Local Development Framework – Core Strategy Preferred Options Discussion Paper January 2013 Topic Paper 1 – Housing 1.0 Introduction

1.1 Housing has a critical relationship with Tameside's prosperity and is one of the drivers of the local economy as well as being driven itself by the need to provide suitable housing to support a developing economy. This Topic Paper highlights the current housing issues and challenges in Tameside and should be treated as a live document, which will be kept under regular review and updated as the Council’s evidence base in relation to housing is reviewed. The Paper should therefore not be viewed as a definitive picture of housing issues in the Borough but rather as a document to help understand some of the issues that need to be considered as part of Tameside’s Local Plan, along with the key policy implications.

1.2 The Topic Paper draws on a number of sources of information including the Tameside Strategic Housing Land Availability Assessment 2011 (SHLAA) and the Strategic Housing Market Assessment 2008 (SHMA) in order to identify potential housing land and need in the borough over the plan period 2012 - 2029. However, it should be noted that the Taylor Review proposes revisions to these two key pieces of evidence base, the nature of which has yet to be confirmed. Other sources of information have also been used throughout the Paper to identify the underlying evidence base relating to the key local housing issues.

2.0 Planning Policy Context 2.1 A more detailed consideration of the Coalition Government’s housing polices in the context of its overall ambitions are set out in appendix 1.

National Planning Policy Framework (NPPF) 2.2 The Government has replaced the former suite of planning policy statements and guidance with a single national planning document, the National Planning Policy Framework (NPPF).

2.3 In terms of housing, the main objective of the NPPF is to increase significantly the delivery of new homes, by allowing a locally determined target based approach and giving local council's and their communities the responsibility and flexibility for meeting future housing requirements. Significant changes to housing policy proposed by the NPPF include:

• Local authorities will continue to have to identify and maintain a five year supply of specific deliverable housing sites however; the NPPF includes a further requirement to identify at least a 5% additional allowance to create competition and choice in the land market. Where there has been a persistent under delivery of housing, local planning authorities should increase the buffer to 20% to provide a realistic prospect of achieving the planned supply and to ensure choice and competition in the market; • The removal of the 60% national target for housing development on previously developed land (brownfield land). This allows local authorities to set their own brownfield targets and will potentially enable a greater proportion of new development to take place on Greenfield land; and

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• The removal of the national minimum site size threshold of 15 units for requiring affordable housing to be delivered. NPPF proposes that complete control will be given to local councils to allow greater flexibility to find the best solutions for their areas.

The Taylor Review – External Review of Government Planning Practice Guidance 2.4 The Taylor Review into planning practice guidance was commissioned in October 2012. The findings were published in December 2012 and recommended what guidance should be axed, replaced or amended. Although there are no immediate implications for housing related evidence base work there may be future implications for both Strategic Housing Market Assessment and Strategic Housing Land Availability Assessment methodology. Both of these evidence base areas have been highlighted as priorities to be updated and are likely to be condensed into a single guidance document that also covers the review of employment land.

Regional Policy Context 2.5 The North West of England Plan - Regional Spatial Strategy to 2012 (RSS) - The planning context at the regional level comes from the RSS. This document was adopted in September 2008. Policy L4 sets out Tameside's required annual rate of housing provision (net of clearance replacement) for the period 2003-2021 at 750 dwellings per year. This equates to 3,750 dwellings net for any 5 years in the plan period and 13,500 dwellings net over the plan period 2003-2021.

2.6 It is important to note that although no clear timetable has been set out, the Government aims to abolish regional strategies through the provisions of Section 109 of the Localism Act. However this is yet to happen because of on-going Strategic Environmental Assessments to look at the impacts of revoking each of the eight regional strategies. The Government has released for consultation (until 18 February 2013) the Strategic Environmental Assessment on the Revocation of the North West of England Regional Spatial Strategy: Environmental Report. This report details the likely significant environmental effects of the revocation of the North West of England Plan and the Regional Economic Strategy. The report discusses replacing the eight regional strategies outside London with a more localised planning system, together with incentives such as the New Homes Bonus, to encourage local authorities and communities to increase their aspirations for housing and economic growth.

2.7 As a result the intention to abolish RSS is a material consideration, but at this stage the RSS remains as an extant planning document. In the absence of a regional context it will likely be the responsibility of local authorities to work together under the duty to cooperate to best meet the needs of their area in the most appropriate way having regard for the NPPF and where appropriate other policy and legislation.

Greater Manchester City-Region 2.8 The Greater Manchester Strategy (GMS) –The GMS was published in 2009 and brings together the vision and principles that will elevate the city region to greater levels of national and international prominence by 2020. The strategy aims to deliver prosperity for all and has a vision of long-term sustainable economic growth. A key strategic objective of the GMS is to ‘create quality places to meet the needs of a competitive city region’. In order to achieve this, the Greater Manchester Local Investment Plan (LIP) 2 was prepared to help generate and shape investment in housing and physical regeneration. This has been driven by the local plans and priorities of the ten AGMA districts and their partners and a housing

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strategy was produced for Greater Manchester with a clear recognition of the need to support economic growth.

2.9 The Strategy is built on the extensive economic analysis and research carried out for the Manchester Independent Economic Review (MIER, April 2009). In terms of the approach to housing the overarching aim of the GMS seeks to address the housing market by creating quality places.

2.10 The ten authorities that make up Greater Manchester have adopted the Greater Manchester Forecasting Model (GMFM). The current iteration provides a model for the city region that forecasts household, population and economic projections up to 2032. The GMFM is updated annually and provides an indicative scenario for the shape of the city- region with more detailed data at a district level. The GMFM is a valuable tool which highlights likely trends and is integral to the policy and plan making process.

2.11 The Greater Manchester Housing Strategy - The Housing Strategy for the City Region builds upon the strategic priorities of the GMS and reflects the themes of the North West Regional Housing Strategy, which aims to improve the quality and quantity of housing, and enables people to access housing across the sub region.

Local Context 2.12 Tameside Community Strategy 2012-2022: The overarching strategy for the Borough is the Tameside Community Strategy. The Strategy prioritises the quality of neighbourhoods and suitable housing provision for people in need.

2.13 Tameside Housing Strategy 2010-2016: The Tameside Housing Strategy is underpinned by a range of studies and evidence based reports that have been produced to respond to housing need at a local level as well as reflecting the broader national and regional housing agenda. The Strategy aims to improve the quality and quantity of housing and connect people to the improved housing offer through: • Achieving the right quantity and quality of new housing - including diversifying the housing offer to increase choice • Continuing to raise the quality of the existing housing stock, services and neighbourhoods • Supporting people to access a range of housing options and services

2.14 Achieving the aims of the Strategy will help to deliver the aims of the Greater Manchester Housing Strategy.

2.15 Tameside Unitary Development Plan (UDP): The UDP was adopted in 2004 and is the current Local Plan for Tameside. Although some of the policies in the UDP will be replaced by the Core Strategy many of the housing policies will remain as the key determinant for housing delivery in the Borough.

2.16 Enterprising Tameside – A New Economic Strategy for Tameside 2012-26: The Enterprising Tameside Strategy has been written in response to the unprecedented changes to our economy and the challenges faced by the borough. The Economic Strategy states that in order to be economically thriving, Tameside must function effectively as a whole-place and community. The area suffered during the economic downturn, and the strategy aims to deliver a step-change in the local and wider economy. The strategy recognises that housing is at the heart of the borough’s economic challenge and calls for high quality homes of the right kind to meet economic and social needs at the right price.

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2.17 Tameside Strategic Housing Land Availability Assessment (SHLAA): The NPPF requires local planning authorities to produce a SHLAA identifying a potential supply of housing land for a 15 year period and beyond. The primary role of a SHLAA is to identify sites with the potential for housing, access their housing potential and when the land is likely to be developed. The Tameside SHLAA (April 2011) has identified sufficient land for 11,250 dwellings across the borough over the period 2011 to 2026. Tameside has recently undertaken a ‘call for sites’ and work is currently under way on an update to the SHLAA. It is anticipated that this will be published in April 2013.

2.18 Tameside Strategic Housing Market Assessment (SHMA): The key evidence based study is the Tameside Strategic Housing Market Assessment, carried out independently in 2008, with updates carried out in 2012. This study provides a comprehensive understanding of the housing market in Tameside with neighbouring housing market areas. The study identifies many issues facing the borough including improving economic performance, increasing the provision of affordable housing and diversifying the range of open market housing to both attract and retain residents.

2.19 In terms of the housing market the average house prices in Tameside over the period 1996 to 2005 increased by more than 261%. However this level of growth was mainly limited to areas of Stalybridge South, Hyde and parts of Ashton. The economic downturn has had a significant impact on house prices within Tameside, like all areas, with the average price paid for a property in November 2012 being just £93,045 compared to £121,984 in April 2008. Over the same period house prices across the North West fell by 18.9%. This reduction in the price paid for properties is unlikely to fully resolve issues of affordability within the Borough1.

2.20 Overall the SHMA highlights that Tameside is part of a wider functional market area that includes parts of Manchester, Stockport, Oldham and High Peak with strong commuter linkages with Manchester City. Households in Audenshaw and Mossley were most satisfied with their area, whilst those in Ashton and Droylsden were least satisfied. Other high level messages from this research include:

• The number of households in Tameside is projected to increase by 18,000 (17.1 %) between 2008 and 20332; • There is pressure on all types of housing, with the exception of terraced houses; • The imbalance between supply and demand for open market accommodation is most pronounced for properties with one and four or more bedrooms; • There is currently a shortfall of 424 affordable dwellings each year; • Between 2006 and 2008 there were 103 units of affordable housing completed; and • Improving the quality of stock across all tenures, especially in the private sector is a key challenge that will help to match the economic development offer and promote long term community sustainability and quality of life.

3.0 Housing Completions 3.1 Until its revocation, the RSS establishes the housing requirement for Tameside at 750 dwelling units per year net of clearance. This was a significant increase from the 370 units per year contained in the Tameside UDP 2004. As a result the adopted RSS was expected

1 New Economy January 2013, Housing Monitoring (Background data – House Prices) 2 Source: CLG 2008-based household projections (published November 2010)

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to result in the delivery of 13,500 dwellings in Tameside over the (plan) period 2003 to 2021. This housing target was set within the context of a wider approach to deliver housing across the North West and more specifically as part of a strategy to achieve housing growth in the Greater Manchester area. The housing requirements were supported by a combination of evidence from housing market research, population growth figures and the GMFM.

3.2 The graph below demonstrates the performance of net housing completions in Tameside from 1st April 2003 to 31st March 2012.

Figure 1: Net dwelling completion’s in Tameside 2003 to 2012

3.3 The graph highlights that Tameside has only achieved the RSS annual target of 750 dwellings net on one occasion - 2007/08 The table also shows the significant impact the recession has had on housing completions in the borough since 2009/10.

3.4 When gauging building rates in the borough since 2003 it is also important to consider the gross levels of housing completions compared with the number of dwellings lost through clearance, conversions or change of use. Table 1 below sets this out:

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Table 1: Tameside housing completions 1st April 2003 – 31st March 2012

Number of Dwellings lost Cumulative Number of from RSS Net Cumulative Shortfall Year Dwellings Clearance, Cumulative Completions Net Change (compared to Completed Conversions Net Target RSS Target) and Changes of Use 01-Apr-03 to 31-Mar- 610 95 515 515 750 -235 04 01-Apr-04 to 31-Mar- 574 191 383 898 1500 -602 05 01-Apr-05 to 31-Mar- 940 256 684 1582 2250 -668 06 01-Apr-06 to 31-Mar- 675 112 563 2145 3000 -855 07 01-Apr-07 to 31-Mar- 1164 375 789 2934 3750 -816 08 01-Apr 08 to 31-Mar- 921 269 652 3586 4500 -914 09 01-Apr 09 to 31-Mar- 347 94 253 3839 5250 -1411 10 01-Apr 10 to 31-Mar 321 35 286 4125 6000 -1875 11 01-Apr 11 to 31-Mar 350 0 350 4475 6750 -2275 12 Totals for April 2003 5902 1427 4475 to March 2012

3.5 The table above highlights that there have been 4,475 net completions across Tameside since 2003. The average rate of net completion for this period is 497 dwellings per annum (66% of the annual target). The result is that at 31st March 2012 Tameside had accumulated a deficit of 2,275 dwellings over the period 2003 to 2012. Considering that up until the recession the Borough had been through a period of unprecedented house building, it is likely that this deficit will be difficult to overcome given the very slow nature of economic recovery and the challenging annual target of 750 net dwellings.

3.6 The economic downturn has resulted in a considerably lower number of new planning applications being received by the Council and consequently less planning permissions being granted for residential housing. This is coupled with a greatly reduced output from housing developers on existing and new sites which has contributed to poor annual completion rates against the RSS housing target. This is despite the identification of suitable housing land and sites in the SHLAA to accommodate 8,337 dwellings over the period 2011-2026.

