Patterns of Student Accommodation

Home , Chapelfields, Coventry City Council, Earlsdon, University of Warwick

Coventry City Council

Student Accommodation Study

Final Issues Report

September 2005

Entec UK Limited

Report for Coventry City Council Niall McChesney Development Policy Coventry City Council Student City Development Directorate Planning and Transportation Accommodation Civic Centre 4 Much Park Street Study Coventry CV1 2PY Final Issues Report

Main Contributors September 2005 Helena Spencer Andrew Golland Entec UK Limited Issued by

………………………………………………………… Helena Spencer

Approved by

………………………………………………………… Michael O'Connell

Entec UK Limited Gables House Kenilworth Road Leamington Spa Warwickshire CV32 6JX England Tel: +44 (0) 1926 439000 Fax: +44 (0) 1926 439010

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Contents

1. Introduction 1 1.1 Purpose of Report 1 1.2 Methodology 1 1.3 Supplementary Planning Document (SPD) 2 1.4 Higher and Further Education in Coventry 2 1.5 Key Issues 3

2. Student Numbers and Bed Spaces 5 2.1 Introduction 5 2.2 Past Trends 5 2.2.1 Student Housing: the Picture in 2001 5 2.2.2 Trends in Student Demand within the Coventry City Area 8 2.3 Current Situation 13 2.3.1 Coventry University 13 2.3.2 University of Warwick 15 2.3.3 Further Education Colleges 17 2.3.4 Walsgrave Hospital 18 2.3.5 Summary of Student Numbers and Bed Spaces 19 2.3.6 Overview of Geographical Distribution of Students in Coventry by Type of Accommodation 20 2.3.7 Existing Housing Stock 22 2.4 Planning for Student Numbers in the Future 25 2.4.1 Coventry University 25 2.4.2 University of Warwick 25 2.4.3 FE Colleges 26 2.4.4 Possible Future Student Accommodation Schemes 26 2.4.5 Summary of Future Student Numbers and Bed Spaces 27 2.4.6 What Do Students Want From Student Accommodation? 28 2.4.7 National Trends 29 2.5 Conclusions and Implications for the Local Housing Market 30 2.5.1 Current Situation and Potential Growth 30 2.5.2 Impact on the Private Rented Sector 31

3. Impacts on the Local Community 33

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3.1 Benefits to the Local Community 33 3.2 Areas of Concern 34 3.2.1 Physical Impacts and Occupancy Issues 34 3.2.2 Social and Demographic Impacts 35 3.2.3 Possible Solutions Suggested by Local Residents 36

4. National Case Studies 37 4.1 Leeds City Council 37 4.2 Nottingham City Council 38 4.3 Charnwood Borough Council 39 4.4 Birmingham City Council 40 4.4.1 Implementation 40 4.5 Key Issues 41 4.5.1 Issues of Consultation and Presentation 41 4.5.2 Issues of Implementation and Legal Issues 41

5. Options and Recommendations for Supplementary Planning Document 43 5.1 Introduction 43 5.2 Area of Student Housing Restraint (ASHORE)/Criteria Based Constraint Policy 43 5.3 Suitable Locations for New Student Accommodation 44 5.4 Detailed Criteria for New Accommodation 45 5.5 Management and Legal Issues 45 5.5.1 Housing Act 2004 45 5.5.2 Conversions and the Housing Act 46 5.5.3 ODPM Consultation Draft Code of Practice for the Management of Student Housing (April 2005) 46 5.6 Stakeholder Involvement 46 5.7 Conclusions 47

Table 2.1 Coventry University Student Numbers 13 Table 2.2 Coventry University Bed Spaces 2005/2006 14 Table 2.3 University of Warwick Student Numbers 15 Table 2.4 University of Warwick Bed Spaces (2004/2005) 16 Table 2.5 City College Student Numbers 17 Table 2.6 Summary of Student Numbers and Bed Spaces (2004/2005) 19 Table 2.7 Proportion of Students in Output Areas 24 Table 2.8 Planned/Future Student Accommodation Schemes 26 Table 2.9 Summary of Potential Future Student Numbers and Bed Spaces 27

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iii

Figure 2.1 Students by Age 6 Figure 2.2 Patterns of Student Accommodation 7 Figure 2.3 Student Housing by Tenure 8 Figure 2.4 All Students in Higher Education 9 Figure 2.5 Undergraduate and Postgraduate Numbers 10 Figure 2.6 Student Numbers in Full and Part Time Education 11 Figure 2.7 UK Based and Overseas Students 12 Figure 2.8 Growth in Student Numbers (% Change) 12 Figure 2.9 Student Accommodation in Coventry City District 21 Figure 2.10 % Students in Coventry City District Wards 21 Figure 2.11 Student Accommodation 22

Appendix A List of Interviewees/Telephone Discussions/Comments Received Appendix B Student Numbers by Census Output Area with Wards Overlaid Appendix C Maps of Coventry Output Areas with the Highest Student Concentrations

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1. Introduction

1.1 Purpose of Report The purpose of this report is to draw together the key findings of the Coventry Student Accommodation Study and to consider possible approaches to the future of student accommodation in the city. It provides the main input to what elements might best be included in preparing a draft Supplementary Planning Document. The study has been commissioned by Coventry City Council to address a number of issues relating to student accommodation in the city. It forms the basis for SPD which will assist the City Council in dealing with planning applications relating to student accommodation and for communities to have greater clarity on what to expect in relation to student accommodation. A key role of the study is to provide the Council with improved baseline information against which planning decisions on student housing schemes may be better informed. The SPD will set out planning approaches for dealing with applications for new student accommodation, although other approaches for instance relating to management issues/community initiatives will also be dealt with. However, it is important to state that this report does not define precisely the ‘need’ for student housing although we have made best efforts to gather together the main supply and demand data. The need to provide suitable accommodation for the student population is recognised by the City Council and this is set out in its Adopted UDP Policies. Student housing can provide a basis for better balanced communities and can act as a catalyst for regeneration. It is important to encourage mixed and balanced communities, as set out in Planning Policy Guidance Note (PPG) 3: Housing (DETR, 2000), paragraph 10. PPG3 states that it does not accept that different types of housing and tenures make bad neighbours, and that local authorities should ensure that new housing developments help to secure a better social mix by avoiding the creation of large areas of housing of similar characteristics. This report identifies approaches that the City Council could take towards ensuring that suitable student housing is provided whilst ensuring that communities remain balanced.

