South Holland District Council 5-Year Housing Land Supply Assessment
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South Holland District Council 5-year Housing Land Supply Assessment (as at 31st March 2019) Published May 2019 Contents 1.0 Background ................................................................................................................ 1 2.0 South Holland District’s 5-year housing requirement ................................................. 1 3.0 What is South Holland District’s deliverable housing supply? .................................... 2 Approach to Windfalls ...................................................................................................... 3 Overall Supply .................................................................................................................. 3 4.0 5-Year Land Supply Position for 1st April 2019 – 31st March 2024 ........................... 4 5.0 Recent trends ............................................................................................................. 5 6.0 Conclusion ................................................................................................................. 6 Appendix A: Large Sites ...................................................................................................... 7 Appendix B: Small Sites ..................................................................................................... 14 Appendix C: Allocations without Planning Permission (Local Plan Appendix 4) ................ 26 1.0 Background 1.1 Paragraph 73 of the National Planning Policy Framework (NPPF) requires Councils to “identify and update annually a supply of specific deliverable sites sufficient to provide five years’ worth of housing against their housing requirements set out in adopted strategic policies, or against their local housing need where the strategic policies are more than five years old. The supply of specific deliverable sites should in addition include a buffer (moved forward from later in the plan period) of: A. 5% to ensure choice and competition in the market for land; or B. b) 10% where the local planning authority wishes to demonstrate a five year supply of deliverable sites through an annual position statement or recently adopted plan38, to account for any fluctuations in the market during that year; or C. c) 20% where there has been significant under delivery of housing over the previous three years, to improve the prospect of achieving the planned supply” 1.2 This report sets out South Holland District’s 5-year housing land supply position in accordance with the NPPF. 2.0 South Holland District’s 5-year housing requirement 2.1 Paragraph 30 of the Planning Practice Guidance (PPG) indicates that “housing requirement figures in up-to-date adopted Local Plans should be used as the starting point for calculating the five year supply.” The South East Lincolnshire Local Plan was adopted on 8 March 2019. The document provides the strategic planning policies, including those relating to housing delivery, for both South Holland District Council and Boston Borough Council. 2.2 The adopted Local Plan (Policy 10) identifies a requirement for 11,681 new homes to be built between 2011 and 2036 (an average of 467 per annum) in South Holland. This is based on evidence in the Peterborough Sub-Regional Strategic Housing Market Assessment Update which was published in March 2017, as well as a 5% uplift for affordable housing requested at the Local Plan Examination hearing session on 28th November 2017 Table 1 – Basic Five Year requirement 2011 to 2036 a Housing requirement 1st April 2011 to 31st 11,681 March 2036 b Annual requirement 467 a / 25 c Basic 5-year requirement 2,335 b x 5 2.3 However, account must be taken of housing completions between 1st April 2011 and 31st March 2019, as well as any under or over-supply during that period. Table 2 shows that a total of 2,662 homes were completed over that period. In total, it represents an undersupply of 1,074 homes when compared against the basic requirement. This undersupply is significantly less than it has been previously. 1 Table 2 – Net housing completions in South Holland District (1st April 2011 –31st March 2019) Period Requirement Net Completions Shortfall (a) (b) (a - b) 2011/12 467 167 300 2012/13 467 200 267 2013/14 467 270 197 2014/15 467 302 165 2015/16 467 293 174 2016/17 467 266 201 2017/18 467 3551 112 2018/19 467 8092 -342 TOTAL 3736 2662 1074 1Please note that this figure includes 59 additional completions (dwellings completed since 1st April 2011) that were found by physically visiting sites around the district. 2 Please note that this figure includes 315 additional completions (dwellings completed since 1st April 2011) that were found by physically visiting sites around the district in March 2019. 2.4 Once the 5-year requirement has been calculated, the NPPF then requires local authorities to identify a 5% buffer to ensure choice and competition in the market, and where there has been a record of persistent under-delivery of housing, this should be increased to 20%. Given that the housing requirement for South Holland District has not been met in the previous 7 years, it is considered that a 20% buffer should be applied. It is made clear in the NPPF that this additional requirement is moved from further in the plan period and is not an additional requirement for more housing. 3.0 What is South Holland District’s deliverable housing supply? 3.1 The Glossary of the NPPF (2019) indicates that, “To be considered deliverable, sites for housing should be available now, offer a suitable location for development now, and be achievable with a realistic prospect that housing will be delivered on the site within five years. In particular: a) sites which do not involve major development and have planning permission, and all sites with detailed planning permission, should be considered deliverable until permission expires, unless there is clear evidence that homes will not be delivered within five years (for example because they are no longer viable, there is no longer a demand for the type of units or sites have long term phasing plans). b) where a site has outline planning permission for major development, has been allocated in a development plan, has a grant of permission in principle, or is identified on a brownfield register, it should only be considered deliverable where there is clear evidence that housing completions will begin on site within five years”. 2 3.2 Taking the above definition into account, South Holland District Council considers that, the following types of sites may contribute to deliverable supply: Large sites (greater than 10 dwellings) with full planning permission or an outline permission with a reserved matters. Outline permissions with no reserved matters are also considered deliverable where the developer / agent has provided delivery information; Small sites with full planning permission, outline permission (with or without reserved matters) and housing development granted by other means (e.g. prior notification); Sites which are allocated in the South East Lincolnshire Local Plan (March 2019. Approach to Windfalls 3.3 Paragraph 70 of the NPPF (2019) indicates that “Where an allowance is to be made for windfall sites as part of anticipated supply, there should be compelling evidence that they will provide a reliable source of supply. Any allowance should be realistic having regard to the strategic housing land availability assessment, historic windfall delivery rates and expected future trends”. 3.4 A paper on windfall allowances was submitted to the Inspector as part of the Local Plan Examination process and this suggests a future windfall allowance of 53 dwellings per annum. In order to reach this conclusion, the paper (http://www.southeastlincslocalplan.org/wp-content/uploads/2017/12/ED088-Revised- Paper-on-Windfall-Allowance-08-12-17.pdf) identifies historic windfall delivery rates on small sites in South Holland District and an appropriate reduction in numbers to take into account completions on residential gardens, which the NPPF specifically indicates should not be included in a windfall allowance. A windfall allowance of 224 dwellings has therefore been included in South Holland District’s deliverable supply figure to 31st March 2024. It is assumed that up until 31st March 2020 all windfall completions will come from the stock of commitments and so a windfall allowance has not been applied until 2020/21. Overall Supply 3.5 Paragraph 31 of the PPG indicates that “local planning authorities will need to provide robust, up to date evidence to support the deliverability of sites, ensuring that their judgements on deliverability are clearly and transparently set out.” The Appendix to this report identifies all the sites that the District Council considers contribute to deliverable supply, and identifies how many new homes the Council expects each site to deliver up to 31st March 2024. 3.6 Table 3 summarises the detailed information set out in the Appendix, and shows that (with the windfall allowance) the total supply of deliverable housing amounts to 3,761 dwellings. 3 Table 3 – Deliverable housing supply (31st March 2019) Type of site Number of dwellings expected to be completed between 1st April 2019 and 31st March 2024 Large Sites (10 or more dwellings) 2,454 (with appropriate discounting) Small sites (where permission has 229 been implemented) Small sites where permission has not 514 been implemented (with 10% discount) Sites which are allocated in the South 443 East Lincolnshire Local Plan (2019) Windfall allowance (1st April