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4.0 Housing Land Supply

5 Year Housing Land Supply 4.1 The Tameside housing requirement, based on the annual RSS target of 750 net dwellings, for the 5 year period from 1st April 2012 to 31st March 2017 is 3,750 dwellings net (750 per year), allowing for average losses at 50 per year this gives a total of 4,000 dwellings gross. As a result the intention to abolish RSS is a material consideration, but at this stage the RSS remains as an extant planning document. This will in effect leave Tameside without a statutory housing target until one can be established through Core Strategy policy.

4.2 The NPPF states that an additional buffer of 5% (moved forward from later in the Plan period) is required to ensure choice and competition in the market for land. Applying the 5% buffer to Tameside’s five year land supply requirement of 3,750 dwellings would require additional land for 188 dwellings or land to accommodate a total of 3,938 dwellings over 5 years. Where there has been a record of persistent under delivery, local planning authorities should increase the buffer to 20% (moved forward from later in the plan period) to provide a realistic prospect of achieving the planned supply and to ensure choice and competition in the market for land.

4.3 The deliverable supply at 31st March 2012 based on an individual assessment of large sites is estimated at 3,629 dwellings, excluding any allowance for completions on sites identified in the Council's SHLAA and windfalls.

Strategic Housing Land Availability Assessment (SHLAA) 4.4 The findings from the SHLAA indicate that the existing housing land supply is adequate to meet the demand of the next 5 years, but does not take into account the potential for additional brownfield windfall sites. To meet the targets of years 6 to 10 there will be an increasing need to look to greenfield sites as the availability of suitable brownfield land diminishes. Critically for years 11-15 consideration will be required to release identified sites within the Green Belt to meet potential housing targets.

4.5 Figure 2 below identifies how the SHLAA supply translates across each of the eight Tameside townships. The chart shows that the main sources for housing land over the next 15 years could be concentrated within Stalybridge (21%), Denton and Audenshaw (18%), Ashton (16%) and Longdendale and Hattersley (15%).

4.6 In comparison the townships of Droylsden (5%) and Dukinfield (2%) indicate a relatively low supply of housing land due to the existing high density residential development in these areas and the fact that very little land is expected to become available.

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Figure 2: Strategic Housing Land Availability Distributions

Windfalls 4.7 A housing ‘windfall’ is a site which has not been previously allocated or identified for development by the Council, but is granted planning permission for housing development. Although the SHLAA has comprehensively identified a substantial number of opportunity sites for future housing development, there are typically many applications for housing that come forward that the Council has not been able to predict. These are usually on smaller sites or change of use and conversions of existing properties or where permission is granted for residential development on an employment site.

4.8 NPPF states that local planning authorities may make an allowance for windfall sites in the five-year supply if they have compelling evidence that such sites have consistently become available in the local area and will continue to provide a reliable source of supply. Over the past 25 years Tameside has consistently experienced a high proportion of new dwelling completions on windfall sites, contributing significantly to the overall delivery of housing in the borough.

Previously Developed Land 4.9 The NPPF encourages the effective use of land through the reuse of previously developed land (brownfield land), provided that it is not of high environmental value. The NPPF has also localised choice about the use of previously developed land by removing the national target for the amount of housing development that should take place on previously developed land (the 'Brownfield target').

4.10 In accordance with the targets currently set out in the RSS, Tameside gives priority to the construction of new dwellings on previously developed land aiming to provide at least 80% of new dwellings on such land. In light of the proposed abolition of the RSS and the localisation of decision making the opportunity has arisen for Tameside to set its own

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'Brownfield target'. Whether this target is retained at 80%, reduced to a lower target or even increased to a higher figure presents a number of different implications for the delivery of housing in Tameside.

4.11 One of the key principles of the emerging Core Strategy is the need to deliver new housing in sustainable locations. This promotes the use of previously developed land. Developing derelict, vacant and underused land and buildings will help to deliver regeneration and environmental improvements across the Borough. This will help to reduce the need to release greenfield sites. In Tameside these are primarily protected amenity areas or open spaces within the urban area or in the Green Belt.

5.0 Household Projections 5.1 The discussion in this section aims to draw together a range of evidence using household projection information to help inform the likely range of household growth scenarios for Tameside.

5.2 Household projections are an important starting point in calculating an appropriate housing target to be delivered within a local authority area. Household projections are compiled by applying projecting household membership rates to a projection of the private household population disaggregated by age, sex and marital status and summing the resulting projections of household representatives.

5.3 Assumptions around economic growth, migration and natural change (birth/death) are also factored into models. However, trends can change quickly which can have a substantial impact on overall household projections. It is also important to note that household projections should not automatically translate into housing targets. For instance, projections will take account of household dissolution (through out-migration and death) and will not sufficiently factor in changing household structures (for instance friends sharing a home and multi-generational households).

CLG Household Projections 5.4 The latest Government household projections (from CLG – see Table 2) are derived from 2008-based Office for National Statistics (ONS) population projections and are produced by applying projected household formation rates to the population projections. The assumptions underlying the national household and population projections are demographic trend-based on past trends. Therefore they do not seek to predict the impact of future government policies, changing economic circumstances or other factors that could affect demographic behaviour.

5.5 As these are based on demographic trends in the population and household formation they produce the expected household levels that would result if the previous demographic trends continue through the time period projection covers.

Table 2: CLG Household projections for Tameside

Year 2008 2013 2018 2023 2026 2028 2033 No. households 92,000 96,000 100,000 104,000 106,000 108,000 111,000 Source: CLG 2008-based household projections (published November 2010)

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5.6 The 2008-based household projections suggest an increase of 19,000 households over the period 2008 to 2033 or an average of 760 each year. This compares with variations in previous projections as follows: • 2004-based household projections of 18,000 (720 each year) over the period 2004 to 2029; and

• 2006-based household projections of 24,000 (960 each year) over the period 2006- 2031. 5.7 The 2006-based projections tended to produce higher figures because they made bullish assumptions about migration trends and the longer-term impact on people settling in the UK. These fluctuations are one reason behind the move away from the ‘predict and provide’ approach, as Local Plans cannot simply be revised to reflect the changes in the household projections.

5.8 Revised household projections are expected in 2013 in the light of 2011 Census data. These will be considered in revised editions of the housing topic paper when they are available.

Greater Manchester Forecasting Model Projections 5.9 The Greater Manchester Forecasting Model (GMFM) is an integrated model which brings together information on economic change, employment change (including migration) and household formation through a set of linked econometric equations. The GFMF builds in assumptions on economic growth scenarios, unlike the ONS household projections, which are based on past trends. The GMFM household projections for Tameside are presented in Figure 3 and indicate a sustained increase in population and households to 2032, equivalent to an annual average increase of 7003 households and 7094 dwelling stock over the period 2012 to 2032.

Figure 3: GMFM 2012 Household projections

120

115

110

105

100

95 '000

90

85

80

75

70 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024 2025 2026 2027 2028 2029 2030 2031 2032

Households Housing stock

3 GMFM 2012 household figure is rounded to the nearest thousand 4 GMFM 2012 housing stock figure has been rounded to the nearest ten

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Source: Greater Manchester Forecasting Model 2012

5.10 The GMFM presents data from which average annual change in dwelling stock and households can be derived and Table 3 summarises this data based in five calendar year intervals. During the period 2001-10, the rate of dwelling stock change averaged at 480 per year. The model predicts a growth in dwelling stock with an average of 580 over the period 2016-2020 and a sustained increase of an average of 800 households over the period 2012 to 2022. After 2022, the average annual increase in dwelling stock appears to remain static, whilst households reduces slightly over the period 2012-2025 to 400 before rising to 600 (2026-30) and 500 (2031-2032) respectively.

Table 3: Projected annual change in dwelling stock and households

Period Average annual change Dwelling stock Households 2001-2005 374 200 2006-2010 394 600 2011-2015 432 600 2016-2020 580 600 2021-2025 542 400 2026-2030 538 600 2031-2032 340 500

Source: Greater Manchester Forecasting Model 2012

5.11 Given variations in household projections outlined above, it is important therefore to apply the ‘plan, monitor and manage’ approach to housing targets, whereby the targets are planned to take account of household projections and other key planning issues. The targets should then be managed and monitored to ensure that housing is delivered in line with the overall strategy and to determine whether there needs to be any significant shift in the adopted approach (e.g. whether there needs to be an early review of the plan).

6.0 Components of Household Change 6.1 Both the CLG and GMFM data predicts a growth of households within Tameside over the period to 2033 (for CLG projections) and 2031 (GMFM projections). Further data provided by the CLG considers the extent of household growth by the age of Household Reference Person (HRP), formerly described as ’head of household’. 6.2 Table 4 illustrates the proportion of households by the age of Household Reference Person (HRP) and shows that most of the household growth is actually amongst older person households. Of the anticipated growth of 20,000 households (800 each year), the number of households with a HRP aged 65 or over is projected to increase by 15,000 (or 600 each year) and the number with a HRP aged between 16 and 64 is projected to increase by 5,000 (or 200 each year).

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Table 4: Household growth in Tameside 2008-2033 by Household Reference Person age band

Age of No. households Household Reference Change Person 2008 2033 2008-2033 Under 25 3000 3000 0 25-34 13000 15000 2000 35-44 20000 21000 1000 45-54 25000 26000 1000 55-64 8000 9000 1000 65-74 12000 18000 6000 75-84 8000 12000 4000 85+ 3000 8000 5000 Total 92000 112000 20000 Source: CLG Household Projections based on ONS 2008-based population projections

6.3 Data from the 2008 Housing Need and Demand Survey carried out as part of the 2008 Strategic Housing Market Assessment can be used to consider the potential impact of household change on tenure and dwelling stock requirements. Analysis can establish the proportion of households by HRP age groups in different tenures and house types in 2008. This can be applied to household projections for 2008 and 2033. Although this analysis does not factor in changing aspirations, it gives a useful insight into the types and tenures of dwellings which may be required to meet the changing number of households overall and by HRP. 6.4 In terms of tenure, Table 5 suggests that the increase in households and change the proportions by HRP would result in 14,127 additional households living in open market dwellings and 5,873 living in affordable dwellings. This does not automatically translate into a specific requirement to build number of dwellings as alternatives such as bringing empty properties back into use could help offset the requirements from these households.

Table 5: Household growth in Tameside 2008-2033: potential impact on tenure requirements

Change in no. households by HRP 2008-2033 HRP Tenure Open Market Affordable Total Under 25 0 0 0 25-34 1612 388 2000 35-44 832 168 1000 45-54 810 190 1000 55-64 792 208 1000

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65-74 4561 1439 6000 75-84 2670 1330 4000 85+ 2849 2151 5000 Total 14127 5873 20000 Annual 565 235 800

Source: 2008-based household projections; 2008 housing need and demand survey 6.5 In terms of dwelling type, Table 6 summarises the potential impact of changing household numbers on dwelling type requirements. This suggests an increased number of households living in all property types (67% in houses, 14.7% in bungalows, 17.3% in flats and 1% in other property types). Overall, 28.3% of households are projected to have a HRP aged 65 or over and require bungalows and flats. Mismatches between current provision and future demand have the potential to be addressed through new build development. Table 6: Household growth in Tameside 2008-2033: potential impact on dwelling type requirements HRP Property type Semi- Detached detached Terraced house house house Bungalow Flat Other TOTAL Under 25 0 0 0 0 0 0 0 25-34 96 688 920 19 261 15 2000 35-44 143 408 320 17 94 17 1000 45-54 135 396 317 30 107 15 1000 55-64 133 350 288 72 134 23 1000 65-74 504 2139 1714 806 768 69 6000 75-84 135 1444 913 761 719 28 4000 85+ 185 1216 950 1244 1370 35 5000 Total 1331 6642 5423 2949 3453 202 20000

NOTE: The figures for property type are rounded and may not sum to the figure in the Total column. 6.6 In summary, a detailed analysis of household projections suggests that although total numbers of households are expected to increase, the impact of demographic change means the proportion of households with a HRP aged 65 and over will increase dramatically. Although for new households, the greatest growth will be amongst older person households. This has considerable implications for the quality and types of dwellings that need to be built to reflect future demand. Adopting lifetime homes standards should be viewed as a priority along with diversifying the range of new build dwellings appropriate for a growing number of older person households and maintaining the delivery of homes to reflect the aspirations of economically active and younger households.