1.2 Methodology The study is based on a mix of quantitative and qualitative methods. It examines the location and proliferation of student housing at a number of different levels: local authority, ward, output area and the level of the two Universities themselves. To complete this analysis, we have used all key data sources including the Census 2001, the NOMIS data service and data sources from HESA (the Higher Education Statistics Agency). The latter provides trend data going back to 1996 thereby providing a context for understanding the changing picture of student housing demand. Information from interviews (both face to face and telephone interviews) with key stakeholders has been used to test these findings and to provide further information, both factual and anecdotal. The stakeholders include the Universities themselves, the Further Education Colleges, the Council (Planning and Housing departments), developers and agents involved in the supply of, and demand for, student units in the city of Coventry. Appendix A contains a list of people who have been contacted so far as part of this study.

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1.3 Supplementary Planning Document (SPD) The purpose of SPD is to expand on policy and provide further detail to plan policies, but it does not have development plan status. Advice in Planning Policy Statement 12 (Local Development Frameworks) states that SPDs should not be used to allocate land and specifically states at paragraph 2.44 that: “ ….policies which should be included in a development plan document and subjected to proper independent scrutiny in accordance with the statutory procedures should not be set out in supplementary planning documents.” In this case, the SPD, once adopted will supplement policies in the Coventry Development Plan 2001 (1996 – 2011) or depending on the timing of production of SPD, it will supplement policies in the emerging Local Development Framework (LDF). If the SPD is adopted prior to preparation of the Local Development Document (LDD) then it will supplement Policy H1 of the Plan, as follows: Policy H1: People and their Housing Needs “All existing and future citizens should have access to a range of housing that is of satisfactory size and condition and within a high quality residential environment.” The SPD will support paragraph 4.15 of the Plan which identifies students as a group with particular housing needs. This is consistent with paragraph 13 of PPG3: Housing (DETR, 2000) which requires local planning authorities (LPAs) to assess the range of needs for different types and sizes of housing, including housing to meet the needs of specific groups, including students. The SPD will also supplement policies SCL8 and SCL9 of the Plan which relate specifically to the Universities, as follows: Policy SCL 8: Coventry University “The development of Coventry University will continue to be encouraged in order to assist its contribution to the educational, social and economic needs of the City.” Policy SCL 9: University of Warwick “The area covered by the University Development Plan is shown on the Proposals Map. Proposals directly associated with the growth of the University of Warwick will be considered in relation to the University Development Plan as well as other relevant Plan policies.”

1.4 Higher and Further Education in Coventry There are two Universities in Coventry and three Colleges of Further Education (FE). Coventry University is a single campus University and its main buildings and accommodation are located in the City Centre. The University of Warwick’s central campus straddles Coventry City and Warwick District, south-west of the city. The campuses within Coventry are Central Campus East, the Westwood site and Gibbet Hill site. Central Campus West is in Warwick District and contains mainly residential accommodation and sports pitches.

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Both of the Universities have a key role to play in the City in terms of their role in education, their contribution to the economy as major centres of employment and their contribution to providing social, community and sporting opportunities. The University of Warwick has many links with the business community, and the University of Warwick Science Park is located between Central Campus East and the Westwood site. The University also provides cultural facilities for the community through the University Arts Centre. The Coventry University Technology Park is around 8 hectares, located to the east of the City Centre and this provides a good environment for local business. Issues relating to the impact of the Universities in the City and Region are addressed in greater detail in section 3.1 of this report. The FE Colleges in the City are City College, (with campuses at Butts and Tile Hill), Henley College and Hereward College, which serves the needs of disabled people. City College is due to be progressively relocated to Swanswell to form part of a learning village over the next six years.

1.5 Key Issues The need to prepare SPD to assist the City Council in dealing with planning applications for student accommodation has arisen due to an increasing number of applications for student accommodation and local concerns about such developments. There have been a number of concerns relating to the character of areas changing as a result of an increase in the student population, and in particular there have been concerns about parking, particularly around the city centre where there are shortages of parking spaces and there is a perception that students and people working in the city are taking up residents’ parking spaces. These are not issues particular to Coventry City. More generally, studies in other Midlands cities and cities around the Country have found that where students are over-concentrated there can be a higher incidence of crime, or for example a propensity for an increase in the number of fast food outlets and, in some cases, a decrease in affordable housing provision as different housing end users compete for a fixed supply of homes. Student housing, where it is over-concentrated can lead to a loss in ‘ownership’ of an area where the private rented sector takes over and housing is vacated for significant periods of the year. There is increasing concern amongst the community that these perceived problems will increase if the Universities continue to grow, and if there is further development of large scale student accommodation. There is therefore a need to ensure that there is more certainty for local residents in key areas where there is a significant student population. This will be provided by SPD setting out the City Council’s approach to dealing with planning applications for student accommodation.

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2. Student Numbers and Bed Spaces

2.1 Introduction This section of the report firstly looks at past trends in student numbers in Coventry (Section 2.2). This is based on Census 2001 data. Following this an analysis of the current situation is provided (Section 2.3). This considers student numbers and bed spaces, providing a detailed breakdown of the type of bed space by institution. Section 2.3 provides an overview of the geographical distribution of students living in Coventry and specifically focuses on the geographical distribution of students in the private rented sector. Section 2.4 considers future student numbers in the City. It should be noted that this is based on an indication of likely growth from the institutions themselves and these should not be seen as definite unchanging figures. Planned and possible new student accommodation schemes are considered in this section to provide an indication of future bed space numbers.

2.2 Past Trends This section draws on a number of key data sources to examine trends in student study and student accommodation at Coventry University and the University of Warwick. It draws on the Census 2001 ‘snapshot’, and it looks at data from HESA, the Higher Education Statistics Agency. It should be borne in mind that figures from different sources differ as they tend to include/exclude different categories of students and not all students will have been counted in the Census, for instance many may not have been in the area at the time and they could have been registered at their home addresses.

2.2.1 Student Housing: the Picture in 2001 The Census 2001 provides a fairly robust overview in patterns of student accommodation. Figure 2.1 shows the distribution of student numbers within the Coventry City local authority area (sub-divided by male and female) by age groups. According to the Census data, there were marginally over 17,000 students being accommodated within the area. The majority of these were in the age group 20 to 24.

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Figure 2.1 Students by Age

Figure 2.2 highlights student housing pathways; i.e. the way in which students within the Coventry City area typically find accommodation as they progress through their courses. Figure 2.2 breaks down student accommodation by age groups, but also provides (in the bar on the extreme right) an overall average. On average (across all years) a relatively small proportion lived alone (4.8%) and a marginally larger proportion (14.5%) lived with parents or a parent and by far the largest mode of accommodation was ‘all students housing’: dwellings which were exclusively occupied by students and were effectively in the private sector. Students who occupied housing as ‘other households’ are also significant although these are particularly prevalent in the age group 25 and over. On average (for all three years), the educational establishments provided a high proportion (23.4%) of accommodation.

