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Development Economics Study (Three Dragons, Updated 2010)

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Development Economics Study (Three Dragons, Updated 2010) South Bucks Development Economics Study Update Dr Andrew Golland BSc (Hons) PhD, MRICS Three Dragons [email protected] March 2010 1 INTRODUCTION Background to the Study 1.1 South Bucks DC appointed Three Dragons to undertake an affordable housing viability study in 2007 covering a range of housing market circumstances across the District. The work was overseen by the Council’s own Steering Group. 1.2 The broad aims of the study were to consider an appropriate target or targets for the authority to use in its emerging Core Strategy, as well as to advise on an appropriate threshold or thresholds in the light of the varying local market and land supply conditions. 1.3 The report which was published in October 2007 set out three policy options: 50% affordable housing across the District (25% Social Rent (SR) and 25% intermediate), applied flexibly; 35% affordable housing across the District (25% SR and 10% intermediate); 50% affordable housing in high value areas and 35% in lower value areas. 1.4 Market and policy circumstances have changed since the publication of the 2007 report. The UK has entered an economic downturn with consequent falls in house prices. The reduction in house prices has lead to an expectation that Section 106 contributions should be correspondingly lower. On the policy side, The South East Plan has now been finalised. This includes an indicative region wide affordable housing target of 35% of all housing to be affordable, with 25% of all new housing to be social rented accommodation and 10% intermediate affordable housing. Given the high level of housing need identified in the SHMA, the Council wishes to ensure that its affordable housing requirement in its Core Strategy can be delivered viably. The Council has therefore decided to update the current Development Economics Study to take account of the changes since 2007. 1.5 The Council has further corresponded with the Planning Inspectorate which recommended the need for a robust, credible, up-to-date and accurate evidence base [as] the key foundation of a sound Core Strategy’ Policy context - national 1.6 This study focuses on the percentage of affordable housing sought on mixed tenure sites and the size of site from above which affordable housing is sought (the site size threshold). National planning policy, set out in PPS3 makes clear that local authorities, in setting policies for site size thresholds and the percentage of affordable housing sought, must consider development economics and should not promote policies which would make development unviable. PPS3: Housing (November 2006) states that: ‘In Local Development Documents, Local Planning Authorities should: South Bucks DC – Draft Update Viability Report – March 2010 Page 2 Set out the range of circumstances in which affordable housing will be required. The national indicative minimum site size threshold is 15 dwellings. However, Local Planning Authorities can set lower minimum thresholds, where viable and practicable, including in rural areas. This could include setting different proportions of affordable housing to be sought for a series of site-size thresholds over the plan area. Local Planning Authorities will need to undertake an informed assessment of the economic viability of any thresholds and proportions of affordable housing proposed, including their likely impact upon overall levels of housing delivery and creating mixed communities’. (Para 29) 1.7 The companion guide to PPS31 provides a further indication of the approach which Government believes local planning authorities should take in planning for affordable housing. Paragraph 10 of the document states: “Effective use of planning obligations to deliver affordable housing requires good negotiation skills, ambitious but realistic affordable housing targets and thresholds given site viability, funding ‘cascade’ agreements in case grant is not provided, and use of an agreement that secures standards.” (our emphasis) Policy context – the South East 2 1.8 The Regional Spatial Strategy is the South East Plan (May 2009) . Policy H1 requires South Bucks to deliver 1,880 new dwellings between 2006 and 2026. The SEP includes several relevant policies in relation to this study, including H3, which includes an indicative regional target of 35% of all housing to be affordable. H3 adds that affordable housing thresholds “will have regard to an assessment of economic viability, scale of need and impact on overall levels of housing delivery”. Policy context – South Buckinghamshire 1.9 The current adopted Local Plan is the South Bucks District Local Plan (adopted March 1999)3. A number of policies in that Plan have been “saved” until such time that they are replaced by policies in the Local Development Framework. One of the saved policies is H5 (affordable housing). This seeks a minimum of 20% of the bedspaces in housing schemes of 15 or more dwellings to be affordable. When adopted, the Core Strategy will supersede some of the saved Local Plan policies, including H5. 