7.0 Dwelling Stock 7.1 Table 7 compares the overall change in occupied dwellings against the total number of dwellings over the period 2001-2011. At 1st April 2011, there were 99,161 dwellings in Tameside of which 1,757 were empty private dwellings, resulting in 97,404 occupied

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dwellings. Overall, the total number of occupied dwellings has increased by 7,495 or an average of 750 each year however, the total number of dwellings has also increased by 5,077 or around 510 each year. The difference can be partly attributed to an overall reduction in vacant properties through demolition and those brought back into use, with the total falling from a peak of 5,397 in 2003 to 1,757 in 2011.

Table 7: Dwelling stock in Tameside

Year Dwelling stock Annual Annual Dwelling Occupied Stock Total Vacant Occupied change change 2001 94,084 4,175 89,909 2002 94,907 4,212 90,695 786 823 2003 95,040 5,397 89,643 -1,052 133 2004 95,557 4,849 90,708 1065 517 2005 95,945 4,263 91,682 974 388 2006 96,912 4,481 92,431 749 967 2007 97,210 4,998 92,212 -219 298 2008 97,885 3,894 93,991 1,779 675 2009 98,570 4,375 94,195 204 685 2010 98,878 2,019 96,859 2,664 308 2011 99,161 1,757 97,404 545 283

Source: HIP and HSSA returns

7.2 It is notable that the actual extent to which the dwelling stock is increasing has varied considerably over the period 2001 to 2011. On average, it has increased by 508 each year over the 10 year period but in the more recent past, the scale of dwelling increase has fallen considerably (a five year average to 2011 of 450; a three year average of 425 and a two year average of 296).

8.0 Vacancy Rates 8.1 The Government is keen to ensure that best use is made of available stock. Across Tameside 1.8% of dwelling stock (1,757) is vacant according to 2011 Housing Strategy Statistical Appendix figures. The number of vacant properties has fallen dramatically over the past decade. The level of vacancy is now below an indicative threshold for ‘transactional vacants i.e. the number of dwellings which ought to be vacant to facilitate movement within the housing market (the rate is 2% for social rented and 4% for private sector stock).

8.2 Within Tameside there will be pockets where vacancy rates are above these threshold figures. This presents an opportunity to bring vacant properties back into use. The Council’s Empty Property Strategy, seeks to reduce the number of vacant properties by, for example, bringing them back into use. Bringing back 25% of vacant properties would provide accommodation for 440 households and bring the vacancy rate to an average of 1.3%

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across the borough. This will potentially increase the revenue received through additional Council Tax and the New Homes Bonus.

9.0 Policy Influence on the Local Plan 9.1 The CLG household projections data (published in 2010) presented in Table 4 suggest an increase of 800 households each year across Tameside. However, dwelling stock figures in Table 7 present a different picture, with an overall average annual increase of 507 over the 10 year period 2001 to 2011 and much lower average annual increases over the past 5 years. Modelled 2012 GMFM data would suggest a slightly lower average annual increase of 6005 households and 5056 additional dwellings over the 10 year period 2001 to 2011.

9.2 The 2012 GMFM suggests a sustained increase in households and dwellings over the period 2012 to 2032. During which time it estimates that the rate of household growth and dwelling stock provision will increase to an average of 800 and 780 per annum respectively over the period 2012 – 2017. This figure falls slightly between 2018-2022 to 600 households and 528 additional dwellings per annum and 600 households and 536 dwellings per annum for the period 2028-2032.

9.3 It is important to reiterate that household projections do not automatically translate into housing targets. Determining an appropriate housing target is much more complex than simply reflecting household projections. Other factors, such as deliverability constraints, strategic policies and the nature of household growth also need to be taken into account. On balance, targets need to be set within the strategic vision of the Council, bear in mind the changing demography of Tameside and based on a realistic assessment of what is deliverable and over what timeframe.

10.0 Housing Targets

Future Annual Housing Targets - Issues to Consider 10.1 One of the most important aspects of the Core Strategy will be to determine what annual housing target the borough should take forward. As stated earlier in the report the current target stands at 750 dwellings per year. However, this figure has only been exceeded once since 2003 resulting in an accumulated shortfall of some 2,275 units that will have to be made up over the remaining years.

10.2 Despite underperformance and the current calm in house building, the recent evidence updates for population and household projections, as discussed in the previous section, continue to lend support to the RSS housing target. As a result some of the broad evidence still suggests that around 750 units per year will be required in order to meet the demands and needs of a growing and varied population in Tameside.

10.3 With the proportion of households aged over 65 set to increase dramatically, the greatest level of growth will be amongst older person households. This however doesn’t necessarily translate into new dwellings needed, but instead requires the delivery of suitable housing types to accommodate this increase in demand, with many of the majority of the ageing population already in accommodation. It could be argued that this is likely to offset some of the increase in demand for new homes for first time buyers as overall demand is weighted towards the over 65’s group, relieving some pressure to deliver new homes.

5 GMFM 2012 household figure is rounded to the nearest thousand 6 GMFM 2012 household figure is rounded to the nearest ten

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10.4 Drawing conclusions from the SHLAA (See Paragraph 8.0) building in excess of 750 dwellings per year on the increasingly limited resources of suitable and sustainable sites is likely to result in greater pressure to develop existing employment sites and greenfield land. In the long term (11 to 15 years and beyond) the SHLAA suggests that the release of Green Belt land may be required in order to sustain these building rates and to supply the levels of housing the evidence base implies is needed.

10.5 With recent forecasts suggesting the economic recovery will continue at a slow pace it is unlikely that house building rates will return to pre-recession levels for many years and almost certainly not within the next 5 years. The implications of this will see the accumulated shortfall of underperformance against the 750 target getting increasingly bigger and difficult to deal with. If the borough is then faced with a housing requirement that is difficult to achieve and the suitable resources of land to achieve this target cannot be identified in the rolling 5 year supply of sites then the Council will be increasingly open to accept 'ad hoc' and unsustainable residential development. This is likely to see more development on greenfield land and strategic employment sites rather than identified brownfield regeneration areas and environmentally constrained sites in need of remediation.

10.6 Therefore, it is important that careful consideration is taken to ensure that the housing target strikes the right balance between providing the volume, choice and mix to meet the identified needs and demand, but at the same time avoid undue environmental damage with increased urban sprawl and the loss of attractive green spaces as well as valuable employment land resources.

11.0 Annual Housing Target – Alternative Scenarios 11.1 This section sets out some alternative housing targets to consider based on the evidence so far presented. Each option includes a brief discussion of the advantages and disadvantages of the proposed target.

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Option 1: UDP Target – 370

Potential to deliver 6,290 homes within the urban area between 2012 - 2029.

This scenario is based on reverting to the housing target established in the Unitary Development Plan 2004 – which ran from April 2002 to March 2011. Development would continue within the urban area on predominantly brownfield land. No land would be required to be released from the Green Belt.

Advantages:

• New housing focused within the built up area; • Balanced against other factors such as continued protection of important open spaces, community facilities and key employment sites; • Infrastructure requirements associated with this level of development are considered to be manageable and deliverable; and • Transport – reduced additional impact on the existing network.

Disadvantages:

• Level of provision will not meet overall need and requirements suggested by the evidence; • Level of provision would not support the economic vision for Tameside; • Lacks ambition and has the potential to fail residents by not offering the required housing choice; and • Justification - evidence base supports a higher target figure.

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Option 2: Average completion rate 2003 to 2011– 516

Potential to deliver 8,772 homes between 2012 - 2029.

This scenario is based on the average net housing completion rate since 2003. Looking back as far as 1986, this is consistent with the historical completion rate in Tameside, of around 500 net dwellings per year. Development would continue within the urban area on predominantly brownfield land. Small scale re-development of existing developed sites in the Green Belt could be accommodated, but large scale Green Belt release would not be required during the plan period.

Advantages:

• Sustainable approach to development, providing more homes close to jobs; • Realistic and achievable in the context of the historical housing market and delivery rate; • Balanced against other factors such as continued protection of important open spaces, community facilities and key employment sites; • Infrastructure requirements associated with this level of development are considered to be manageable and deliverable; and • Limited environmental impact - retaining the focus on ‘brownfield first’ and limited pressure on greenfield land.

Disadvantages:

• Level of provision will not meet overall need and requirements; • Level of provision would have difficulty supporting the economic vision for Tameside; • Justification - evidence base supports a higher target figure. • Limited ambition and has the potential to fail residents by not offering the required housing choice; and • Increased pressure on land for housing – key employment sites and other strategic land could be lost.

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Option 3: RSS Target – 750

Potential to deliver 12,750 homes between 2012 - 2029.

This scenario is based on the current housing target set out in the North West Regional Spatial Strategy (RSS). It should be noted that despite a period of unprecedented house building in Tameside between 2003 and 2009 this figure was only exceeded once (2007/08) in six years. Since 2009 completion rates in the borough have fallen dramatically to 253 in 2010 and 286 in 2011 before rising slightly in 2012 to 350 net dwellings. Development would continue within the urban area and urban fringe, however, sites within the Green Belt would need to be released in the medium to long term periods of the plan to accommodate this level of housing growth.

Advantages:

• Level of provision would support the economic vision for Tameside; • Level of provision would continue to meet the housing need and affordable housing provision in Tameside; • Sustainable approach to development, providing more homes close to jobs; • Justification - supported by the recent evidence base.

Disadvantages:

• Potentially unachievable in the short/medium term due to the current economic climate; • Likely to accumulate an annual underperformance potentially activating the ‘additional 20% flexibility buffer’ in the NPPF to ensure choice and competition in the market for land; • Increased development pressure on employment sites; • Environmental impact on the “setting” of the borough and the purposes of the Green Belt would be undermined; and • Transport – likely increased pressure to the network without significant measures put in place to relieve congestion, existing pinch points and overcrowding on public transport.

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Option 4: Significantly increased levels of urban and Green Belt growth – 800+

Potential to deliver a minimum of 13,600 homes between 2012 - 2029.

This scenario is based on the CLG household projection and the GMFM economic based household forecast. To some extent the figure is supported by the SHLAA. Development would continue within the urban area and urban fringes, however a significant amount of new land would need to be released from the Green Belt within the Plan Period. Development would be more dispersed across the borough with potentially less focus on difficult/ costly to development sites and regeneration areas.

Advantages:

• Provision would make a major contribution to the overall housing need and supply of affordable housing in Greater Manchester; and • Level of provision would continue to support the economic vision for Tameside and provide more land for jobs in sustainable locations as part of mixed use developments;

Disadvantages:

• Unachievable in the short/medium term due to the current economic climate; • Potential for unmanaged and ad-hoc housing development and neglect of regeneration areas or strategic approach; • Potential to accumulate a large annual underperformance potentially activating the ‘additional 20% flexibility buffer’ in the NPPF – to ensure choice and competition in the market for land; • Development pressure on employment sites and greenfield land; • Environmental impact on the setting of the borough and the purposes of the Green Belt would be undermined; and • Transport – likely increased pressure to the network without significant measures put in place to relieve congestion, existing pinch points and overcrowding on public transport.

Suggested Way Forward – The Preferred Option 11.2 NPPF states that assessments and strategies for housing should take full account of market and economic signals, yet plan for a mix of housing based on current and future demographic change. Land allocations should also be regularly reviewed – giving some element of flexibility to housing policy.

11.3 In terms of the housing market the continuing effects of the recent economic downturn are likely to be felt for several years. In particular, the limited availability of funding for developers and mortgages for prospective homeowners will act as a constraint to the amount of new residential development coming forward. It is therefore anticipated that housing completions will be lower in the first five years than during the rest of the Core Strategy period. Some effects may still be felt beyond 2017, and so the second five year period is also likely to be slightly below the scale of development envisaged thereafter.

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11.4 Following this process the preferred option is to set out a phased housing target in 5 year intervals over the Plan period, to be reviewed every 2 to 3 years:

Years Annual Target Total Houses 1 – 5 500 2,500 6 – 10 650 3,250 11 – 17* 750 5,250 11,000

*Accounts for Plan period baseline from 2012

11.5 This approach aims to deliver 11,000 homes over the Plan period 2012 – 2029, leaving a potential shortfall of 2,333 against the household formation figure of 13,3337. The NPPF requires a supply of specific deliverable sites sufficient to provide five years’ worth of housing requirements with an additional buffer of 5% moved forward from later in the plan period. Where there has been a record of persistent under delivery of housing the buffer should increase to 20%. Based on the first 5 years of the Preferred Option the NPPF could apply to Tameside as follows:

• 5 year requirement (500 x 5) - 2,500 dwellings • NPPF additional buffer of 5% - 2,625 dwellings • NPPF additional buffer of 20% - 3,000 dwellings (or equivalent land for 600 dwellings per year)

11.6 It is considered that this preferred approach would set out a realistic and achievable strategy for housing delivery that is soundly based on current market trends, land availability in the Borough whilst crucially recognising and taking account of the projected household and population forecasts. This phased approach over the plan period would provide the necessary levels of housing to meet demand and give a balance between realistic delivery opportunities and land availability.