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Figure 2.2 Patterns of Student Accommodation

Patterns of Student Accommodation

(Within Coventry City Local Authority Boundaries: 2001)

Percentages 100

0 Age 19 Ages 20 to 24 Ages 25 and over All ages Living alone Living with parent/s All student HH Other HH Educ establish't Other communal establish't Source: Census 2001

In terms of pathways through different forms of accommodation, there is a very different pattern for students aged 19 versus those aged 20 to 24. Those aged 19 typically relied on educational accommodation (43.9%) to a much greater extent than those in the 20 to 24 age group (only 20.3%). Most 20 to 24 year olds relied on non-institutional accommodation in the broader private sector sharing exclusively student occupied dwellings (49.8%). Figure 2.3 links together accommodation and tenure. Overall (all three age groups), the most commonly held tenure was private rented (46.7% of all occupancies). ‘Living in a communal establishment’ accounted for 24.3% with a smaller proportion of students occupying dwellings that were owner occupied (either mortgaged or owned outright).

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Figure 2.3 Student Housing by Tenure

Student Housing by Tenure

(Within Coventry City Local Authority Boundaries: 2001)

Percentages 100

0 Age 19 Ages 20 to 24 Ages 25 and over All ages Owned outright Owned with Mortgage Shared ownership Rented from LA Other social rented Private rented Rent free Communal establishment Source: Census 2001

2.2.2 Trends in Student Demand within the Coventry City Area The demand for students to study within the Coventry City local authority area, and at the two universities has grown strongly since the mid 1990s. Figure 2.4 shows the overall growth in student numbers in higher education for each of the universities.

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Figure 2.4 All Students in Higher Education

According to the HESA data the number of students in higher education overall has grown from 32,964 in 1996/7 to 45,715 in 2002/3. This includes part-time students, many of whom will already be living in the area, and many of whom will only be doing short courses. This is a growth rate of almost 40% and an annual equivalent rate of almost 6% in student numbers. Looking at each of the universities in isolation, it is evident that numbers at the University of Warwick have grown more radically than those at Coventry. Figure 2.4 shows that higher education student numbers at Warwick rose from 17,507 in 1996/7 to 27,355, an increase of 56.3%, whilst the growth rate at Coventry University was just under 20% (18.8%). In the case of Warwick (Figure 2.4), student numbers have increased quite dramatically since 1999/00 (an increase of 47%). However, it is important to note that the figures for the University of Warwick include around 7,000 Open Studies students, who are typically mature students taking short courses. These students will already be living in the area. This increase also reflects significant growth within the Warwick Medical School in ‘Diabetes Care’, which although a part-time course is work-based and often only requires students to attend the University for a week or so. This should be borne in mind when comparing the growth in numbers between the two Universities and when considering the numbers themselves. The balance between undergraduate (UG) and postgraduate (PG) numbers varies significantly between the two universities (Figure 2.5). This has implications for the Universities’ policy on the provision of accommodation and in particular the extent to which they wish to ensure that all first year students have a guaranteed place when they begin to study. Coventry University is primarily focused on undergraduate study although the University has experienced a very significant increase (118%) in the number of postgraduate students between 1996/7 and 2002/3. The University of Warwick has traditionally had a much higher proportion of postgraduate students (35% in 1996/7 and 31% in 2002/3). Warwick has however also experienced a strong growth in postgraduate provision with an increase of 72% when comparing the years 1996/7 and

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2002/3. The growth in undergraduate students has been more significant at Warwick: 65.9% over the same period.

Figure 2.5 Undergraduate and Postgraduate Numbers

A more fine grain analysis is available in Figure 2.6, which breaks down the main types (postgraduate versus undergraduate) of study by their main modes (full versus part time). The most significant trend here is the growth in the number of part time undergraduate students at the University of Warwick. This has been a growth rate of 246% (an annual equivalent of around 35%). Part time study is also on the increase at postgraduate level in both academic institutions; at Warwick, this is up by 47% whilst at Coventry University, it is up by 78% (1996/7 to 2002/3). As noted previously this includes a significant number of ‘Open Studies’ students at Warwick who are often undertaking short courses. Full time postgraduate numbers at Warwick have increased and are likely to form a significant proportion of those students seeking private rented accommodation in the City. Undergraduate full time student numbers have however not grown significantly over the longer period. At Warwick an increase of 23% has been experienced (1996/7 to 2002/3), whilst at Coventry University, full time undergraduate numbers have been virtually static (growth of only 3% over the same period).

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Figure 2.6 Student Numbers in Full and Part Time Education

Further analysis from the HESA data allows for an examination of the role of UK and overseas students in driving the demand for accommodation. Figure 2.7 shows undergraduate and postgraduate students’ categories in terms of their place of origin (either UK or overseas). In this respect, there has been a sharp rise in the number of overseas students at the University of Warwick (see also Figure 2.8 for the overall increases); in the case of undergraduate overseas students this has been 63%, and for postgraduates, 72%. Coventry University on the other hand, has seen less of an increase, with an increase of only 1% over the period 1996/7 to 2002/3, although there is some evidence in the trend in applications to suggest that numbers are likely to grow in coming years.

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Figure 2.7 UK Based and Overseas Students

Key trends are summarised in Figure 2.8 below.

Figure 2.8 Growth in Student Numbers (% Change)

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2.3 Current Situation The purpose of this section of the report is to set out the number of students at each of the HE and FE institutions in Coventry and where information is available to set out the numbers of students in managed accommodation at each of the Institutions. The information for individual institutions is based on information provided by the institutions themselves. This should be viewed in the context of the analysis of the HESA data in the previous section of the report, although as noted previously the HESA data includes all part-time students, including students on short courses and so should not be used as an indication of the number of students who will be seeking accommodation in the City.

2.3.1 Coventry University Student Numbers In the 2004/2005 Academic year there are 13,600 FTEs (Full Time Equivalents) and a total of around 16,868 students (full time and part time). Of the FTEs, 1,600 are postgraduates and 2,100 are part-time FTEs. There are around 1,600 overseas FTEs. Table 2.1 below sets out the make up of these 16,868 students.

Table 2.1 Coventry University Student Numbers

Undergraduates Postgraduates

Full time 9,999 1,060

Part time 4,527 1,282

Total 14,526 2,342 Source: Coventry University

There is therefore a total of 11,059 full time undergraduate and postgraduate students. This is the key figure when considering the demand for accommodation as most part time students will already be living in the area. There are 9,550 first year students (6,000 FTEs), a number of whom are only undertaking one year part-time courses. The number of full time students has declined in recent years due to the University offering a significant number of scientific and engineering courses, which have become less popular in recent years. However, it should be noted that applications for 2006/2007 are considerably higher than for 2005/2006.

