebuilding, conversion or modest extension
of a dwelling currently in residential use; or
e) the conversion or redevelopment of a redundant
commercial, institutional or industrial building to meet
an identified need for housing which does not conflict with
a need to retain local employment opportunities.
Housing development must not be detrimental to the character
of the countryside and, as appropriate, the character of rural
settlement.
|
|
|
| |
7.46 Housing needs are diverse. New housing development has an
important role in meeting needs but must be considered in conjunction
with the very substantial existing housing stock. The provisions
within this Plan will add less than 1% per year to the total housing
stock of Kent. It is the combined effect of new development and
turnover in existing housing that meets the demand arising from
both newly formed households within Kent and those moving into the
area.
7.47 The majority of new households will consist of one-person.
The need to expand the stock of smaller accommodation should take
account of the size characteristics of the existing housing stock.
A range of factors, including purchasing power and lifestyle, influences
the relationship between the size of the household and the size
of dwelling it occupies. The anticipated growth in one-person households
will be varied in terms of age, economic resources and lifestyle
requirements. It would be incorrect to assume that all one-person
households necessarily require smaller dwellings.
7.48 Local Development Documents should meet the housing requirements
of the whole community, including affordable homes and special needs
housing (such as that designed for older people and those with disabilities).
In order to do this they should make provision for wider housing
choice and a mix of dwelling sizes, types and locations. The creation
of large areas of housing of similar characteristics should be avoided
with an emphasis instead on socially mixed, balanced and inclusive
communities.
7.49 Residential development within, or close to, Kent's town and
district centres has an important part to play in contributing both
to housing choice and to the vitality and regeneration of such centres.
Centrally located accommodation, close to a range of services and
facilities may prove particularly attractive to households with
lower levels of personal mobility and those which require smaller
homes either because of cost or preference. Town centres have provided
opportunities for purpose built sheltered accommodation for older
people. Accommodation in and around town centres, including the
upper floors of commercial premises, also offers an important source
of lower cost accommodation.
7.50 Local housing needs assessments should be used to determine
the type and size of additional housing to be provided. The assessment
should take account of the composition of existing and future households,
the requirements for both subsidised and market housing, and the
character and condition of the existing stock. Given that the number
of people aged 85+ is expected to grow by almost one third over
the next 20 years and that there is a current shortage of extra
care housing, the need for sheltered housing, including extra care
sheltered housing, should be assessed. This assessment should take
into account the strategies of Kent and Medway Councils towards
sheltered housing. District based assessments should be undertaken
in a consistent manner across wider housing market areas where there
are significant cross-boundary movements between districts for employment
and/or housing purposes. Local Development Document policies and
other site-specific guidance should set out clear guidance for house
builders regarding the type of housing expected for the principal
development sites.
| Policy HP7:
Housing development will be required to incorporate a mix
of dwelling sizes and types, including sheltered housing,
which will contribute towards meeting the identified needs
of all sections of the community. |
|
|
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7.51 The housing needs of everyone in the community should be
recognised. With a rise in house prices in Kent continuing to exceed
growth in average earnings, many households can no longer afford
to buy or rent housing at market prices. This is particularly the
case in high housing cost areas, notably in the west of the county.
7.52 Not providing enough affordable housing also has adverse consequences
for the local economy, new commercial development and public services
(including those provided privately such as in the social care sector).
Recruiting and retaining 'key workers' is made more difficult since
they are unable to find anywhere suitable to live. Insufficient
affordable housing can also adversely affect the quality of life
by requiring people to travel long distances to work from lower
priced areas. RPG9a stresses the importance of increasing the supply
of affordable housing as an essential ingredient of regeneration.
7.53 The term 'affordable housing' encompasses a wide range of
patterns of tenure and ownership. For the purposes of this Plan
it includes:
- shared equity housing where both the occupier and a social landlord
have an interest in the property
- other types of 'intermediate housing' involving renting at below
open market values
- low cost housing where the initial purchase price is below market
values
- key worker housing involving, for example subsidy by employers
- social rented housing
7.54 In Kent there is a great need to foster both higher levels
of investment in the existing housing stock and to encourage a sense
of participation in the well being of local communities. To this
end a ladder of opportunity to share and participate in housing
and the future of residential areas needs to be provided. Thus,
where potential occupiers cannot afford full market housing (owned
or rented) there is much to commend equity sharing and other forms
of intermediate housing. Kent and Medway Councils, the Housing Corporation,
District housing authorities and the private sector will seek in
particular to widen the opportunity for equity sharing in the County
as a means of promoting a sense of community and social independence.
7.55 RPG9 sets a 'provisional indicator' of 18,000 to 19,000 affordable
homes a year for the region. This indicator is not divided amongst
structure planning areas. It is equivalent to almost half (48%)
of the total annual housing requirements and well in excess of current
levels of provision. Government advice is that it is inappropriate
for the Structure Plan to include detailed guidance and targets
for the level of affordable housing provision in particular localities
as this depends upon detailed local assessments of need. |
|
|
7.56 A strategic assessment of future affordable
housing supply in Kent and Medway has been carried out to consider
how applicable the RPG9 indicator is to Kent.