12.0 Housing Needs

Housing Need vs. Housing Demand 12.1 The term 'housing requirements' is sometimes used to refer to the combination of need and demand, particularly where market as well as affordable housing provision is being considered. It is important however, to distinguish between the terms housing need and housing demand.

12.2 The wider concept is the 'demand' for housing, which is a measure of how many households wish to obtain accommodation in an area. This demand includes households wishing to buy or rent housing at a range of price levels on the open market, using financial arrangements such as rent, mortgage and full-price cash payments. A working definition of housing demand is the quantity of housing that households want and can afford to buy or rent without subsidy.

7 Figure calculated from ONS sub-national population projections 2012 (2010 Based)

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12.3 Housing 'need' has a narrower focus on those experiencing financial difficulty in gaining access to suitable accommodation. In terms of housing units, housing need may be defined as the quantity of housing needed to house those households currently lacking their own housing, or living in unsuitable housing, and who cannot afford to buy or rent housing without assistance.

Social Housing 12.4 The social property stock in Tameside stands at around 22,500 units with over 20 different registered providers operating in the borough. New Charter is the largest registered provider with a stock of approximately 14,500 dwellings. Other providers include Peak Valley (approx. 1,400 homes in Hattersley), Regenda (approx 1,200 homes in Ashton, Denton and Dukinfield), Irwell Valley (approx 1,000 homes in Haughton Green) and Ashton Pioneer Homes (approx 1,000 homes in Ashton). Smaller providers of between 300 to 500 homes include Contour (Audenshaw and Droylsden), Harvest (Hyde) and Accent North West (Ashton and Dukinfield).

12.5 Over the next 5 years it is expected that New Charter will develop the most significant increases in social housing. They have outlined a strategy as part of the affordable homes programme to build a further 360 new dwellings between 2011 and 2015. This is likely to be achieved through a mixture of infill development on existing estates as well as the addition of new sites such as Wellington Works in Ashton and Wakefield Road in Stalybridge.

Affordable Housing 12.6 The Government defines affordable housing as housing for rent or sale at prices below market levels, and at a cost low enough for eligible priority households to afford. Affordable housing provision includes social rented housing and assisted home ownership (e.g. shared ownership or shared equity).

12.7 The Tameside Housing Strategy outlines a requirement of 180 new homes per year (subject to improved market conditions) to be affordable housing. This would equate to around 24% of all new housing provision8. The Housing Strategy explains that this strikes an appropriate balance between affordable needs and wider market demand will contribute to achieving socially balanced communities.

12.8 In terms of housing choice in Tameside there is an identified need to improve the range of and access to homeownership products on offer in the borough. First time buyers tend to be, from what can be described as, the ‘excluded middle market’ with income levels that can sustain homeownership but without current prospects of buying due to the difficulties associated with access to suitable finance and mortgage opportunities. This group requires housing options that provide them with support to enable them to get onto the housing ladder such as assistance with a deposit. In turn there are also difficulties for second time buyers and those looking to move further up the housing ladder to accommodate growing families or have greater aspirations.

12.9 In comparison to the problems of affordability in the private housing market, the housing offer in the private rent sector in Tameside is also relatively poor. Traditionally this has been characterised by small scale landlords with low quality accommodation. As a result the rental market is not geared towards providing suitable and flexible accommodation that would attract young professionals and post graduates into the borough and boost the skills

8 Percentage based on Tameside’s total housing provision at 11,250 dwellings net over a 15 year period, of which 2,700 net dwellings will be required for affordable housing or 24% of the total figure.

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base. Tameside would therefore benefit from the introduction of professional top market rented landlords into the private rented market that are responsive to the needs and aspirations of this key skills group.

12.10 Arc4 have updated the housing needs assessment component of the 2008 Strategic Housing Market Assessment to take into account: • Changes in house prices and rents and therefore considers the extent to which the overall requirement for affordable housing amongst existing households and newly-forming households has changed; • Changes in the supply of social rented and intermediate tenure dwellings.

12.11 The updated housing needs analysis and affordable housing modelling has been prepared in accordance with CLG guidance at township and District level. In summary, the model reviews in a step-wise process: • Stage 1: Current housing need (gross backlog) • Stage 2: Future housing need • Stage 3: Affordable housing supply • Stage 4: Housing requirements of households in need and net affordable requirements 12.12 Table 8 summarises the different steps taken in assessing housing need and evidencing the extent to which there is a surplus or shortfall in affordable housing across Tameside by township. This data was prepared for a 2011 update of modelling initially carried out as part of the 2008 SHMA. The 2008 SHMA provides detailed technical information on the steps and stages of the needs modelling process. Please note that in Stage 1, step 1.4 reports the total number of households in need and avoids double counting as in some cases households have more than one housing need.

12.13 Since the 2008 survey was published the annual affordable shortfall has reduced from 424 to 304 each year. The 304 figure excludes an allowance for the impact of new build affordable dwellings.

12.14 The reduction in overall affordable requirement can be principally attributed to a reduction in lower quartile house prices which has made properties relatively more affordable, particularly for newly-forming households.

12.15 Table 9 summarises the overall annual net affordable housing requirements for Tameside by township, designation (general needs and older person) and property size.

12.16 It suggests a particular shortfall of larger (3+ bedroom) affordable dwellings and older persons affordable dwellings and a sufficient supply of smaller (1/2 bedroom) dwellings.

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Table 8: Arc4 Needs Assessment Summary by Township

Stage Description Township

Ashton Audenshaw Denton Droylsden Dukinfield Stage 1: Current need and Households in need and cannot cannot afford open market afford open market 1080 111 419 397 454 rent/purchase renting/purchase From emerging households and 187 35 79 67 75 Stage 2: Future need households falling into need Stage 3: Housing supply Affordable supply 311 39 136 58 171 Stage 4: Estimate of annual 4.1 Total backlog need (From 1080 111 419 397 454 housing need Stage 1) 4.2 Quota to reduce over 5 years 20% 20% 20% 20% 20% (20%) 4.3 Annual backlog reduction 216 22 84 79 91 4.4 Newly-arising need (from 187 35 79 67 75 Stage 2) 4.5 Total annual affordable need 403 57 162 146 166 (4.3 + 4.4) 4.6 Annual affordable capacity 311 39 136 58 171 (Stage 3)

Net annual shortfall (4.5-4.6) 93 18 26 89 -4

Stage Description Township

Hyde Longdendale Mossley Stalybridge Tameside Stage 1: Current need and Households in need and cannot cannot afford open market afford open market 629 167 173 503 3932 rent/purchase renting/purchase From emerging households and 93 47 26 89 700 Stage 2: Future need households falling into need Stage 3: Housing supply Affordable supply 189 56 46 177 1182 Stage 4: Estimate of annual 4.1 Total backlog need (From 629 167 173 503 3932 housing need Stage 1) 4.2 Quota to reduce over 5 years 20% 20% 20% 20% 20% (20%) 4.3 Annual backlog reduction 126 33 35 101 786 4.4 Newly-arising need (from 93 47 26 89 700 Stage 2) 4.5 Total annual affordable need 219 81 61 190 1486 (4.3 + 4.4) 4.6 Annual affordable capacity 189 56 46 177 1182 (Stage 3)

Net annual shortfall (4.5-4.6) 30 25 15 13 304

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Table 9: Net affordable housing requirements – annual requirements 2011/12 to 2015/16

Township General Needs Older Person TOTAL Smaller (1/2 Three Larger (4 All sizes Bed) or more) Ashton 4 41 44 4 93 Audenshaw -1 10 6 3 18 Denton -20 19 15 13 26 Droylsden 6 73 2 7 89 Dukinfield -72 36 21 11 -4 Hyde -41 42 33 -4 30 Longdendale 1 19 0 5 25 Mossley 0 9 2 5 15 Stalybridge -49 29 22 10 13 Tameside -173 280 143 55 304 Source 2008 Household Survey and 2011 needs analysis update NOTE: The figures for Township are rounded and may not sum to the figure in the Total column.

Tenure and dwelling type profile of affordable dwellings 12.17 Affordable housing includes social rented, affordable rented and intermediate tenure (such as shared ownership) dwellings. New development will be affordable rented (with rents of up to 80% open market rent) and in order to recommend an appropriate split between social rented and intermediate tenure, the stated preferences of households and the relative affordability of different tenure options is now reviewed.

Tenure preferences 12.18 Households in the 2008 survey were asked to state tenure preferences and evidence suggests that an element of intermediate tenure dwellings should be considered as part of affordable housing delivery in Tameside. Table 10 summarises the preferences of both existing households in need and newly forming households by tenure. Overall, this gives a tenure split of 77% social rented and 23% intermediate tenure9 across the District.

12.19 There is clearly scope for an intermediate tenure market in Tameside. The final proportion of intermediate tenure dwellings to be delivered needs to be reconciled with the economic viability of delivering affordable housing on sites, the appetite of the Homes and Communities Agency to fund intermediate tenure dwellings, and the ability of households to secure mortgages.

9 Harriot & Matthews 2009, Introducing Affordable Housing describe ‘intermidiate housing’ as ‘consist of two types of housing whose price is less than what would be charged on the open market. It includes (a) intermediate renting, which is housing rented at levels above social rents, but still below market level, and (b) various kinds of low cost ownership’

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Table 10: Affordable tenure preferences

Affordable tenure preference Existing Newly- Total Household Forming (%) in Need Household Social Rented 77.0 77.3 77.1 Intermediate 23.0 22.7 22.9 Total 100.0 100.0 100.0 Base (annual requirement) 786 700 1486 Source: 2008 household survey

Property Type Preferences 12.20 Table 11 considers the range of affordable property types households would consider. This is based on the aspirations of existing households ‘in need’ and newly-forming households requiring affordable accommodation. Overall, analysis suggests that around half of new provision should be houses, around one- quarter flats and the remainder bungalows.

Table 11: Affordable property type preferences

Property type Existing Newly- Total Household Forming (%) in Need Household

House 47.7 53.8 50.6 Flat 18.5 39.6 28.4 Bungalow 33.8 6.6 21.0 Base (annual requirement) 786 700 1486 Source: 2008 household survey

The Relative Affordability of ‘Affordable Rent’ 12.21 Table 12 considers the relative affordability of ‘affordable rent’ compared with social rent and private renting. This analysis clearly demonstrates that the proportion of existing and newly-forming households who could afford ‘affordable rent’ is noticeably lower than those that could afford social rents.

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Table 12: Affordability of Affordable Rent Type of Affordability Existing Newly- Existing Newly- Rent household (%) forming household forming household (no.) household (%) (no.) Social Rent Can Afford 38.5 67.8 303 475 Cannot Afford 61.5 32.2 483 226 Affordable Can Afford 21.8 53 171 371 Rent* Cannot Afford 78.2 47 615 329 Open Market Can Afford 13.5 41.6 106 292 Rent Cannot Afford 86.5 58.4 680 409 Base (each 786 700 786 700 year) *80% of Open Market Rent

Empty Homes 12.22 The economic downturn has had an impact on the local housing market and the number of long term empty homes in Tameside is now a cause for concern. Tameside like most places has a normal transactional turnover which can result in many homes remaining empty for varying periods of time. According to the Draft Tameside Empty Property Strategy 2012-2015 there were 1,239 empty residential properties across the borough based on Local Authority Council Tax figures. These properties are empty for a multitude of reasons.

12.23 The Council and its registered provider partners are looking at developing management opportunities and will pro-actively work with owners of empty homes to bring their properties back into use. As a result the Council is developing the Empty Property Strategy to set out our understanding of the problem and the actions it intends to take to address it. This will help to house more people, improve the physical environment and reduce vandalism and crime. If successful it will make a major contribution to supporting the aims of the community strategy. In addition it will also help to offset the shortfall in current development.

Homelessness 12.24 Since the publication of the Homelessness Strategy in 2008 there have been significant developments on an economic and political level. These have created a challenging environment for the local authority and its partners in its approach to preventing homelessness in Tameside. The “credit crunch” which started in 2007 has already created a situation where there are now more people at risk of losing their jobs and their homes and it is anticipated that this risk will remain.

12.25 However the main concern for the Council is that cuts to public investment in housing over the next four years and the plans for welfare reform up to 2020 could see some of the most vulnerable people shouldering a disproportionate burden of the government’s deficit reduction measures. The cut to the new building programme will have a major impact on the ability to deliver enough affordable housing in our communities for the foreseeable future.

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Accommodation for Older People 12.26 The Office for National Statistics (ONS) 2008 population projections suggest that there are currently around 34,700 residents in Tameside aged 65 or over, representing 16% of the population. This is set to increase to 53,900 by 2033, by which time older people are projected to represent 22.6% of the population.