Bed Spaces Coventry University owns campus based accommodation throughout the city centre. This includes four Halls of Residence and University owned houses. In addition to this the University has five managed Halls which are leased to the University and a number of managed

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houses. There are also three private developments within which the University has a number of bed spaces. The University has a total of 2,832 bed spaces as set out in the table below:

Table 2.2 Coventry University Bed Spaces 2005/2006

Bed spaces Comment

University Owned Provision

Priory Hall 498

Quadrant Hall 103

Singer Hall 693

Caradoc Hall 175

University Owned Houses 234 The majority of these are in Earlsdon

Sub Total 1,703

University Managed Provision

Apollo House 134 Leased to University

Sherbourne House 100 Leased to University

Lynden House 62 Leased to University

Radford House 24 Leased to University

Raglan Court 62 Annual lease to University

Managed Houses 171

Sub Total 553

Private Provision

Liberty Park 249 249 out of the 500, rooms on referral on annual agreement

Trinity Point 174 174 of the 352, rooms on referral on annual agreement

Paradise Place 153 All Coventry students

Sub Total 576

Total 2,832

Source: Coventry University As can be seen from the table, there is a mix of University Halls of Residence, University owned houses, managed houses (rented by the University) and private Halls (rented directly to students). Other students either live at home or find their own properties. The University has a vetting code for private rented accommodation although this is only an advisory scheme.

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Students in private rented accommodation (including University of Warwick students) tend to live in the Charterhouse, Chapelfields, Stoke, Earlsdon and Hillfields areas. Coundon Road, Westminster Road, Earlsdon Avenue and Holyhead Road are roads with a significant student population (some Halls are located in these roads). Coventry University does not currently meet the accommodation needs of all its first year students.

2.3.2 University of Warwick

Student Numbers In the 2004/2005 Academic year there are 20,547 students at the University (excluding Open Studies students, but including externally taught students and programmes taught overseas). This is 15,833 full-time equivalents (FTEs). Table 2.3 below sets out the breakdown of students. The total number of students in the table below is 18,884. This is the number of students who are actually based at the campus for a reasonable length of time (i.e. this excludes students on short courses and Open Studies students). There are therefore a total of 13,423 full time undergraduate and postgraduate students. This is the key figure when considering the demand for accommodation as most part time students will already be living in the area.

Table 2.3 University of Warwick Student Numbers

Undergraduates Postgraduates

Full time 10,431 2,992

Part time 1,466 3,995

Total 11,897 6,987 Source: 2004-2005 Academic Statistics (provided by the University of Warwick) Included within the above table are 3,792 overseas students studying at the University (of whom 3,037 are full-time and 755 are part time). Bed Spaces The University of Warwick is able to accommodate around 5,813 students in its on-campus accommodation (this excludes accommodation for staff and family flats). As the table below shows, the on-campus accommodation is split between Coventry City and Warwick District, with 3,073 of the on-campus bed spaces in Coventry City and 2,760 on-campus bed spaces in Warwick District (2004/2005). In addition to this, the University assures and manages 1,889 beds off campus (2004/2005). 397 of these are in Warwick District, and 1,492 are in Coventry City. This number varies from year to year as the University increases or decreases its commitments in its managed off-campus portfolio according to demand. For instance in the new academic year 2005/2006, the University will manage around 1,650 bed spaces, of which approximately 1,300 (around 79%) are in Coventry City and around 350 (around 21%) are in Warwick District. The percentage split between the districts remains virtually the same from year to year. There are therefore a total of around 7,702 managed bed spaces. Warwick Accommodation estimates that in 2004/05, a further 3,748 students live in private accommodation. Unlike Coventry University’s advisory scheme, the University has a scheme where private accommodation is vetted to ensure that it meets the University’s standard.

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Table 2.4 University of Warwick Bed Spaces (2004/2005)

Bed spaces Comment

University Owned Provision - Halls (District)

Arthur Vick (Coventry City) 396 Undergraduate Accommodation

Cryfield (Warwick District) 286 Undergraduate Accommodation - all first years

Jack Martin (Coventry City) 428 Undergraduate Accommodation

Rootes (Coventry City) 920 Undergraduate Accommodation - all first years

Benefactors (Coventry City) 70 Undergraduate Accommodation - all first years

Whitefields (Coventry City) 195 Undergraduate Accommodation - all first years

Westwood (Coventry City) 490 Undergraduate Accommodation

Hurst (Warwick District) 282 Undergraduate Accommodation

Redfern (Warwick District) 216 Undergraduate Accommodation

Tocil (Coventry City) 574 Undergraduate (188) and Postgraduate (386) Accommodation

Lakeside (Warwick District) 596 Undergraduate (140) and Postgraduate (456) Accommodation

Heronbank (Warwick District) 701 Undergraduate (151) and Postgraduate (550) Accommodation

Claycroft (Warwick District) 679 Undergraduate (500) and Postgraduate (179) Accommodation

Sub Total 5,833

Assured and Managed Off Campus 1,889 Approximately 79% (1,492) of these bed spaces are in Accommodation Coventry City and approximately 21% (397) of these bed spaces are in Warwick District.

7,722 Total

Source: University of Warwick The University of Warwick guarantees accommodation on campus for a number of groups of students, including the following: • First year undergraduates (except those entering through Clearing); • First year postgraduates from overseas; • Visiting exchange students; • Students who spend an approved year overseas;

• Final year undergraduate students from overseas; and • Students who require campus accommodation on medical grounds, and where necessary their carers.

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In its work on developing a Student Accommodation Strategy, the University states that approximately 44% of its full time student body is accommodated on campus, 14% are accommodated in University managed accommodation off campus and 42% find accommodation in the private sector or live at home. With regard to managed off-campus accommodation, the University assures the standard of the accommodation that a landlord wishes to let through the University. The University then enters into a contract (initially for one year) in which the University guarantees the landlord approximately 80% of the total that the University charges in rent to the students. The University then lets the accommodation to its students, charging the students a rent that includes the amount guaranteed to the landlord plus a management fee of the remaining 20% to cover the costs of its management and maintenance of the accommodation. As noted above, the University will vary the number of managed off-campus accommodation that it makes available from year to year depending on demand. If this is reduced then landlords usually let privately to students or others, or depending on the market, sell the property. According to the University, Leamington continues to be a popular location with students for off-campus managed accommodation. However, in the longer term the University would prefer to increase its accommodation close to the University in the form of a student village, either on or adjacent to the University campus.

2.3.3 Further Education Colleges There are three FE Colleges in Coventry, all of which are due to be relocated to Swanswell to form part of a learning village. This move is likely to take place in 2007/2008. Information on the projected growth in numbers at each of these Colleges has not been easy to obtain, but conversations with staff at these colleges indicate that they do not anticipate a significant increase in student numbers in the immediate future. Details of each of the colleges are set out below:

City College Student Numbers At present City College have three campuses, at the Butts Centre (Sherbourne ward), Maxwell Centre (St. Michael’s ward) and Tile Hill (Westwood ward). The College does not have any residential accommodation.