This assessment focussed on need expected to arise during the Plan
period rather than on any outstanding 'backlog' of need. It concluded
that household growth implied an indicative 1600-1800 net additional
affordable dwellings per annum made up of homes for rent, shared
ownership developments and other forms of low cost housing. This
suggests that on the basis of household growth alone some 30% of
all new homes should be in the affordable sector. This assessment
does not provide district level indicators for which individual
need assessments will required but it is nonetheless indicative
of the overall scale of the requirement.
7.57 Within the context of the strategic housing provisions established
by this Plan and their own local needs assessment, District Councils
should set out in local development documents the balance to be
struck between affordable housing development and other housing
provision and between the different forms of affordable housing.
Provision made for affordable housing will contribute to meeting
the quantities set out in Policy HP1. Local Development Document
policies should indicate how many affordable homes need to be provided
throughout the plan area, the site size thresholds appropriate for
the negotiation of affordable housing provision given the needs
and circumstances of the District, and set indicative targets for
specific sites. The requirement for sheltered affordable housing,
and the levels of associated care to be provided should be identified
jointly with the Social Services authorities and taken into account
when considering the make up of affordable housing sought for specific
sites.
7.58 The negotiation of cross subsidy arrangements between market
price development and affordable housing will depend on the circumstances
of individual sites. This will include their relationship to the
existing pattern of services and facilities, accessibility to public
transport and local evidence of need. It will be important to ensure
that both low cost market homes and subsidised housing for rent
remain affordable in perpetuity, possibly through partnerships with
registered social landlords and the use of legal agreements. The
contribution made by sites to affordable housing provision should
also take full account of contributions required to other infrastructure
and services directly related to the development in accordance with
Policies QL12 and IMP1.
| Policy HP8:
Provision of all affordable housing will contribute to meeting
the housing quantities in Policy HP1.
Local Development Documents should:
a) establish the proportion of strategic housing
provisions identified in Policy HP1 that should be met by
affordable housing on the basis of District housing needs
assessments;
b) identify the respective contributions planned
for shared equity, key worker and other forms of intermediate
housing
c) indicate the site size thresholds that will
apply to provision of affordable housing and provide indicative
targets for the level and composition of the contribution
required from specific sites.
|
7.59 Where sites are allocated for housing in rural service centres
or other rural settlements affordable housing should normally be
secured either through cross subsidy or another acceptable form
of provision.
7.60 At villages which do not have land allocated for residential
development local planning authorities may consider evidence of
local need as a material consideration in deciding whether to release
land for housing that would not otherwise be considered as acceptable
for residential development. Schemes brought forward as exceptions
to policies of constraint will need to be justified by evidence
that they serve local needs. Mixed development involving cross-subsidy
with open market housing on the same site would not be appropriate
because of the exceptional circumstances that justify the release
of such sites for housing. Housing permitted in accordance with
Policy HP9 will contribute to meeting the Policy HP1 provisions
for the District although such schemes are, by definition, likely
to make only a modest contribution to overall provision.
| Policy
HP9:
Local Development Documents should indicate those rural settlements
at which the provision of affordable housing would be acceptable
on sites that have not been allocated for housing but where
such development would be justified to meet a proven local
need. |
|
Needs
for Affordable and Market Housing in Kent: Cambridge Centre for
Housing and Planning Research: Department of Land Economy, University
of Cambridge 2001
|
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7.61 Regardless of their ethnic origin gypsies are distinguished
by their nomadic way of life which is directly associated with their
way of earning a living. Although
they make up a tiny proportion of the population local planning
authorities must consider gypsies' needs for accommodation and provide
for adequate sites in their development plans. In addition to the
settled population, parts of Kent are host to gypsy groups seeking
temporary seasonal work or passing through the area. A variety of
sites may be needed including sites for settled, long-term use,
temporary stopping places and transit sites. To tackle the problem
of unauthorised traveller encampments Government is revising policy
and funding to facilitate the provision of temporary, transit and
emergency stopping places for travellers. Consideration needs to
be given to providing such facilities over a wide area to provide
a network of opportunities. In conjunction with Kent and Medway
Councils District authorities should identify the local need for
gypsy sites (both permanent and transit) in their Local Development
Documents and indicate how this need is to be met.
7.62 Government guidance (Circular 1/94) advises that it will not
be appropriate to make provision for gypsy sites in areas of open
land where development is severely restricted e.g. AONBs, SSSIs
and other protected areas. Green Belt land should not be allocated
for gypsy sites in development plans. Sites on the outskirts of
built up areas may be appropriate provided care is taken to avoid
encroachment on open countryside and there is consistency with agricultural
and countryside policies. There are other criteria which need to
be taken into account in establishing gypsy sites, for example access
to schools, health care and other community facilities, and provision
of mains services such as water and electricity.
| Policy HP10:
Where a need for permanent or transit gypsy accommodation
is established, provision should be in accordance with the
Structure Plan's policies for protection of the environment,
countryside and the Green Belt.
Sites should be provided within the principal urban areas
or rural settlements. In the absence of such sites, locations
with good accessibility to the principal urban areas or rural
service centres and with easy and safe access to primary and
other main roads will be preferred.
Proposals should be located to avoid adverse impact on residential
amenity, highway capacity and highway safety. |
|
See - Department of the Environment Circular
18/94 : Gypsy Sites Policy and Unauthorised Camping |
| |
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