Table 13: Population Projections

Year % Age group change 2011 2021 2033 2011- 2033 Total Population 216400 226900 238700 10.3 Total Aged 65+ 34700 42300 53900 55.3 Total Aged 75+ 15600 20100 27100 73.7 Total Aged 85+ 4500 5900 10300 128.9 As % of population 2011 2018 2033 Total Aged 65+ 16.0 18.6 22.6 Total Aged 75+ 7.2 8.9 11.4 Total Aged 85+ 2.1 2.6 4.3

Source: 2008-based ONS population projections (2010)

12.27 Tameside's 'Quality of Life Strategy for Older People' focuses on ensuring a sufficient supply of appropriate housing and provision of support so older people can continue to live in their own homes. Despite this the Tameside Housing Strategy identifies that there is a limited supply of private sheltered flats and bungalows, which exacerbates pressure on sheltered social housing. It also considers that planning should be more pro-active in working with developers, using Section 106 agreements, design guides and policies in order to improve the supply of housing suitable for older people. Tameside should also increase the supply of adaptable general needs housing, such as building to the Lifetime Homes Standard so that the home can be adapted as people get older rather than having to move house.

13.0 Gypsies, Travellers and Travelling Showpeople 13.1 Although some Gypsy and Travellers travel for part of the year, the vast majority do not now travel on a daily basis all year round. Increasingly, as traditional work has declined, Gypsy and Travellers have adapted to permanent residential sites where they can more easily access a doctor, schools and other services and employment while maintaining the cultural traditions of being a Gypsy or Traveller. Permanent authorised pitches can help to promote integration and inclusion with settled communities. Despite the increase in permanent sites it is also important to recognise the need to provide transit sites to facilitate the travel undertaken by these groups to maintain their traditional way of life.

13.2 Travelling showpeople are members of a community that consists of self employed business people who travel the country, often with their families, holding fairs. Usually Travelling showpeople will require secure, permanent bases for the storage of their equipment, maintenance of rides and for residential purposes.

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13.3 In partnership with the other nine Greater Manchester Authorities, Tameside commissioned a comprehensive assessment of the accommodation and wider service needs of Gypsies and Travellers in the Greater Manchester sub-region. The final report in May 2008 highlighted that Tameside needed to provide 17 pitches for Gypsies and Travellers. It also found there were 18 pitches needed up to 2015 for Travelling Show People in addition to the 38 existing pitches. Therefore suitable sites will need to be considered.

14.0 Design, Tenure, House Type and Size

Design Considerations 14.1 Creating high quality, sustainable homes for the residents of Tameside needs to be a key priority for future housing development across the Borough. To date new (private) housing schemes have been dominated by generic house design ‘stock-book’ developments which often fail to represent high quality design or place specific characteristics. This issue is not a Tameside specific one (but Tameside needs to address it), as highlighted by the North of England Housing Audit undertaken by CABE in 2005. This design audit of new dwellings assessed 93 completed schemes using the Building for Life criteria, with only 6 schemes rated ‘very good’ or ‘good’. Within the North West, Tameside had the joint second lowest scoring development.

14.2 The Tameside Residential Design Supplementary Planning Document (2010) contains policies to help address issues surrounding poor design, but allied with this, consideration should be given to requiring developments to achieve a minimum Building for Life (BfL) score. Accompanied by the Residential Design SPD, this will provide developers with a clear set of criteria by which the design of their development will be assessed. In turn, it will also ensure that developments approved will be of a high quality.

14.3 The stepped tightening of Part L Building Regulations will improve the energy efficiency and reduce carbon emissions of new housing development. This in turn could help to improve elements of housing design and layouts, as issues such as solar gain becoming increasingly important.

The Dynamics of the Private Rented Sector

14.4 Nationally, the private rented sector has established itself as an important dimension of the housing market to complement owner occupation and social renting. The private rented sector plays an essential role in the housing market. It offers flexibility and choice to a wide range of people, from students and young professionals, to families and older households. The sector is diverse in terms of the range of households it accommodates and the types of properties available. A report ‘The Modern Private Rented Sector’10 provides a useful overview of the sector. Drawing upon 2001 census data, it suggests that the private rented sector has five key roles: • A traditional housing role for people who have lived in the private rented sector for many years; • Easy access housing for the young and mobile; • Providing accommodation tied to employment;

10 ‘The Modern Private Rented Sector’ David Rhodes, 2006 University of York with CIH/JRF

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• A residual role for those who are unable to access owner occupation or social renting; • An escape route from social rented housing (for instance those wanting to move to a different area but unable to do so through their social housing provider). 14.5 Given the range of roles of the private rented sector, there is a considerable diversity in the characteristics of private renting tenants. Nationally, evidence from the 2001 census indicates that households living in private rented accommodation: tend to have younger heads of household; are ethnically diverse; singles, lone parents and other multi-adult households are over-represented compared with other tenures; people in professional and higher technical occupations are over-represented compared with other tenures; are more likely to be highly mobile geographically and turnover rates are high; and, it is a tenure where international migrants are more likely to be accommodated.

14.6 The 2008 household survey identified a total of around 6,442 private rented dwellings across Tameside.

14.7 There are many factors currently driving the private rented sector. From a supply side perspective, speculator activity through buy-to-let has resulted in an increase in rented accommodation, particularly in new build apartment-type developments.

14.8 Demand for private rented accommodation is being fuelled by barriers to entry of the well- established owner occupied and social rented sectors. Owner occupation has become increasingly unaffordable to households and demand for social renting is generally high.

Private Rented Sector: Stock Information 14.9 The 2008 household survey estimated that there are around 6,442 privately renting households across Tameside, representing 6.8% of households. Of these: • 5,045 rent unfurnished; • 1,152 rent furnished; and • 245 rent tied accommodation.

14.10 Table 14 summarises a range of data relating to private rented properties. Key observations include:

• Houses account for the majority of private rented stock (69.1% overall), with flats accounting for a further 24.2%, bungalows 3.2% and other property types 3.5%. The majority of private rented property (66.7%) has either one or two bedrooms; of particular note 20.2% of all private-rented furnished properties have one bedroom. Tied accommodation tends to be larger, with 65.3% of dwellings having at least three bedrooms;

• Private rented stock tends to be proportionately older than stock overall. 25.3% of private rented properties were built pre-1919 and a further 25.7% were built between 1919 and 1944. Approximately 17% of private properties have been built since 1985. Interestingly, the household survey identified that 7.3% of private rented properties had been built since 2005. Of these, the majority were being let on an unfurnished basis (394 dwellings); and

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• Levels of dissatisfaction with property condition were particularly apparent amongst private renters, with 24.2% expressing dissatisfaction with their accommodation (as high as 34.1% for tied renters). Problems commonly reported included windows (mentioned by 48.2% of tied renters and around 32% of other renters), dampness/mould (31% of all renters), cold/heating problems (22%) and bathroom/toilet (21%).

Table 14: Summary of key data relating to private rented stock in Tameside

Property PR PR All PR PR All Type (f) (unf) Tied Stock No. Bedrooms (f) (unf) Tied Stock Detached house 2.7 4.0 35.7 10.7 One/bedsits 20.2 9.6 12.8 8.5 Semi- detached house 16.5 20.1 18.4 36.7 Two 50.0 57.9 21.9 34.1 Terraced house 31.5 49.4 12.7 32.7 Three 23.4 31.6 41.3 46.4 Bungalow 2.8 3.2 5.7 5.5 Four 6.4 0.9 12.4 9.7 Maisonette 4.9 1.6 Five or more 11.6 1.2 Flat/apartment 38.4 21.3 16.4 11.4 Caravan/Park Home 0.2 Other 3.1 2.1 11.1 1.3 Total 100 100 100 100 Total 100.0 100.0 100.0 100.0 Base 1152 5045 245 95429 Base 1152 5045 245 95429

PR PR All Satisfaction with PR PR All Property Age (f) (unf) Tied Stock property condition (f) (unf) Tied Stock Pre 1919 17.5 26.3 42.1 19.2 Very Satisfied 26.1 23.8 28.4 32.3 1919-1944 20.2 27.0 24.8 23.5 Satisfied 34.9 28.5 18.5 41.0 1945-1964 20.4 19.4 21.2 Neither satisfied nor 1965-1984 21.0 10.5 28.9 22.1 dissatisfied 20.9 22.5 18.9 14.6 1985-2004 14.5 8.9 4.1 12.2 Dissatisfied 15.9 15.3 11.5 9.7 2005 on 6.5 7.8 1.7 Very Dissatisfied 2.2 9.8 22.6 2.3 Total 100.0 100.0 100.0 100.0 Total 100.0 100.0 100.0 100.0 Base 1152 5045 245 95429 Base 1152 5045 245 95429

Source: 2008 household survey

Private Rented Sector: Characteristics of Tenants 14.11 The characteristics of private renting households vary to some extent between the three renting types:

• Private renters are particularly mobile. 50.7% of private rented (furnished) and 47.7% of private (unfurnished) renters had lived in their accommodation for less than two years. In contrast, 27.2% of tied renters had lived in their accommodation for at least 10 years; • There is a diversity of household types living in private rented accommodation. Singles under 60 account for 27.9% of furnished renters and lone parents 20.3%.

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There are a broader range of households renting unfurnished accommodation including couples with children (14.9%) and couples (no children) (21.4%); • 9.1% of all 16-39 year olds in the District rent privately; • 63.9% of private renters (furnished) and 56.3% (unfurnished) are in employment, which increases to 82.6% of tied renters. Around 8.5% of all private renters are unemployed, 9% are permanently sick/disabled and 9% are in full-time education; • 48.5% of private (furnished) and 49.1% of unfurnished renters have an income of less than £250 per week and this high number of private renters under 35 on low income or benefit will be affected by the changes to Local Housing Allowance on the back of Welfare Reform. In contrast, 15.2% of furnished renters and 10% of unfurnished renters receive at least £500 per week, suggesting that a ‘higher-end’ executive renting market exists in Tameside.

The Future of the Private Rented Sector 14.12 In the recently published Housing Strategy11 the Government confirms that it wishes to support the private rented sector to grow, to meet continuing demand for rented homes. The private rented sector is becoming a sector of choice for many who choose not to access homeownership and of necessity for those unable to access homeownership. Regardless, the sector is planning for growth. A strong private rented sector supports economic growth and access to jobs, by enabling mobility and choice. People see the flexibility to move home as the key advantage of renting rather than owning a home and the Government are supporting this by: • Supporting investment in homes to rent by introducing changes to Stamp Duty Land Tax and legislating on changes to Real Estate Investment Trusts in the 2012 Finance Bill; • Marketing new Build to Rent pilot sites through the Homes and Communities Agency (HCA) and supporting build to let investment models particularly focusing on institutional investment; • Putting in place an independent review of barriers to investment in private homes for rent12; and • Working with industry to drive up standards and improve consumer awareness • Encouraging local authorities to make full use of the robust powers they already have to tackle dangerous and poorly maintained homes. 14.13 Private tenants will be affected by the restrictions on rents that can be paid by the Housing Benefit system as from April 2011. In parts of Tameside worst affected the maximum rent that can be paid by Housing Benefit will fall from £126.92 to £114.23 (2 bedroom property) a week? If landlords don’t reduce their rents, then tenants will have to make up the shortfall.

14.14 January 2012 will see further restrictions applied to the level of Housing Benefit payable to single people aged between 25years to 35years who are private tenants. They will only be paid the “shared room rate” unless they have a severe disability. In Tameside this could mean a reduction from £94.62 to £60.00 a week.

14.15 The extension of the Shared Accommodation Rate to 35 years will provide the biggest issue for advice services as it will restrict housing options for single people with no priority

11 Department for Communities and Local Government, Laying the Foundations, A Housing Strategy for England 2011, November 2011 12 Department for Communities and Local Government, Review of the Barriers to Institutional Investment in Private Sector Homes, August 2012

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for social housing. This proposal does raise concerns about the potential growth in Houses in Multiple Occupation and the poor standards which often exist within them.

14.16 A fixed deduction can also be made from a claimant’s entitlement to Housing Benefit for non-dependants. A non-dependant can be described as someone who normally lives with the Housing Benefit claimant such as an adult child, relative or friend. This money is not treated as the claimant’s income, but is instead a fixed deduction from the claimant’s entitlement to Housing Benefit. These deductions are fixed sums dependent on the non- dependants gross weekly income In June 2010 Budget, it was announced that the rate of non-dependant deductions would increase over the next three years to match the level that they would have been had they not been frozen fince April 200113.

14.17 Tameside Council has played a key role in securing £500,000 from the CLG/DWP Transition Fund to establish an AGMA wide team linking Benefit Service and Homelessness teams to prevent homelessness as a result of changes to LHA by working with tenants and landlords to negotiate reduced rents to enable people to stay in their homes, but where necessary to give advice and support to enable a successful move to a more affordable area. The changes to LHA linked with local Council Tax Benefit reform could result in some areas being a more attractive destination than others resulting in migration of vulnerable people to Authorities which offer a better “package” and level of service. This clearly would have an impact on demand for other services offered to vulnerable clients.

