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Housing Land Availability Assessment August 2008

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Housing Land Availability Assessment August 2008 Oxford’s Strategic Housing Land Availability Assessment August 2008 Oxford City Council, 8th August 2008. All maps reproduced from the Ordnance Survey map with the permission of the Controller of Her Majesty’s Stationary Office (HMSO). Crown Copyright. Unauthorised reproduction infringes Crown Copyright and may lead to prosecution or civil proceedings. Oxford City Council Mapping Services Agreement DOXF 002. 2 Oxford’s Strategic Housing Land Availability Assessment August 2008 Contents Executive Summary 7 Introduction and methodology 9 STAGE 1 – PLANNING THE ASSESSMENT 12 Identifying the geographical area 12 Establishing the process with partners 12 Resources 12 STAGE 2 – DETERMINING WHICH SOURCES OF SITES WILL BE INCLUDED IN THE ASSESSMENT 13 Focussing the area of search 13 Policy exclusions 13 Policy inclusions 14 Sources of sites with potential for housing 14 STAGE 3 – DESKTOP REVIEW OF EXISTING INFORMATION 15 Sites allocated for residential use in the Local Plan and Local Development Framework 15 Reviewing the suitability of allocated sites for residential 15 Sites allocated for other non-residential uses including protected employment sites 18 Employment sites 18 Other non-residential uses 30 Sites going through the planning process 36 Site size 36 Sites with planning permission 36 Sites where planning permission has been refused 38 Sites pending a decision 39 Sites not in the planning process 40 Basic desktop study 40 Contacting landowners 41 Summary of Stage 3 41 STAGE 4 – DETERMINING WHICH SITES AND AREAS WILL BE SURVEYED 51 STAGE 5 - CARRYING OUT THE DETAILED MAP SURVEY 53 Built up areas 53 Detailed map survey of the built up area 53 Non-built up areas 56 The approach to open space 56 The approach to Green Belt land 63 Core Strategy strategic sites 66 Nature Conservation sites 68 Summary of Stages 4 and 5 71 STAGE 6 AND 7 – ESTIMATING THE HOUSING POTENTIAL OF EACH SITE AND ASSESSING WHEN AND 75 WHETHER SITES ARE LIKELY TO BE DEVELOPED Stage 6 - Estimating the housing potential of each site 75 Open space provision 76 Viability 76 Stage 7 - Assessing when and whether sites are likely to be developed 76 STAGE 8 – REVIEW OF THE ASSESSMENT 89 Summary of capacity 89 Risk Assessment 89 Overcoming constraints 89 Future market conditions 89 Implications for housing policy in Oxford 91 PPS3 and the South East Plan 91 3 Oxford’s Strategic Housing Land Availability Assessment August 2008 The Core Strategy 92 New Growth Point 92 Housing trajectories 94 Review of the assessment 94 Reviewing Green Belt boundaries 94 Identifying broad locations 94 Making a case for an allowance for windfalls 94 STAGE 9 – IDENTIFYING AND ASSESSING THE HOUSING POTENTIAL OF BROAD LOCATIONS 95 Areas outside existing settlements such as possible urban extensions 95 Areas within settlements where planning policy seeks to promote development 95 Strategic Sites 95 Summary 95 STAGE 10 – DETERMINING THE HOUSING POTENTIAL OF WINDFALL 96 How to make a case for windfalls 96 Genuine local circumstances 96 Positive planning policies encouraging windfalls 97 Annual rate and pattern of redevelopment 98 Small site windfalls 99 Large site windfalls 101 Future market conditions 102 Estimated supply 102 Housing trajectory that includes windfalls in years 1-20 of land supply 103 Glossary 105 Appendices 1 CONSULTEES AND COMMENTS RECEIVED ON THE METHODOLOGY (NOV/DEC 2006) A – 3 2 ORGANISATIONS CONSULTED TO SUGGEST SITES AND THE SITE PROFORMA USED A – 6 3 CONSULTEES AND COMMENTS RECEIVED ON THE DRAFT SHLAA (APR/MAY 2007) A – 9 4 SELECTED OXFORD LOCAL PLAN POLICY DESIGNATIONS A – 13 5 SUITIBILITY COMPARISON OF PROTECTED KEY EMPLOYMENT SITES EXTRACTED FROM OXFORD’S A - 14 EMPLOYMENT LAND STUDY (MARCH 2006, NATHANIEL LICHFIELD AND PARTNERS) 6 HOUSING COMMITMENTS AT 31ST MARCH 2007 EXCLUDING SITES LISTED IN TABLE 6 OF THE MAIN A – 16 SHLAA DOCUMENT 7 COMPLETE LIST OF ALL SITES ASSESSED IN OXFORD’S GREEN SPACE STUDY A – 31 8 EXTRACTS FROM THE OXFORD LOCAL PLAN 2001-2016 A - 48 9 EXISTING OPEN SPACE QUANTITY SCORES ACROSS OXFORD ACCORDING TO OXFORD’S GREEN A – 50 SPACE STUDY (SCOTT WILSON, FEB 2007) 10 HOUSING TRAJECTORIES A – 51 11 SITE RECORDS OF SUITABLE SITES INCLUDING DETAILED MAPS A – 60 12 SUMMARY MAPS OF CITY-WIDE SURVEY PROCESS A - 107 4 Oxford’s Strategic Housing Land Availability Assessment August 2008 LIST OF TABLES Table 1 The Core Strategy time scale in relation to the SHLAA 10 Table 2 Sites allocated for or partly for residential development in the Local Plan 16 Table 3 Sites allocated for or partly for residential development in the West End Area Action Plan 17 Table 4 Review of employment sites for their suitability for housing 19 Table 5 Review of allocated non-residential sites for their suitability for housing 31 Table 6 Sites suitable for housing with planning permission (outline or full) for residential development 36 that have not been implemented or completed (approx 