Peterborough City Council Five Year Housing Land Supply
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Peterborough City Council Five Year Housing Land Supply 1 April 2017 to 31 March 2022 Published 5 July 2017 Contents 1. Introduction – Page 1 2. The Five Year Requirement – Page 1 3. The Five Year Supply Calculation – Page 2 4. The Five Year Supply – Page 4 5. Calculating the Five Year Land Supply – Page 5 Appendix A Summary of the delivery rate of all sites – Page 7 Appendix B Windfall justification – Page 18 Peterborough City Council Five Year Housing Land Supply (April 2017 to March 2022) 1. Introduction 1.1 The National Planning Policy Framework (NPPF)1 requires local planning authorities to identify and update annually a supply of specific deliverable sites sufficient to provide five years worth of housing against their housing requirements. 1.2 This report sets out the five year land supply for Peterborough City Council between the period 1 April 2017 and 31 March 2022. 1.3 This report is based on the council’s Housing Monitoring Report2 (March 2017) which sets out all sites under construction, with full or outline planning permission at 31 March 2017. The Five Year Land Supply Report also includes sites identified as proposed allocations in the Further Draft Local Plan3 (December 2016). Appendix A of this report provides a summary of all available and deliverable sites and the estimated delivery rates during the five year period. 1.4 The National Planning Practice Guidance (NPPG)4 sets out the requirements for five year land supply and guidance on calculating the five year supply. This Five Year Land Supply report also takes into account the outcomes of a recent appeal decision (Appeal Ref: APP/J0540/W/16/3153303 Land off Uffington Road, Barnack, March 2017). 2. Five Year Requirement National Policy and Guidance 2.1 NPPG states that the starting point for calculating the five year requirement should be the adopted Local Plan. However, the NPPG goes on the explain that: ‘Considerable weight should be given to the housing requirement figures in adopted Local Plans, which have successfully passed through the examination process, unless significant new evidence comes to light. It should be borne in mind that evidence which dates back several years, such as that drawn from revoked regional strategies, may not adequately reflect current needs’ ‘Where evidence in Local Plans has become outdated and policies in emerging plans are not yet capable of carrying sufficient weight, information provided in the latest full assessment of housing needs should be considered. But the weight given to these assessments should take account of the fact they have not been tested or moderated against relevant constraints’5 Peterborough Local Plan 2.2 In Peterborough the adopted Plan, in terms of housing requirement, is the Core Strategy6 Development Plan Document (DPD) which was adopted in February 2011. The Core Strategy housing need figure is based on the now revoked East of England Regional Spatial Strategy 008) and therefore does not reflect current need. As required by national guidance, the five year requirement for Peterborough should be based on new evidence. 1 http://planningguidance.planningportal.gov.uk/wp-content/themes/planning-guidance/assets/NPPF.pdf paragraph 47 2 https://peterboroughcc.box.com/s/5iqgsc6fsl1huvjrk3bcgs37pwqb55su 3 https://peterboroughcc.box.com/s/q7hllhhh6kdgl7huxf6ex0ztr79z7o4m 4 NPPG (http://planningguidance.planningportal.gov.uk/) 5 NPPG ID: 3-030 6 https://peterboroughcc.box.com/s/v2rnscmcc7dfpfi4up63u58rqvry2agi Page 1 Peterborough City Council Five Year Housing Land Supply (April 2017 to March 2022) 2.3 In 2015 the council began preparing a new Local Plan for Peterborough. Part of the evidence base for the Local Plan includes a Strategic Housing Market Assessment (SHMA) (October 2015), which identified an ‘Objectively Assessed Need’ (OAN) figure of 1,005 dwelling per year. 2.4 In January 2016 the council consulted on the Preliminary Draft version of the Local Plan which set out the overall housing requirement between 2011 and 2036 and a Further Draft version in December 2016 which identified the preferred sites to meet the growth targets. The Further Draft Plan highlighted that a further refresh of the OAN was likely ‘over winter 2016/17’ (para 5.19), to take into account the most up to date household projections. In March 2017 a partial update of the SHMA was published which identified a reduced OAN of 981 dwellings per year. 2.5 The emerging Local Plan growth target will be based on the latest OAN figure but also includes an additional 2,500 dwellings. This is because, as part of the Duty to Co-operate requirements, in 2013 the council entered into a memorandum of understanding with the Cambridgeshire Authorities that concluded Peterborough would accommodate an additional 2,500 dwellings taken from Cambridgeshire’s