13 Department of Work and Pensions, Housing Benefit and Council Tax Benefit Circular: HB/CTB A1/2012

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Open Market Demand and Facilitating Economic Growth 14.18 This section is a review of open market demand and supply and in particular:

• Considers housing aspirations and gaps in provision; • Considers how housing can support the economic growth aspirations of Tameside and how this links to the wider aspirations of the Manchester City-Region; • Focuses particularly on the excluded middle market of first time buyers who can afford homeownership but are unable to access it within the current economic climate as the barriers to access have increased; and • Considers the demand and potential role of executive housing in Tameside (work will include defining the product, its role and the role of design in providing products the market aspires towards).

Dwelling Type and Mix 14.19 The 2008 SHMA reviewed the demand for market housing. In order to review open market demand and supply, information is required on household aspirations and also the extent to which properties are likely to become available. It is possible to review the extent to which open market demand and supply is balanced by ascertaining the preferences of existing households, newly-forming households and in-migrant households. This can then be reconciled with the likely supply based on turnover rates in the preceding five years (to March 2008). This analysis helps to identify areas where there are imbalances in the provision of general market accommodation and is illustrated in Figure 4.

14.20 In summary, analysis of general market supply and demand suggests that: • Across Tameside, demand generally exceeds supply and there are a series of market pressures which vary by locality, property type and tenure. • Overall, there is pressure on all types of housing, with the exception of terraced houses. Across the district, there are general shortfalls of detached houses, bungalows and flats/apartments; properties of all bedroom sizes, in particular properties with one and four or more bedrooms. • The imbalance between supply and demand for open market accommodation is most pronounced in Longdendale, where there are pressures for all property types, sizes and tenures. • Overall, this analysis points to a need for Tameside to continue to provide a range of open market provision to reflect considerable imbalances between existing supply and household aspirations.

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Figure 4: Review of General Market Supply and Demand Township Ashton Audenshaw Denton Droylsden Dukinfield Total 0.64 0.75 0.55 0.67 0.72 Owner Occupied 0.62 0.77 0.63 0.63 0.84

Tenure Private Rented 0.69 0.72 0.31 0.77 0.42 One 0.36 1.80 0.46 0.18 0.29 Two 0.83 0.46 0.59 0.48 0.72 Three 0.58 1.00 0.61 1.06 0.92

Property size Four or more 0.43 0.39 0.34 0.41 0.46 Detached Hse 0.38 0.65 0.34 0.35 0.32 Semi Det Hse 0.62 0.95 0.66 1.18 0.80 Terraced Hse 1.23 0.91 0.74 0.79 1.37 Flat (inc bedsits) 0.50 0.91 0.59 0.41 0.57

Property type Bungalow 0.18 0.00 0.29 0.00 0.13

Township Hyde Longdendale Mossley Stalybridge Tameside Total 0.55 0.31 0.66 0.66 0.61 Owner Occupied 0.61 0.36 0.73 0.73 0.65

Tenure Private Rented 0.35 0.17 0.42 0.49 0.49 One 0.52 0.00 0.15 0.32 0.40 Two 0.60 0.28 0.85 0.61 0.64 Three 0.56 0.35 0.59 0.66 0.67

Property size Four or more 0.42 0.43 0.40 0.97 0.47 Detached Hse 0.39 0.38 0.29 0.75 0.42 Semi Det Hse 0.56 0.22 0.45 0.52 0.66 Terraced Hse 0.95 0.61 1.22 1.12 1.01 Flat (inc bedsits) 0.33 0.14 0.53 0.49 0.48

Property type Bungalow 0.25 0.03 0.16 0.10 0.17

Demand exceeds supply and particular pressure on stock Demand exceeds supply and some pressure on stock Demand equals supply; demand likely to be satisfied Source: 2008 household survey

Mix of Market Housing to be Delivered 14.21 A range of material has been assembled which provides an overview of household aspirations and the extent to which there are general market supply and demand imbalances across Tameside. This will assist the Council in determining appropriate dwelling mix on sites and inform the preparation of the Local Plan.

14.22 Whereas assessing affordable requirements is relatively straightforward, there is a danger of being too prescriptive in determining market mix. There are a number of factors which need to be taken into account in Local Plan policies regarding type and mix which are discussed further: • Current market supply and demand imbalances; • Future household aspirations;

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• Future opportunities to diversify stock with specific reference to linkages with the economic growth agenda and the wider Manchester city-region.

Current Market Supply and Demand Imbalances 14.23 Figure 4 highlights a degree of imbalance between what households aspire to and current supply, although it is not possible to quantify the precise nature of the imbalance (i.e. 300 two bed properties). Although this analysis does help to determine the relative priorities which could be given to particular types of dwelling, it will help Development Management officers consider the extent to which potential development will reflect underlying market imbalances.

14.24 It should be noted that this analysis does not factor in outstanding planning permissions. Of most significance would be outstanding permissions for flats/apartments.

Future Household Aspirations 14.25 A key underlying message from a review of household aspirations is the need to provide a range of dwellings, in particular detached and semi-detached houses; flats/apartments and bungalows; and a mix of dwelling sizes in particular small one bedroom and larger four+ bedroom properties across the District.

Affordability of Housing for First Time Buyers

14.26 Table 15 provides the results of a review of data collected in 2008 to look at the percentage of first time buyers that could afford to buy or part buy a property. 59.4% could afford £100- 125k; and 44.4% could afford £125-150k. Whilst the barriers to purchase have become more complicated overall affordability remains strong and suggests that introducing homeownership access products including support with deposits, local authority mortgage or Home Buy schemes would be beneficial.

Table 15: Percentage of first time buyers that can afford £X

Amount afforded Percentage of first time buyers that could afford <£50k £50k to <£75k 93.9 £75k to <£100k 75.2 £100k to 59.4 <£125k £125k to 44.4 <£150k £150k to 21.3 <£175k £175k or more 8.7

Future Opportunities to Diversify Stock and Underpin Economic Growth

14.27 The housing market and socio-economic mix of communities in Tameside would be greatly strengthened if they could be “rebalanced” through attracting higher-earning economically-

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active households. Economic growth will require accommodation to satisfy the housing aspirations of higher-paid professional and managerial workers. The presence of higher earners also contributes significantly to the local economy through their spending power and can contribute to an increase in the reputation of the locality. This approach requires considerable planning, including an appropriately-focussed marketing strategy. It must also offer a range of homes, which both integrate with the local community and are attractive to these types of professionals. Although a priority is to increase access to homeownership, the role of the rented sector is also critical in providing choice and quality.

14.28 Tameside forms part of Greater Manchester sub region and growth in population and households is at the forefront of the agenda with relatively optimistic forecasts about the economy although these are very much geographically influenced with some areas having much lower prospects than others.

14.29 The growth forecasts are underpinned by significant plans for new homes. The planned distribution of new housing is not evenly spread and reflects the policy priority to repopulate the core of the conurbation and reconnect these neighbourhoods to the economic opportunities nearby. Manchester and Salford currently account for over half of the conurbation’s proposed housing supply.

14.30 The sub region recognise that the drive for new housing is likely to be from the private rented sector and it is likely that the demand for social rented housing will remain high and a priority will be around increasing the choice of new homes in terms of the type of property, at the right price, right tenure and in the right location. Affordability remains a significant issue. The shortage of mortgage finance has meant that falling prices have had a limited effect on affordability; the multiples of income available to borrowers have been reduced and larger deposits are still required.

14.31 Achieving growth remains difficult not only as mortgage lending tightens but development finance is also more difficult to access and the traditional models for development are at best ‘fragile’ and at worst ‘broken’.

14.32 The solution for Tameside will require imaginative solutions that support first time buyers to buy using financial products such as the Tameside Local Authority Mortgage Scheme, different models for development and the development of a good quality alternative private rented market.

High Value Housing 14.33 The interdependence of the economic and housing strategies is critical. A key outcome of both strategies must be to raise the average income level of residents to afford better homes and services. Achieving this involves assisting existing residents in accessing better paid employment opportunities, encouraging upwardly mobile young professionals/managers and families to remain in the area and attracting more residents to move into the area – particularly higher paid professional and managerial workers. Underpinning this is the residential offer. If the majority of higher paid workers still continue to choose to live outside the conurbation then it will be very difficult to secure their spending power within the borough.

14.34 Each residential dwelling in Tameside is allocated to one of eight Council Tax Bands. Of these 408 (0.4% of all dwellings across the borough) are allocated within Band G/H and represent the highest open market capital value.

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14.35 ‘Executive’ housing, is a vague market product, and has been illustrated in a number of housing market classifications. Two distinctive features are common throughout the various descriptions of executive housing:

• High property values • High incomes required to support purchase • High values are linked to desirable locations • High quality construction • Exterior and interior fittings.

14.36 A High Value Housing Market is dependent on the components of supply and demand. A housing supply profile is based on property prices, property sizes, dwelling types, interior specifications, outside space, and location. The housing demand profile is based on household income, equity and savings, household type, household size, household needs, length of occupancy, access to occupancy, and business ownership.

14.37 One further dimension to the assessment of a high value housing market is the distinction between a market where properties are purchased by owner occupiers and a market where properties are purchased by investors and let under private rented tenancies. For the purposes of this discussion, it is assumed that it is the owner occupation market that is most relevant to Tameside.

15.0 Summary 15.1 The housing requirement in Tameside will have positive and negative implications for the Borough. The delivery of additional housing will help to provide sufficient new homes for a growing population and in addition will help to address issues of affordability through the delivery of both market and affordable housing. In addition, the replacement or reuse of historic building stock will help to reduce the number of properties which are in poor condition, under used and inefficient. However, the increase in housing is likely to place further pressure on the development of greenfield sites, existing infrastructure and facilities unless adequate mitigation measures are secured.

15.2 It is therefore important that careful consideration is taken to ensure that the housing target strikes the right balance between providing the volume, choice and mix to meet the identified needs and demand, but at the same time avoid undue environmental damage with increased urban sprawl and the loss of attractive green spaces as well as valuable employment land resources.

16.0 Key Issues 16.1 Based on the evidence the key issues have been categorised under the following headings:

Housing Choice / Offer • Demand exceeds supply for all property types in the Borough except terraced stock. • A good mix of dwelling sizes is required including in particular small one bedroom and larger four or more bedroom properties. There is also an identified requirement to meet the varied accommodation needs of single people, couples and families. • Access to home ownership products is an increasing issue due to a lack of suitable finance and mortgage opportunities. • There is an increasing need to address the requirements of an ageing population.

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• Delivering lifetime homes that are accessible to all and adaptable in order to serve everyone through their life. • Overall there should be a desire to create balanced communities forged in the local character rather than bland monotonous estates with no sense of place or individual identity. • There is an identified requirement to provide additional sites and pitches for gypsy and traveller and show people communities.

Location • It is crucial to ensure that new residential development is in accessible locations and provides suitable housing to meet their needs and aspirations of households within the borough. • Should housing growth be focused in the urban areas and brownfield regeneration sites? These sites often suffer from contamination issues or other constraints affecting viability and making them difficult to market and costly to develop. Would a more dispersed pattern of development be more suitable with a greater emphasis on greenfield locations and urban expansion? • The SHLAA indicates that the majority of potential housing sites are located within the urban area or on the urban fringe. Crucially however the study indicates that there will be an increasing need to look to greenfield land and even strategic Green Belt release in the long term in order to meet the challenging housing targets. • The Growth Review presents Tameside with the opportunity to set its own previously developed land target (otherwise known as brownfield land). This target presently stands at 80%. Should this target be retained to focus development in the urban and regeneration areas or lowered to allow a more flexible and varied supply of housing land with greater potential for development on greenfield land?

Land Availability • Tameside currently has a 5 year supply of deliverable housing land. • Based on the current housing targets the SHLAA identifies that there could be a potential shortage of housing land in the medium to long term (6 to 15 years), with increasing pressure on greenfield land. • If the current housing delivery strategy continues potential strategic Green Belt releases may be required in the long term to accommodate housing requirements. This position is likely to be compounded by the current weakness in the housing market and low levels of dwelling completions in recent years adding to the accumulated shortfall of Tameside's housing delivery. • Preferred brownfield regeneration sites can be difficult to market and costly to develop making them less attractive to prospective developers.

Affordability • There is an identified need for additional affordable housing. • Increases in house prices during the first half of the decade coupled with lower than inflationary salary increases means the gap between household incomes and the price of housing has widened further. The SHMA recommends that it is therefore appropriate to now consider an affordable housing policy that will sit within the forthcoming Interim Housing Position Statement forming a key element of the Core Strategy. • Any affordable housing policy requirements would need to be tested for economic viability.