10 dwellings/0.25ha or greater) at 31st March 2007 Table 7 Sites where planning permission was refused (by 31st March 2007) but where the site is 39 considered suitable for housing (approx 10 dwellings/0.25ha or greater) Table 8 Sites pending decision (at 31st March 2007) where the site is considered suitable for housing 39 Table 9 All sites suggested by landowners 42 Table 10 Sites not in the planning process: Basic desktop study (sites suggested by landowners for the 43 draft SHLAA and later) Table 11 Sites not in the planning process: Detailed map survey of the built up area 55 Table 12 Sites not in the planning process: Open Space 58 Table 13 Broad review of Oxford’s inner Green Belt 63 Table 14 Sites not in the planning process: Green Belt land (Northern Gateway and 65 Marston/Summertown areas only) Table 15 Core Strategy Strategic Sites 67 Table 16 Local Nature Conservation sites 69 Table 17 Summary table of suitable sites: Assessment of the deliverability, developability and capacity of 79 suitable sites Table 18 Summary of capacity and timescale for delivery (windfalls years 11-20) 89 Table 19 Distribution of housing based upon Table 18 (no windfalls during years 1-20) plotted against the 93 variety of relevant targets Table 20 Small site windfall completion trends 99 Table 21 Large site windfall trends 101 Table 22 Summary of capacity and timescale for delivery (windfalls years 1-20) 103 Table 23 Distribution of housing based upon Table 22 (windfalls during SHLAA years 1-20) 104 LIST OF FIGURES Executive Diagram illustrating position of Strategic Sites based upon 400/yr target and PPS3 time period 7 summary requirements figure Figure 1 The Strategic Housing Land Availability Assessment process and outputs (Practice Guidance 11 Fig. 3) Figure 2 Permission against completions 37 Figure 3 Summary of sites assessed in Stage 3 (North) 49 Figure 4 Summary of sites assessed in Stage 3 (South) 50 Figure 5 Development hotspots and transport catchment areas 52 Figure 6 Quality/Value matrix from the Green Space Study 56 Figure 7 Broad areas of Green Belt within Oxford’s administrative boundary 64 Figure 8 Summary of sites assessed in Stage 5 (North) 73 Figure 9 Summary of sites assessed in Stage 5 (South) 74 Figure 10 Focus for windfall development in the Local Plan and Core Strategy 98 Figure 11 Pattern of small site windfall completions 100 Figure 12 Pattern of large site windfalls completions and permissions 102 5 Oxford’s Strategic Housing Land Availability Assessment August 2008 6 Oxford’s Strategic Housing Land Availability Assessment August 2008 Executive summary i This SHLAA follows the stages set out in the Practice Guidance1. Stages 1 and 2 contain preliminary planning and scope of the assessment, determining which land types would be excluded from the assessment, which land types would be included and have a potential source of housing. ii Stages 3, 4 and 5 identify 325 sites from the various sources and assess them for their suitability for housing. This resulted in 241 sites being considered unsuitable, and 84 of the sites being considered suitable. The full range of sites considered are shown in Appendix 12. iii Stages 6 and 7 summarise the 84 suitable sites and estimates their housing capacity as well as their availability, achievability, constraints, developability and deliverability. iv Stage 8 contains a review of the assessment and sets out the land availability in Oxford in comparison to housing targets. There are two ways in which targets need to be measured. Firstly, against the Oxford’s target of 8,0002 dwellings between 2006-26 (400/yr), the SHLAA indicates that there would be an overall shortfall of 2,108 dwellings (26.3%) when windfalls are not included (Table 19). v The second measuring tool is to show that enough deliverable sites can be identified to meet the housing target for the first five years from adoption of the Core Strategy (2009/10-2013/14). The SHLAA shows a skew towards identified sites coming forward over the earlier years and it indicates that the 2,000 (400x5yrs) target of deliverable sites for years 1-5 from adoption of the Core Strategy, will be exceeded by 32.2% (Table 19). This skew also means that Barton is not required during years 1-5 but that it would be required during years 6-10 as demonstrated below. Executive summary figure: Diagram illustrating position of Strategic Sites based upon 400/yr target and PPS3 time period requirements. ‘Deliverable’ sites are those available now, suitable and achievable. ‘Developable’ sites are those suitable and available at a later date (full definitions at paragraph 7.2) 1 Strategic Housing Land Availability Assessments: Practice Guidance (Jul 2007) CLG 2 Secretary of State’s Proposed Changes to the South East Plan (17 July 2008) CLG 7 Oxford’s Strategic Housing Land Availability Assessment August 2008 vi The assumptions regarding when strategic sites will be required should be revisited each time the SHLAA is reviewed as they are dependant on other identified sites in the SHLAA coming forward.
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