Table 2.5 City College Student Numbers

Number of Students (2003/2004)

Full Time 2,576

Part Time 11,877

Total 14,453 Source: City College 70% of the above students come from CV postcodes which covers the wider Coventry area including much of Warwickshire. The nature of the courses that are run at the College means that a number of students are at the College for short periods of time, such as two week blocks.

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Many of these students are ‘bussed in’ from elsewhere in the Country, and they stay with local host families within walking distance of the College. The majority of these students are under 18. There are also a number of overseas students who are also at the College for fairly short periods of time. These students also mostly stay with local host families. At any one time the College estimates that there are probably between 80 and 100 students living with local families. Overseas students are based at the Butts site, which is on the edge of the city centre. There are around 600 permanent full time staff and around 200 part time staff at the College. The College will provide some foundation courses for Coventry University. A proportion of students undertaking these courses will be overseas students requiring accommodation, although a lot of these students will stay with host families in the area.

Bed Spaces There is no residential accommodation at the College, and those students who do not live at home are brought in for relatively short periods of time and during this time they stay with host families. These students often return home at the weekend. Whilst there are some international students at the College, the College estimates that only a very small number of these students find their own private accommodation. The majority stay with host families, arranged by the College. Henley College Student Numbers Henley College is based in Bell Green (Henley ward) and has approximately 7,000 students. This includes full and part time students of all ages. There is approximately 500 staff at the College. Courses at the College start throughout the year and are for varying lengths of time. A number of overseas students attend the College to do English courses. These students stay with host families, and at any one time there may be up to 120 students staying with host families within walking distance of the College. Some of the overseas students do rent private housing together, but this is a very small number, and is likely to be under 30 per year.

Bed Spaces There is no residential accommodation at Henley College and only a small number of overseas students live in private accommodation in the City. Hereward College Student Numbers and Bed Spaces Hereward College caters for disabled students and is based at Tile Hill (Westwood ward). The College has around 121 rooms on site for students, although these are not always full. In addition to these residential students there are also around 250 day students. According to the College only a small number of students have cars.

2.3.4 Walsgrave Hospital There are no long term students living at the hospital as the majority of student nurses are based at Coventry University and the majority of medical students are based at the University of Warwick. These students will therefore already be accounted for in the sections above, either living in University accommodation or private accommodation in the City. There are some student residences at the hospital, but these are for short term use, usually one or two months,

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and usually provide accommodation for students visiting from elsewhere in the UK. There are around 20 units for this short term use. The new hospital site will provide 200 units of accommodation which will be a mix of single rooms in flats and family accommodation. This will be an amalgamation of residences at the current Walsgrave Hospital and City/Warwick Hospital. The majority of these residences are for medical staff, not students. There has recently been an extension of medical study facilities (including a clinical sciences building, library and lecture theatre) at the hospital, but this is for all staff and is not in any way related to student numbers.

2.3.5 Summary of Student Numbers and Bed Spaces Table 2.6 below summarises the key figures relating to student numbers and student bed spaces. The student numbers and bed spaces set out here are based on current data provided by the Universities. The private landlord supply is based on 2001 Census data, and is therefore only indicative of the current numbers in the private rented sector.

Table 2.6 Summary of Student Numbers and Bed Spaces (2004/2005)

Full Time Managed University Total Bed Indicative UG and PG Bed Spaces owned/ Spaces Private (University (University managed (University landlord Figures) Figures) 1 houses Figures) 2 supply (from (% of students) 2001 Census)

Coventry University 11,059 2,427 405 2,832 (26%) 8,233

University of Warwick 13,423 5,833 3 1,889 4 7,722 5 (58%) 3,434

TOTAL 24,482 8,260 2,294 10,554 (43%) 11,667 1 Including on and off campus halls and private schemes 2 Including on and off campus (halls, private schemes and University owned/managed houses) 3 3,073 or 53% are in Coventry City (the rest are in Warwick District) 4 1,492 or 79% are in Coventry City (the rest are in Warwick District) 5 4,565 or 59% are in Coventry City (the rest are in Warwick District)

As can be seen from the data in this table in 2004/2005 there are around 24,482 full time students at both Universities. In the same year there are 10,554 managed bed spaces for Coventry and Warwick students (including those bed spaces in Warwick District) and these accommodate around 43% of the total students at the two Universities. Based on the Universities’ student numbers, this leaves around 13,928 students either living at home or living in private rented accommodation. It can be assumed that a significant proportion of those living in private rented accommodation will be in Coventry, although Leamington (and to a lesser extent Kenilworth) tends to be popular with students from the University of Warwick. The 2001 Census data indicates that around 11,667 students are living in private rented accommodation in Coventry, although this may have increased since 2001. Based on these figures, around 2,260 students (around 9% of students) would be living at home (with parents). As a comparison with other cities, the total student numbers compare to around 34,000 student in Leeds (2001) and around 49,900 in Manchester, around 40,400 in Birmingham, around 35,830 in Nottingham and around 26,100 in Leicester (Source: Supplementary Statement on Demand – Planning Application 42919/D, UNITE, April 2004).

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2.3.6 Overview of Geographical Distribution of Students in Coventry by Type of Accommodation Figure 2.9 overleaf illustrates how students are distributed between communal establishments (where a large number of students will be in university halls) and all student group households (where most students will be in privately rented houses (HIMO)). The wards having the highest student populations (Census 2001) are Wainbody (3,101 students) St Michael’s (2,941 students), Whoberley (1,701 students), Earlsdon (1,352 students) and Westwood (1,099 students). These numbers include students living with parents, students living alone and students in other household types (not plotted on the graph). Of all groups, students living as all student group households make up the largest proportion (around 40%); next are students living in communal establishments (almost 25%); students living with parents make up around 15% of all. The latter would include students living at home and studying at other colleges/universities in the region, not just those studying in Coventry. It should be noted that these percentages are quite different from those shown in Table 2.6 as Figure 2.9 is based on the 2001 Census and also does not distinguish between managed university and non managed accommodation. It also does not include those students in Warwick District. All data refers to full time students 19 years and over. Figure 2.10 shows the students in each ward as a percentage of the population of the ward. The high student numbers in Wainbody and Westwood are mainly accounted for by campus accommodation at the University of Warwick. There are also a significant number of students in halls at Coventry University in St Michael’s ward. A map of student numbers by Census Output Area with Coventry City wards overlaid can be found in Appendix B to this report. This includes all student groups (i.e. those living in halls and private rented accommodation). This provides an overview of the geographical distribution of students throughout the City.