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Design • New homes must represent high quality sustainable design - form (visual appearance) and function (fit for purpose / usability) and an understanding of local character and identity. • Layouts must apply acknowledged urban design principles and incorporate high quality public realm. • New dwellings should achieve a (to be agreed) minimum 'Building for Life' standard. • Dwellings must comply with the Part L / Code for Sustainable Homes - reduce carbon emissions and achieve zero carbon new homes from 2016. • Allied with Code for Sustainable Homes and Part L, developers must consider the installation and siting of decentralised energy systems. • Secure by design and natural surveillance principles should be adopted in residential development schemes in order to reduce crime and anti-social behaviour and create safer environments and communities. • There is an increasing requirement for sustainable urban drainage systems (SUDS) which incorporate effective water management in development schemes. This can diminish the risk of flash flooding and reduce the pressure from accumulative development on the existing drainage networks.

Cross Cutting Themes The key housing issues have primary linkages to the other topic areas including:

• The Economy and Employment - providing the housing choice to support a growing economy and to accommodate a varied employment base. • Health and Inequalities - tackling health issues and social inequalities through an improved housing offer responsive to the varied needs of a diverse population. • Climate Change and Decentralised Energy - addressing carbon reduction through improved design and incorporating energy efficiency technologies. • Transport and Infrastructure - building new housing in the right places, with good connectivity to job opportunities, schools, and hospitals. • Green Infrastructure, Open Space, Biodiversity - recognising the importance to link new development with opportunities for sport and recreation and the social and health benefits this will bring.

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Policy Context Documents • National Planning Policy Framework (NPPF), 2012 • Laying the Foundations: A Housing Strategy for England, 2011 • Planning for Growth, March 2011 • Regional Spatial Strategy North West (RSS), 2008 • Greater Manchester Strategy (GMS), 2009 • Greater Manchester Housing Strategy, 2012 • Manchester Independent Economic Review (MIER), 2009 • Tameside Strategic Housing Land Availability Assessment (SHLAA), 2011 • Tameside Strategic Housing Market Assessment (SHMA), 2008 • Tameside Unitary Development Plan, 2004 • Tameside Housing Strategy 2010-2016 • Tameside Community Strategy 2012-2022 • Enterprising Tameside Economic Strategy, 2012 • Gypsy and Traveller Accommodation Assessment • Tameside Residential Design Supplementary Planning Document (SPD), 2010 • Tameside Empty Property Strategy (Draft) 2012-2015

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Appendix 1 The Wider Government agenda It is also helpful to understand the Government’s overall ambitions, as it is within this context that both national and local housing priorities need to be viewed. The following summary14 outlines the Government’s key overall themes and provides a helpful guide to inform thinking and debate about how to respond to priorities locally, within this wider context: • Economic growth; • Health and wellbeing; • Carbon reduction and tackling climate change; • Empowering people and communities; and • Deficit reduction. Each of these themes is now taken in turn.

Economic growth The Government seeks to deliver a nationally sustainable and resilient economy that is rebalanced across regions and sectors (public, private, voluntary and community). Housing’s contribution to the economy is generally considered in terms of supply: • The provision of new homes in an area to accommodate new workers, and so bring new inward investment; and • The creation of employment opportunities through the construction industry. However, the relationship is more complex with the contribution of housing being far greater. To encourage economic growth the Government has put in place a new framework to create ‘the right conditions for a private sector led recovery.’ This includes measures to rebalance the economy using: • Business-led Local Enterprise Partnerships - LEPs have been established across the country, focussing on specific localities and replaced Regional Development Agencies; and • The Regional Growth Fund – the RGF has been set up to support areas heavily dependent upon the public sector to enable them to make the transition to private sector led growth. The RGF has been heavily oversubscribed. The Government outlined its initial housing investment plans for the period April 2011 to March 2015 in the Comprehensive Spending Review of 20th October 2010. This delivered: • A total investment in new affordable housing of £4.5billion to deliver 150,000 new affordable homes; • £100million to bring empty homes back to use; • £200million for mortgage rescue to protect vulnerable homeowners;

14 Chartered Institute of Housing Practice on line Strategic Housing support

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• £900million for the New Homes Bonus to encourage communities to accept new housing; • £1.4billion capital funding (RGF) to support economic growth especially where areas are currently dependent on the public sector; • £2billion to halve the backlog of non-decent council housing; • £400million Homelessness Grant to support homelessness prevention initiatives and reduce homelessness presentations; • £6.5 billion Supporting People funding to help vulnerable people live independently; and • £725million Disabled Facilities Grant funding to help towards the cost of adapting homes to enable residents to continue to live there. 15 Within this context it is of critical importance for local authorities to be clear about how housing and the economy relate within their area, to take a strategic view and to communicate this with partners.

Health and wellbeing The Government is aiming to improve health outcomes whilst reducing health inequalities. It wants to enable greater independence, choice and control for people, and radical reforms to healthcare are being implemented. In terms of housing’s contribution to health and wellbeing, this is generally considered in the context of access to healthy, safe, secure and suitable homes. Housing is a wider determinant of health and an inability to access healthy, safe, secure and suitable accommodation has an adverse impact on health. However, housing has a role in improving health beyond provision of decent homes, the Chartered Institute of Housing identifies the following local authority enabling activities: • Spatial planning for housing; • Environmental health action to ensure homes are healthy and free from hazards; • Investment in new homes, and improvements and adaptations to existing homes; • Housing and neighbourhood management services to people renting affordable homes; • Housing services that enable people to access a homes when their needs change; and • Housing services that enable people to live independently and help prevent crises e.g. housing support and adaptations. The Department of Health White Paper ‘Caring for our future: reforming care and support’ positions housing and support as key preventative services that can help reduce health costs. A local authority’s strategic housing role is central to developing a greater understanding of housing’s requisite role in health and wellbeing at a local level. Potential changes brought about by housing and welfare reform could impact negatively unless this is managed strategically by the local authority with its partners; this is a key role of the Housing Strategy.

15 Source: Chartered Institute of Housing Briefing Paper on Comprehensive Spending Review

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Carbon reduction and tackling climate change Targets set by the previous Government in the 2008 Climate Change Act remain (to reduce greenhouse gas emissions by 34% by 2020 and by 80% by 2050). Housing has a strong role to play in helping meet these targets, not least in terms of improving the energy efficiency of existing housing stock. To this end participation in the Green Deal is key (see below).

Empowering people and communities Since its inception the Government has stressed its commitment to decentralisation, localism and the ‘Big Society’, and its ‘Programme for Government’ set the scene for a radical devolution of power to local authorities and community groups; critical to this has been the Localism Act. The Act included measures to reform: • The planning system; • Social housing; and • The council house finance system. The Act provided: • New freedoms and flexibilities for local government; • New rights for individuals; • Reform to make the planning system more democratic and effective; and • Reform to ensure that decisions about housing are taken locally. The Act introduced most elements of the Government’s housing reform programme, including changes to homelessness, social housing tenancies (introduction of five year minimum tenancy), mobility, regulation, and access to the Ombudsman. The Act also reformed council housing finance. In keeping with the Government’s localism ethos, much of the legislation within the Act is permissive, meaning that it is open to interpretation locally in terms of how members, professionals and communities decide to use its powers. Much of the Act came into effect in April 2012.

Deficit reduction The Government’s main priority is to reduce the national budget deficit. This prime objective is influencing the way in which all other priorities are tackled. Deficit reduction is central to the expectation that the private sector and local communities will deliver in place of the public sector. For example, the introduction of the new affordable rent model is fundamentally about securing more affordable housing for less public subsidy. The Green Deal is another example of a publicly funded scheme (Warm Front) being replaced by private investment arrangements, whereby energy companies and individuals pay for energy efficiency improvements themselves. In summary, housing is seen by Government as key to creating and sustaining local communities. It is seen as contributing to the economy and supporting economic growth and employment, both directly and indirectly, which is why housing issues need to be addressed at a local level but in a planned and strategic way. The primary role therefore for local authorities is understanding and addressing the needs and aspirations of their communities.

National strategic policy context The Department for Communities and Local Government has outlined what the Government wants to achieve in terms of housing as:

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• Increase the number of houses available to buy and rent, including affordable housing; • Improve the flexibility of social housing (increasing mobility and choice) and promote homeownership; • Protect the vulnerable and disadvantaged by tackling homelessness and support people to stay in their homes; and • Make sure that homes are of high quality and sustainable. Last year (2011) the Government published its Housing Strategy for England, Laying the Foundations: A Housing Strategy for England, which set out its ‘intended direction of travel for housing, its role in the wider economy and its contribution to social mobility’. It sets out ideas on the shape of housing provision that the Government wants to see, which involve the primacy of home ownership; social housing as welfare; and an increasing role for the private rented sector.’16 The Strategy presented both existing initiatives and policies and introduced a series of new interventions and approaches, along the following themes: • Increasing supply, more homes, stable growth including a newbuild indemnity scheme led by the Home Builders Federation and Council for Mortgage Lenders to provide up to 95% loan to value mortgages for newbuild properties in England, backed by a housebuilder indemnity fund; and a £400m ‘Get Britain Building investment fund; • Social and affordable housing reform which includes implementing a radical programme of reform to make better use of social housing to support those who need it most; and re-invigorating Right to Buy by introducing new higher levels of discount, and the proposed one for one replacement of homes sold; • A thriving private rented sector, through supporting investment in homes to rent, marketing new Built to Rent pilot sites and encouraging local authorities to make full use of powers to tackle dangerous and poorly-maintained homes; • A strategy for empty homes, with a commitment to bring empty homes back into use through awarding the New Homes Bonus to empty properties brought back into use, providing information and practical advice to local authorities and communities and proposing changes to Empty Dwelling Management Orders to tackle the worst long- term empty homes; • Quality of housing experience and support, through supporting the most vulnerable households to prevent and tackle homelessness and providing a better deal for older people, with greater choice and support to live independently; and • Quality, sustainability and design, by encouraging the promotion of imaginative, innovative, locally distinctive, well designed new homes and neighbourhoods; a commitment to Zero Carbon homes by 2016; reviewing building regulations to further improve energy efficiency and carbon emission standards of new buildings. These themes provide a useful framework for reviewing the current national policy position.

Increasing supply, more homes and stable growth There have been a number of measures introduced aimed at delivering housing growth, these are briefly summarised here. To encourage housing growth specifically the Local Growth White Paper introduced the New Homes Bonus, to incentivise housing growth and increase supply. The scheme commenced in

16 CIH Summary Laying the Foundations: A Housing Strategy for England November 2011

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April 2011 and is now a permanent feature of the local government finance system. However, from 2013 any allocated new homes bonus is deducted from a local authority’s general support grant from Government, so, in effect, this ceases to be an additional resource available to local authorities; it should also be noted that the new homes bonus is not ring-fenced for housing provision. The Affordable Rent Model was introduced to utilise £2.5billion of capital investment alongside resources raised through tenancies offered to new social rented tenants at 80% of market rents. Where this combination of higher rent and lower grant is insufficient to make new schemes viable, existing social rent tenancies are converted to affordable rent (or intermediate tenure for sale) when properties are vacated, to cross-subsidise new provision. Despite this investment, levels of housing supply have continued to struggle, with development levels reaching all-time lows. Confirming the role of housing growth in the economic recovery, the Government has subsequently introduced a series of measures aimed at increasing housing supply, these include: • Planning reform and the National Planning Policy Framework; • The Community Right to Build; • Get Britain Building; and • Additional housing growth measures (the September Growth Package).

Planning Reform and the National Planning Policy Framework The Government perceives planning as acting as a brake on the delivery of new housing supply. To this end a fundamental review of planning policy has been undertaken culminating in the introduction of the National Planning Policy Framework. In addition to this, other planning related measures have been announced aimed at facilitating housing development on stalled sites in the short term, these are summarised below under additional housing growth measure. The National Planning Policy Framework was published on 27th March 2012 and came into effect on the same day, revoking Planning Policy Statement 3 Housing, which had previously formed the basis for housing planning policy. As part of its commitment to economic growth, localism and decentralisation, the Government has used the Framework to streamline all existing national policy documents into one short Policy Framework. The Framework stresses the need for councils to work with communities and businesses to seek opportunities for sustainable growth to rebuild the economy; helping to deliver the homes, jobs, and infrastructure needed for a growing population whilst protecting the environment. A presumption in favour of sustainable development means that proposals should be approved promptly unless they compromise the twelve sustainable development principles set out in the Framework. The Framework identifies three dimensions to sustainable development: economic, social and environmental. These three dimensions (or roles) are seen as mutually dependent. The Framework must be taken into account in the preparation of local and neighbourhood plans, and it is a material consideration in decision making. New definitions of affordable housing were also included in the Framework covering social rented housing, affordable rented housing and intermediate housing.