future housing need. 2.6 However, at this stage the policies in the emerging Local Plan is not yet capable of carrying sufficient weight. Instead, as set out in the NPPG, the latest OAN figure should be used for calculating the five year supply. This view is supported by the Planning Inspector at a recent appeal in the Peterborough administrative area. His decision concluded that: “Adjustments in respect of externally generated need are ‘policy on’ considerations which are a matters to be tested through the Local Plan examination”7 2.7 Therefore, at this stage in the production of the Local Plan, for the purposes of calculating the five year land supply, the requirement will be based on the OAN of 981 dwellings per year. 2.8 The Proposed Submission version of the Local Plan is due to be published for public consultation in November 2017, with submission to government by March 2018 and Adoption due in autumn 2018. To support the Proposed Submission version of the Local Plan, and to provide evidence to demonstrate that the Local Plan target can be met, an updated Five Year Land supply will be published in November 2017. This will be based on the contents of the Local Plan at that time. 3 The Five Year Supply Calculation 3.1 As discussed above the starting point for calculating the five year supply is the latest OAN. The SHMA update (March 2017) identifies an OAN figure of 981 dwellings per year between 2011 and 2036. The basic five year requirement is 4,905 (981 x 5) dwellings between 1 April 2017 and 31 March 2022. 3.2 However, the Further Draft Local Plan introduced a new policy which acknowledges the creation of an independent, campus based university which would have an undergraduate population of 12,500 students by 2035. This would be a significant increase in the undergraduate population of the city, and a subsequent additional ‘housing need’ would likely be generated. Therefore an assessment of the Student Need was undertaken (Student Housing Needs Assessment, May 2017), which concluded a need for 40 additional dwellings per year over the period 1 April 2021 to 31 March 2036. 7 Appeal Ref: APP/J0540/W/16/3153303Land off Uffington Road, Barnack paragraph 50 Page 2 Peterborough City Council Five Year Housing Land Supply (April 2017 to March 2022) 3.3 Therefore, the OAN for Peterborough remains at 981 dwellings per year for the period 2011/12 to 2020/21 and then rises to 1,021 dwellings per year from 2021/22 to 2035/36. 3.4 As this five year land supply report covers the period 31 March 2017 to 1 April 2022 an additional 40 dwellings is required to be added to the baseline OAN figure to cover the additional student need in 2021/22. Therefor the five year requirement is 4,945. Table 1: basic five year requirement See SHMA update (March a OAN 2011 to 2036 981 2017) Additional student requirement See Student Housing Needs b 40 2021/22 Assessment (May 2017) c Five Year Requirement 4,945 (a x 5) + b 3.5 To meet the five year land supply requirements account must be taken of the completions between 1 April 2011 and 31 March 2017 compared against the annual requirement of 981 dwellings per year to take account of any under supply. Table 2 shows the number of completions each year during this period. Table 2: Completions 2011 to 2017 Year 2011/12 2012/13 2013/14 2014/15 2015/16 2016/17 Total Net Completions 740 772 863 1342 920 1203 5,840 Five Year Requirement 981 981 981 981 981 981 5,886 Shortfall -241 -209 -118 +361 -61 +222 -46 3.6 Table 2 shows that between 2011 and 2017 a total of 5,840 dwellings have been completed (an average of 974 per year) this results in a shortfall of only 46 dwellings when compared the requirement for 5,886 dwellings during the six year period, which is less than one percent below the requirement. 3.7 The NPPG states that ‘Local planning authorities should aim to deal with any undersupply within the first five years of the plan period where possible’. This means that the shortfall of 46 dwellings should be added to the basic five year requirement of 4,945, rather than distributing the undersupply over the remaining plan period. Therefore the five year requirement increases to 4,991 dwellings. (Table 3 shows how this has been calculated). Table 3: Five Year requirement including backlog Completions 2011 -2017 (six year d 5,840 see table 2 period) e Average completion rate per year 974 d ÷ 6 f Target completion rate 2011 to 2017 5,886 a x 6 g Shortfall 2011 to 2017 46 f - d Five Year Requirement 2017 to 2022 h 4,991 c + g including backlog 3.8 However, once the five year requirement has been calculated the NPPF then requires local authorities to identify a five percent buffer to ensure choice and competition in the market, and Page 3 Peterborough City Council Five Year Housing Land Supply (April 2017 to March 2022) where there has been a record of persistent under delivery of housing, this should be increased to twenty percent.