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Figure 2.9 Student Accommodation in Coventry City District

Student Accommodation in Coventry City District (Ward by ward)

3000

2500

2000

1500

1000

500

0 l s e re n il y k rd e rd e l' e y d y ds n ak ey o o h le o o k o rn e k d o le n e l l sd s n ro f to f u a to o o r a yk b in sm l le e b g S d o h S b w e l a e ar o H l n r a b ic r in st ob d W B B l E F o o e R er e a e h o ey H L w h M p o h o S t p W W W W C L S U Communal Estab't All Student Group Households Source: Census 2001

Figure 2.10 % Students in Coventry City District Wards

% Students in Coventry City District wards (Students aged 19 and over) 20

0 l e re n il y k rd e rd e l's e y d y s n ak y o o h le o o k o rn e k d o le nd e l le sd s n ro f to f u a to o o r a yk b in sm rl le e b g S d o h S b tw be l a e a o H l n r a b ic r in s o d W B B l E F o o e R er e a e h o ey H L w h M p o h o S t p W W W W C L S U Students as a % of total population

Source: Census 2001

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2.3.7 Existing Housing Stock

Geographical Breakdown of Student Housing in the City Much anecdotal evidence has been provided about where there are concentrations of students in Coventry. The key areas where students living in private rented accommodation (and University owned/managed houses) tend to be concentrated are Charterhouse, Chapelfields, Stoke, Earlsdon and Hillfields. This section of the report sets out an analysis of the geographical distribution of students in the private sector (and University owned/managed houses) using Census data at Ward level and at Output Area level.

Ward Analysis The distribution of ‘All Student Group Households’ is shown in Figure 2.11 below. This category is largely made up of students living in private rented accommodation, although it will include students living in University owned/managed houses (thought to be around 2,294 in total in 2004/2005). The bar chart shows that this sector of the market is most prolific in the St. Michael’s, Whoberley and Earlsdon wards. The St Michael’s ward contains the highest number of all student group households (this is almost 10% of all full time students in the Census age group). The Whoberley ward to the west of the city centre contains the next highest with all student group households making up just over 7% of all students. There are furthermore some wards (most notably Lower Stoke, Radford, Sherbourne and Upper Stoke) where virtually all provision of student accommodation is through all student group and private rented households.

Figure 2.11 Student Accommodation

Student Accommodation in Coventry City District (Ward by ward: All Student Households only)

1600 1400 1200 1000 800 600 400 200 0 l e re n il y k rd e rd e l's e y d y ds n ak ey o o h le o o k o rn e ok d o le n e l l sd s n ro f to f u a t o o r a yk b in sm l le e b g S d o h S nb tw be l a e ar o H l n r a b ic r i s o d W B B l E F o o e R er e a e h o ey H L w h M p o h o S t p W W W W C L S U All Student Group Households Source: Census 2001

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Output Area Analysis Student numbers were also analysed at a finer grained geographical level i.e Census Output Area. Using a minimum of 60 students per Output Area (OA) as a ‘cut-off’ on the basis of all student group households we highlighted 23 OAs in four wards. There were three OAs in Earsldon that fell into this category; three in Sherbourne; seven in Whoberley and ten in St Michael’s. Table 2.7 on the following page shows the proportion of students in each of the OAs in the four wards. These are mainly all student group households, although not exclusively. In one of the Earlsdon OAs (3) students make up almost 30% of all households. On average, students make up 20% of all households in the three OAs selected; in Sherbourne the figure is lower at 10%; in Whoberley (7 OAs) it is 14% and in St Michael’s (10 OAs) it is 17%. In some OAs the proportion of single person households is very high. In the case of Earlsdon 32, 74% of households are either students or single person households. In the case of St Michael’s 44, this is 66%. Maps of these OAs can be found in Appendix C. These show geographically which areas have greater concentrations of student households.

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Table 2.7 Proportion of Students in Output Areas

Ward Output Area % Student % One % Private Rented * % One Person Households Person Pensioner Households

Earsldon 0CQFD003 29 29 47 9

0CQFD0032 17 57 46 5

0CQFD0034 14 20 27 3

Sherbourne 0CQFM0002 10 51 39 16

0CQFM0010 10 51 24 6

0CQFM0034 10 40 44 6

Whoberley 0CQFR0001 14 37 38 13

0CQFR0004 13 37 50 13

0CQFR0005 11 28 27 11

0CQFR0035 13 34 26 13

0CQFR0036 13 35 35 16

0CQFR0038 17 26 34 10

0CQFR0054 17 34 34 9

St Michael’s 0CQFL0001 13 24 29 7

0CQFL0035 18 53 35 6

0CQFL0039 19 25 38 10

0CQFL0041 18 30 47 8

0CQFL0042 13 28 42 11

0CQFL0044 17 49 56 15

0CQFL0045 16 31 47 11

0CQFL0046 19 29 40 12

0CQFL0047 20 22 36 8

0CQFL0048 15 30 49 7 * Includes households living rent free with an occupancy rating of 0 or higher This proliferation of students in any given OA should be considered alongside other indicators of the nature of a neighbourhood. We present here data for the percentage of homes in the private rented sector, and percentage of homes with one pensioner which provides a backdrop to the type of neighbourhood. A characteristic of the areas with the highest percentages of student households is that they also tend to be areas where there are high percentages of private rented accommodation. It may therefore be sensible to conclude that a number of the problems/perceived problems in these areas are not only associated with the high number of student households, but rather the high percentage of houses in the private rented sector, i.e. a number of houses with absent landlords and thus a general lack of ‘ownership’.

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An important point to note from the above table and the plans in Appendix C is that none of the Output Areas have more than 29% students and with the exception of one OA in Earlsdon, all other OAs have 20% or less. These percentages are not especially high considering the relatively small area covered by the OAs. For instance, in Leeds, in the Headingly, Hyde Park, Burley and Woodhouse areas, in a number of core areas students comprise 50 to 100% of the total population. In Charnwood Borough (Loughborough University), in wards without campus accommodation, students make up around 28% and 19% of wards (source: Consultation Draft SPD Student Housing Provision in Loughborough, February 2005, Charnwood Borough Council), much larger geographic areas than OAs. In Nottingham there are four Wards where students comprise more than a quarter of the population (Revised Draft SPD for the Development of Family Housing and Student Housing, June 2005, Nottingham City Council).