Community Right to Build Aimed at enabling local people to bring forward small scale, site specific, community led development, the Community Right to Build was introduced through the 2011 Localism Act’s

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neighbourhood planning provisions; they became law on 6th April 2012. Under the Right communities are to determine the type of development that they wish to see, including the property type and tenure of any housing.

Get Britain Building In November 2011, as part of its National Housing Strategy Laying the Foundations, the Government announced the launch of the Get Britain Building fund. The initial round has been subsequently followed with a second round of funding in June 2012. With an overall programme of £570million, the Fund aims to deliver up to 2,000 new homes. As a recoverable investment, the programme is intended to address difficulties in accessing development finance faced by smaller developers.

Housing Growth Package In September 2012 the Prime Minister also announced an additional series of planning and housing measures aimed at facilitating housing growth, these include: • Enabling developers to renegotiate Section 106 agreements: legislation is planned for early in 2013, which will allow any developer of a site deemed unviable due to affordable housing planning obligations to appeal with immediate effect. The Planning Inspectorate will then review the application to determine the number of affordable homes that need to be removed to reach viability. The original Section 106 agreement will then be suspended for a three year period. On agreements made prior to April 2010 the Government is already consulting on legislation to allow developers to renegotiate affordable housing planning obligations for a temporary period17. • The introduction of an Infrastructure (Financial Assistance) Bill to guarantee £40 billion for major infrastructure projects and £10billion for new homes – the aim being to deliver more homes for the same cost using cheaper borrowing; • Additional £300million capital funding for affordable housing, drawn from under- spending across other departments. This money is to be used to deliver up to 15,000 new affordable homes and bring 5,000 empty homes back into use; • Accelerating the release of public sector land, this will be done by strengthening the role of the Homes and Communities Agency outside London through a targeted programme of land transfers from other Government departments and agencies. The Government also plans to prepare land for market, and develop a single ‘shop window’ for all surplus public sector land; • Investing £200million in private rented housing to deliver 5,000 homes through provision of loans or equity to provide project finance. This is in direct response to the Montague Review recommendations (see below), including establishing a Task Force to bring together developers, institutional investors and management bodies; • Supporting an additional 16,500 first time buyers by extending the FirstBuy scheme using an additional £280million to be matched by house builders up until March 2014; • Supporting purchase of new homes by working with the House Builders Federation and lenders to increase the number of both developers and lenders taking part in the NewBuy scheme;

17 This consultation closed on 8th October 2012

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• Accelerating the planning process for development by legislating to allow the Planning Inspectorate to determine planning applications where a local authority has a poor track record in respect of the speed or quality of its planning decisions; and • Temporary relaxation of planning controls to increase existing permitted development rights for extensions to homes and businesses in non-protected areas for a three year period.

Social and affordable housing reform Access to housing has been a key focus of the Government’s social housing reform agenda. The Government initially set out its key objectives for social housing reform, and its proposals to achieve them, in a consultation paper ‘Local Decisions: a fairer future for social housing’. The five key objectives of social housing reform being: • Localism, fairness and focusing social housing on those most in need in a way that enables them to use it as a springboard to opportunity; • That social housing is flexible and available to more people and to those that genuinely need it; • To make the best use of the four million social rented homes; • To increase the freedoms available to all social landlords to determine the type of tenancy they grant to new tenants; and • To protect the rights of existing tenants. Proposals to achieve these objectives included: • The introduction of a new, more flexible, local authority affordable rent tenancy with a minimum fixed term of five years (this will be in addition to secure and introductory tenancies); • Investment of £100million to bring empty properties into use as affordable housing; • Reforming the social housing allocations system by giving local authorities the powers to manage their housing waiting lists; • Introduction of a nationwide social home swap programme for social tenants; • Enabling local authorities to fully discharge a homelessness duty to secure accommodation by arranging an offer of suitable accommodation in the private rented sector without requiring the applicant’s agreement; • Introducing reforms to tackle overcrowding; and • Replacing the Housing Revenue Account subsidy system with transparent self- financing arrangements. Where appropriate, reforms were enacted in the 2011 Localism Act and generally came into effect in April 2012. Alongside social housing reform sits the reform to the welfare system, which, with its changes to benefit, eligibility and entitlement, will impact significantly on housing supply and demand. The Welfare Reform Act received Royal Assent on 8th March 2012; it introduces Universal Credit as well as changes to housing benefit and other welfare benefits. The Act also introduces a new ‘personal independence payment’ to replace the existing disability living allowance. In addition, the Act gives the Government powers to implement housing benefit reforms outlined in the June 2010 Budget and the October 2010 Comprehensive Spending Review, these include:

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• Introducing a size criteria to the calculation of housing benefit for social sector tenants; • Up-rating future Local Housing Allowance rates in line with Consumer Price Index rather than actual rents (from April 2013); and • Introducing household benefit caps of £500 per week for couples and £350 per week for single claimants. Changes already introduced to housing benefit following the June 2010 Budget include: • Capping the maximum Local Housing Allowance payable for each property size and applying a four-bed limit. This mainly affects households living in London (from April 2011); • Calculating Local Housing Allowance rates using the 30th percentile of market rents rather than the 50th percentile (from October 2011); • Limiting housing benefit for working age tenants so that it only covers the size of property they are judged to need – the ‘bedroom tax’ (from April 2013); • Increasing deductions for non-dependents (no longer frozen at £7.40 per week for non- earners and linked to prices since April 2011); • Time limiting full housing benefit and Local Housing Allowance payable to people on Job Seekers’ Allowance so that after 12 months housing benefit is reduced by 10% (from April 2013); • Increasing discretionary housing payments (from October 2010); and • Resourcing an additional bedroom for carers (from April 2011). Additionally the age at which the single room rate is applied increased from 25 to 35 from January 2012. This increased the age that single people can qualify for housing benefit for a self-contained property.

A thriving private rented sector The Government sees the provision of a healthy, robust private rented sector as essential to meeting housing need and demand. It’s approach to ensuring a thriving private rented sector is twofold, focusing on: • Maintaining standards: local authorities should ensure that standards are maintained across the sector, using their powers to address fitness and disrepair issues; and • Increasing supply by supporting investment in new private rented provision. To this end the Montague Review was commissioned.

The Montague Review of the barriers to institutional investment in private rented homes The Government sees the private rented sector as playing a vital role in meeting housing needs and supporting economic growth. Rapid growth in the sector over recent years has seen a significant number of people making long term family homes in the sector. To help grow capacity in this sector the Government commissioned Sir Adrian Montague to ‘Review the barriers to institutional investment in private rented homes’ (2012). The Review made a number of recommendations aimed at attracting large-scale institutional investors into the sector to develop ‘build to let’ homes. The recommendations include: • Local authorities using flexibilities within the planning system to plan for and enable the development of private rented homes where there is an identified need;

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• The Government releasing public sector land to facilitate delivery of private rented housing developments; • Developing a body of good practice and facilitating the swift development of demonstration projects, there is therefore a need for the Government to provide targeted incentives to stimulate the development of new business models; • The Government establishing a dedicated Task Force to act as an enabler; and • Developing a ‘new sense of identity’ for the build to let product, with the Housing Task Force working with other industry bodies to develop voluntary standards to be adopted across the build to let sector. The Government has responded to these recommendations from the review in the September Growth Package (see above).

A strategy for empty homes The Government’s initial £100million 2010 Comprehensive Spending Review commitment to bring empty homes back into use, together with entitlement to new homes bonus, firmly established work on empty properties as a priority for local authorities – there being a need for local empty homes strategies to be developed and supported. Resources to further aid empty homes work were announced as part of the September Growth Package (see above).

Quality of housing experience and support The Government has prioritised the provision of housing and support to help older, vulnerable or disadvantaged people: ‘Many older, vulnerable or disadvantaged people experience crises that affect their health and wellbeing. They need housing support to help them lead full and active lives. A home should help people be independent and give them the security to be active members of their communities.’18 The means through which assistance is available are: • Disabled Facilities Grant allocations; and • Supporting People. The draft Care and Support Bill follows the Law Commission’s review of care legislation, which concluded that current legislation is too complex. Together with the White Paper ‘Caring for our future: reforming care and support’, the Bill addresses this issue and attempts to simplify it. The Bill aims to: • Modernise law around people’s needs, promoting the wellbeing of the individual; • Clarify people’s entitlements, so they know what help they can receive and where to go to get it, enabling them to make plans for their futures; • Support the needs of local communities through access to information and advice, promoting prevention and reducing dependency; • Simplify the system and give more flexibility to innovate and achieve better results; and • Consolidate existing legislation with a single statute, supported by new regulations and a single bank of good practice. 19

18 www.communities.gov.uk/housing/olderpeople/ 19 Chartered Institute of Housing member briefing and request for feedback September 2012 Shaping Housing and Community Agendas

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In terms of safeguarding vulnerable adults, housing has a strong role to play alongside social services, health, the police and other agencies. The draft Care and Support Bill sets out a new safeguarding power, and places a duty on local authorities to respond to safeguarding concerns by making enquiries as necessary to decide on whether, and what, action is needed. The Bill also includes various proposals to support integrated working, including a duty of cooperation and partnership between police, health and local authorities. From the April 1st 2013 Health and Wellbeing Boards, which will include Directors of Public Health, will become statutory committees of local authorities. They will be responsible for encouraging integrated working on health and wellbeing issues, including development of Joint Health and Wellbeing Strategies, and Joint Strategic Needs Assessments.

Older people In addition to Disabled Facilities Grants and Supporting People programmes the Government flags the following work currently being undertaken to help older people live at home longer: • Research has been commissioned into Lifetime neighbourhoods; • Home Improvement Agencies are in place to help private tenants and home owners advising on potential improvements and adaptations to their home; • Handypersons schemes; • FirstStop, free and independent national information and advice service; and • The Housing Learning and Improvement Network knowledge hub. In January 2012 the Government announced a new deal for older people to help them continue living independently, this included £51million for Home Improvement Agencies to provide: • Housing advice, including help to move to more suitable accommodation if needed; • Handyperson services, including small home repairs, home safety and security adaptations; • Energy efficiency advice; and • Arranging for adaptations and home repairs.20 An additional £20million for DFGs was also announced. In September 2012 the care services minister announced an extra £100 million to fund specialist housing for older people. The fund is designed to stimulate the market in specialised housing, and the additional £100million takes the capital grant fund total to £300million, which aims to provide up to 9,000 specialist new homes for older people to move into.

Homelessness In August 2012 the Government published its Homelessness Strategy, ‘Making every contact count: A joint approach to preventing homelessness’. The Strategy focuses on prevention and aims to ‘make sure that every contact local agencies make with vulnerable people and families really counts.’21 The report identifies ten local challenges that need to be addressed by local authorities, these are:

20 www.communities.gok.uk 21 CLG Making every contact count Aug 2012 page 3

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• Adopt a corporate commitment to prevent homelessness which has buy-in across all local authority services; • Actively work in partnership with voluntary sector and other local partners to address support, education, employment and training needs; • Offer a Housing Options prevention service, including written advice to all clients; • Adopt a no second night out model or an effective local alternative; • Have housing pathways agreed, or in development, with each key partner and client group, which include appropriate accommodation and support; • Develop a suitable private rented sector offer for all client groups, including advice and support to all clients and landlords; • Actively engage in preventing mortgage repossessions including through the Mortgage Rescue Scheme; • Have a Homelessness Strategy which sets out a proactive approach to preventing homelessness and is reviewed annually so that it is responsive to emerging needs; • Not place any young person aged 16 or 17 in Bed and Breakfast accommodation; and • Not place any families in Bed and Breakfast accommodation unless in an emergency, and then for no longer than six weeks.22

Quality, sustainability and design The Government’s commitment to delivering Zero Carbon homes; along with other binding carbon reduction targets agreed by the previous Government, make energy efficiency and tackling fuel poverty key issues for housing (especially as more than a quarter of emissions are produced in homes)23. Tackling energy efficiency in existing stock remains the sector’s biggest challenge, and therefore means utilising the Green Deal is important. Introduced by the Energy Act 2011, the Green Deal intends to revolutionise the energy efficiency of properties across the county (both business and residential). Launched in October 2012, with funding available from January 2013, the financial mechanisms under the Deal eliminate the need for households to pay for energy efficiency improvements up front; instead the costs of improvements are to be covered by savings in energy bills and through a charge on household energy bills. The central rationale for the Green Deal is to reduce carbon emissions cost effectively. The Act also introduces a new Energy Company Obligation (ECO), which integrates with the Green Deal to address energy efficiency improvements in the housing sector.

22 CLG Making every contact count Aug 2012 page 4 23 Chartered Institute of Housing The green agenda update 1st May 2012

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