1.10 The most recent draft of the Core Strategy was the Emerging Approach document (March 2009), which was subject to extensive public consultation4. This included an emerging view for affordable housing that proposed: 1 CLG, Delivering Affordable Housing, November 2006 2 http://www.gos.gov.uk/gose/planning/regionalPlanning/815640/ 3 http://www.southbucks.gov.uk/environment/planning/local_plan/908.asp. 4http://www.southbucks.gov.uk/documents/south_bucks_district_local_plan___written_statement.pdf South Bucks DC – Draft Update Viability Report – March 2010 Page 3 Setting an overall target for 450-500 new affordable dwellings to be provided during the plan period; the introduction of a target of 35% of dwellings on developments of 5 units or more, or 0.16 ha or more, to be affordable; that between 50% and 75% of all affordable housing would be social rented; that commuted sums might be acceptable, e.g. where there are strong reasons why on site provision is not appropriate; Small scale ‘rural exception sites’ with 100% affordable housing would be acceptable within or adjacent to designated rural settlements. Research undertaken 1.11 There were four main strands to the research undertaken to complete this study: Discussions with a project group of officers from the commissioning authorities which informed the structure of the research approach; Analysis of information held by the authority, including that which described the profile of land supply; Use of the Three Dragons Toolkit to analyse scheme viability (and described in detail in subsequent chapters of this report); Consultation held with developers, land owners, their agents and representatives from a selection of Registered Social Landlords active in the district by way of feedback on the Viability Testing framework to the study. Structure of the report 1.18 The report adopts the following structure: Chapter 2 explains the methodology we have followed in, first, identifying sub markets and, second, undertaking the analysis of development economics. We explain that this is based on residual value principles; Chapter 3 provides analysis of residual values generated across a range of different development scenarios (including alternative percentages and mixes of affordable housing) for a notional 1 hectare site. Chapter 4 considers options for site size thresholds. It reviews national policy and the potential future land supply and the relative importance of small sites. The chapter considers practical issues about on-site provision of affordable housing on small sites and the circumstances in which collection of a financial contribution might be appropriate (and the principles by which such contributions should be assessed); Chapter 5 identifies a number of case study sites (generally small sites which are currently in use), that represent examples of site types found in the authority. For each site type, there is an analysis of the residual value of the sites and compares this with their existing use value. Chapter 6 summarises the evidence collected through the research and provides a set of policy options. South Bucks DC – Draft Update Viability Report – March 2010 Page 4 South Bucks DC – Draft Update Viability Report – March 2010 Page 5 2 METHODOLOGY Introduction 2.1 In this chapter we explain the methodology we have followed in, first, identifying sub markets (which are based on areas with strong similarities in terms of house prices) and, second, undertaking the analysis of development economics. The chapter explains the concept of a residual value approach and the relationship between residual values and existing/alternative use values. Viability – starting points 2.2 We use a residual development appraisal model to assess development viability. This mimics the approach of virtually all developers when purchasing land. This model assumes that the value of the site will be the difference between what the scheme generates and what it costs to develop. The model can take into account the impact on scheme residual value of affordable housing and other s106 contributions. 2.3 Figure 2.1 below shows diagrammatically the underlying principles of the approach. Scheme costs are deducted from scheme revenue to arrive at a gross residual value. Scheme costs assume a profit margin to the developer and the ‘build costs’ as shown in the diagram include such items as professional fees, finance costs, marketing fees and any overheads borne by the development company. 2.4 The gross residual value is the starting point for negotiations about the level and scope of s106 contribution. The contribution will normally be greatest in the form of affordable housing but other s106 items will also reduce the gross residual value of the site. Once the s106 contributions have been deducted, this leaves a net residual value. South Bucks DC – Draft Update Viability Report – March 2010 Page 6 Figure 2.1 Theory of the Section 106 Process 2.5 Calculating what is likely to be the value of a site given a specific planning permission, is only one factor in deciding what is viable.
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