2.4 Planning for Student Numbers in the Future

2.4.1 Coventry University The University anticipates that its present 13,600 FTE students will grow to around 15,000 FTE students by 2010, a growth rate of around 10%. It is keen to expand, and is particularly keen to see the numbers of postgraduates, overseas students and EU students grow. As part of this expansion the number of overseas students is expected to increase from 1,800 to 3,000 over the next five years. Traditionally such students were prepared to pay for good quality en-suite accommodation with 50 week lets. However, increasingly students are coming from the new EU countries such as Poland and from countries such as China. These students are often more prepared to share accommodation and are looking for more affordable accommodation. The University has seen an increase in applicants this year (2005/2006).

University Accommodation Strategy Coventry University no longer directly provides new accommodation, but it is keen to work with private developers in partnership. It has calculated that there is a need for about 1,000 additional bed spaces to meet its growth targets for student numbers.

2.4.2 University of Warwick The University of Warwick is developing a long-term vision for the development and use of its residential accommodation. The University anticipates a period of relatively low but sustained growth in undergraduate numbers, and expects to see an increasing postgraduate population associated with a period of steady expansion of research activities. Growth over the next five years in full-time student population is forecast to rise to over 14,000 students (by about 3.5% overall, with more significant growth of around 14.5% in postgraduate numbers). The University has identified the need for further growth of new rooms in residences in line with projected expansion, with potential growth of over 1,200 bed spaces being considered as part of the development of the Campus Development Plan. However, it is possible that the University may reduce its off campus managed stock (houses) if new on campus accommodation is developed, as this is much more popular with students.

University Accommodation Strategy The University of Warwick is currently developing a long-term vision for the development and use of its residential accommodation. One of the aims of the University’s Accommodation

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Strategy is to develop high quality accommodation of a price and location that reflects the needs and aspirations of the student body and that provides sufficient and appropriate accommodation to meet the changing needs of the University’s students in terms of quality and location. The University also needs to ensure that it is able to manage its guarantees of campus accommodation places.

2.4.3 FE Colleges There were no specific growth targets for the FE Colleges but it was acknowledged that the move to the new ‘learning village’ at Swanswell may well lead to an increase in student numbers over the following years. It is also likely that the number of foundation courses at the Colleges will increase, and whilst a number of these students will initially live with host families, a number of them may move into private rented accommodation together. However, overall it is not considered that growth in student numbers at the Further Education Colleges will have a significant impact on the issue of accommodation provision.

2.4.4 Possible Future Student Accommodation Schemes When considering the level of managed student accommodation in Coventry it is important to consider schemes under construction and also possible future schemes, such as those with planning permission, pending planning applications or ‘in the pipeline’. Recently developed private schemes such as Paradise House have already been included in Table 2.2 as providing bed spaces for Coventry University students. However, there are a number of other schemes as set out in Table 2.8 below. Some of these have planning permission and the status of the others is uncertain at present.

Table 2.8 Planned/Future Student Accommodation Schemes

Scheme/Location Approximate No. Status of Scheme of Bed Spaces

West Street/Sky Blue Way 351 Approved - built

Far Gosford Street (Astley’s) 680 Approved

Post Office, Hertford Street 90 Approved

Raglan Court 200 Approved (on Appeal)

Total with Planning Permission 1,321

Far Gosford Street 209 Un-determined

Raglan Street 90 Uncertain

Gulson Road 24 Uncertain

Possible Schemes in Pipeline 323 Source: Coventry City Council The figures show that there are a number of schemes that have planning permission and are likely to come forward. These schemes will potentially provide bed spaces for Warwick and Coventry students, although it is likely that the majority of spaces will be taken up by Coventry students. This increase in numbers broadly accords with Coventry University’s target for new bed spaces that it has calculated it needs to meet its predicted growth which is around 1,000

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additional bed spaces. However, in the much longer term there may need to be closures of some of the older Halls. It is likely that this trend for private managed accommodation will continue, assuming that suitable sites are available. In the case of Coventry University, the University is very keen to work with private developers/corporate landlords and will assist in the search for suitable sites for them to develop close to the University. Section 2.5.2 sets out some of the findings of interviews with the corporate landlord sector. They consider that this sector will play a strong role in Coventry over the next few years and that there will be strong demand from students in the City for this type of accommodation.

2.4.5 Summary of Future Student Numbers and Bed Spaces Current student numbers and bed spaces (2004/2005) are summarised in Table 2.6. However, Table 2.9 below sets out these figures along with possible future student numbers (full time students in 2010, based on information provided by the Universities) and potential new bed spaces. It is important to note that these figures only provide a broad indication of the balance between the demands for, and supply of, student housing as well as in relation to likely future growth, as the full time undergraduate and postgraduate student numbers for 2010 are based on growth figures for FTEs provided by the Universities. It is therefore likely that the figures for potential additional students shown in the table are on the high side, as the majority of part time students do not require accommodation. It should be borne in mind that the need for student accommodation is likely to fluctuate on an annual basis, and so the figures only provide an indication of supply and demand at a particular time. This data suggests that there is a current deficit of accommodation, which is likely to be due to inadequate census data.

Table 2.9 Summary of Potential Future Student Numbers and Bed Spaces

Coventry University of Total University Warwick

Student Numbers

Current Full Time UG and PG (University Figures) 11,059 13,423 24,482

Potential Full Time UG and PG numbers in 2010 1 12,165 13,893 26,058

Potential additional students 1106 470 1,576

Student Bed Spaces

Current Bed Spaces (University Figures) 2 2,832 7,722 10,554

Current Indicative Private landlord supply (2001 Census) 8,233 3,434 11,667

Sub-total 22,221

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Coventry University of Total University Warwick

New Private Schemes (with planning permission) 1,321

Other Schemes ‘in the pipeline’ (status uncertain/un- 323 determined) Potential on-campus managed accommodation at University 1,200 of Warwick (longer term) Source : Coventry University, University of Warwick, Coventry City Council 1 Based on % increase of FTEs by 2010 (information from Universities), Coventry University increase of 10% by 2010, University of Warwick increase of 3.5% by 2010 2 Includes on and off campus accommodation, private schemes and University owned/managed houses (including those in Warwick District). It is important to emphasise that the growth in student numbers is not necessarily a good basis for predicting the demand for student accommodation. The housing market is dynamic both in terms of new supply and in terms of what happens in the existing stock. It should also be borne in mind that a number of new private student accommodation schemes may come forward over the next few years, potentially significantly increasing the number of bed spaces available in the city. The figures set out in this table should therefore be seen in context and it is quite likely that they will be subject to change. For instance it is not clear if these are targets for growth or are more realistic indications of growth. It is furthermore not clear how much accommodation private landlords will continue to offer from the existing housing stock. However, based on information provided by the Universities, it is possible that there could be an additional 1,576 full time students at the two Universities by 2010. There is currently planning permission for private student accommodation schemes which, if developed and built by 2010 would provide an additional 1,321 bed spaces. Based on this figure, and assuming no other major changes in the accommodation situation there would be a need to accommodate up to around 255 additional students in private rented accommodation, although a proportion of these would be living at home Unfortunately the Universities do not have accurate figures for the number of students living at home, as they are not able to distinguish between students seeking accommodation in the private rented sector and students living at home.

2.4.6 What Do Students Want From Student Accommodation? Interviews with the Universities, developers and the National Union of Students indicate that the following are all needs which are specific to students when looking for new student accommodation: • Proximity to campus and facilities (around 15 minutes walk from the campus is considered to be the favoured distance, alternatively on good bus routes to the campus. It is important that there is a decent night service as comments have been made that there is not a night service currently serving Coventry University students); • Broadband (at Coventry University this has assisting in attracting students to Halls that were traditionally less popular);

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• Mix of en-suite (particularly overseas students), budget and couples accommodation; • Furnished accommodation, including laundry facilities; • Safety in the surrounding area;

• Flexibility in the length of let; • Soundproofing; and

• Welfare support. The above are clearly more specific to purpose built student accommodation, although proximity to campus is a key issue when students are looking. It is interesting to note that car parking was not an issue that was raised as something that students are specifically looking for when looking for accommodation. Interviews with estate and managing agents for students in the city provide a useful insight into what students are generally looking for in private accommodation (HIMO sector) in the City, although there have been mixed opinions. Some respondents considered that generally students are undiscerning and do not expect high standards of accommodation as long as rooms are furnished. There appears to be a difference between male and female students, with male students looking mainly to maximise their space, while female students tend to look for accommodation which has sufficient white goods provision. Feedback on private accommodation in the city is negative, and complaints are very often brought to light via visiting parents. However, it would be unlikely that positive comments on accommodation would be fed back to agents. These differing comments indicate that it is clearly not possible to generalise about what students want from accommodation and it is not easy to predict student’s preferences in a fee paying environment. There is often pressure on agents to find larger dwellings for second and third year students who tend to seek accommodation in groups of fives or sixes, although there is still demand for bedsits from students living on their own. Specifically in relation to private student housing, “A Co-operative future for student housing” (Urbed, 2004) found that the most important factors influencing demand for private accommodation were location, security and quality. Discussions with the National Union of Students (NUS) indicate that key issues are properties with adequate space, not suffering from damp, and accessibility to the University and facilities. Design Guidance relating to a number of these issues such as the need for safety in the surrounding area and as part of the development (to include CCTV/lighting etc.) is available and can be incorporated into draft SPD when it is developed.

2.4.7 National Trends The prospects for the higher education sector nationally are set out in the Department for Education and Skills’ White Paper “The Future of Higher Education” (DFES, 2003). This sets out three key challenges relating to expanding the sector, to wealth creation via research and to the funding of degrees. The government recognises that there is an investment backlog and that this needs to be met somehow. Tuition top-up fees are one solution.

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There are however mixed messages going out to potential students, particularly those from poorer backgrounds whom the government wishes to have a greater representation in higher education. Whilst institutions might be seeking a wider socio-economic spectrum of students, higher education will be considered by some to be a risky financial option in an uncertain job market. A strong theme of policy for the higher education sector is working with business particularly to develop foundation degrees. For many institutions the long term implication of this trend will be for increased part time study. Despite the problems however the benefits of a good university education have been widely promoted and the consultation response to the White Paper showed little opposition to the rationale behind the sector. However, the consultation response to the objective of expanding higher education to 50% (from its current level of 44%) was ‘mixed’. Some people were concerned that such a target might devalue the degree; others however welcome proposals to encourage all young people to consider higher education seriously. The implications for growth in students numbers at an aggregate (national) level are difficult to gauge at the local level. The key (national) messages seem to be for a steady level of growth, and one in which the stronger areas are degrees based on work-focused, intermediate level and foundation degrees. This probably means increasing part time modes of study and less pressure on local housing stocks. The University of Warwick anticipates that students’ needs and preferences are likely to alter in a post-fees environment. They anticipate that the market is likely to become more sensitive to prices, quality and value and that there is likely to be more need for ‘budget’ accommodation, whilst at the same time from others there is likely to be more demand for ‘premium’ accommodation. The University also anticipates that as a result of students spending a greater proportion of their budget on accommodation, expectations of the service will increase. Coventry University expects to see an increase in overseas students and particularly students from the new EU countries and countries such as China. Such students often seek ‘budget’ accommodation and are much more prepared to ‘share’ houses than many home students. These students may be more likely to share houses at the cheaper, possibly poorer quality end of the market.

2.5 Conclusions and Implications for the Local Housing Market

2.5.1 Current Situation and Potential Growth The above sections indicate that the accommodation situation is quite different at the two Universities. Coventry University starts out from a lower base point with a full time student base of around 11,000 against a managed accommodation provision level of just under 3,000 bed spaces. The University of Warwick’s ratio is higher with a full time student base of around 13,500 but with a managed accommodation provision (halls and private sector managed) of just under 8,000 bed spaces, including 3,157 of which are in Warwick District. The University has longer term plans to develop more accommodation on campus. Coventry University on the other hand does not have as much campus provision and is more reliant on private sector accommodation, putting a relatively greater pressure on the private sector housing stock in

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locations most accessible to students at Coventry University. In future Coventry intends to rely more on new private sector developments. The message emerging from both Universities is for growth in part time and postgraduate forms of study. Figures from the Universities on growth, and information on new private accommodation schemes suggest that there may not be a significant increase in the number of students seeking accommodation in the existing private rented housing stock, as new (university and corporate private) schemes are likely to soak up much of the additional growth in students. Table 2.9 sets out potential student growth by 2010 and likely new student accommodation schemes. This indicates that by 2010 only a relatively small number of students would be seeking private rented accommodation in the City or living at home. However, reliance on the local (private rented) housing market will continue to be significant, but this sector will not necessarily see large increases in demand. Coventry has identified a need for 1,000 bed spaces, much of which is likely to be met by private student accommodation schemes. Given the location of many of the schemes, it is likely that they will accommodate more Coventry students than Warwick students. The University of Warwick has identified the need for further growth of new rooms in residences in line with projected expansion, with potential growth of over 1,200 bed spaces being considered as part of the development of the Campus Development Plan, although this development is potentially constrained by its location in the green belt. Such development may also lead the University to release some of its off campus managed/owned houses.

2.5.2 Impact on the Private Rented Sector The projected growth figures from the Universities and the number of new bed spaces coming forward through private accommodation schemes with planning permission indicates that it is unlikely that there will be significantly greater demand from students for accommodation in the private rented sector over the next five years or so. Interviews with estate and managing agents suggests that there is still plenty of older terraced housing to meet the needs of Coventry University students and that in some locations there is an excess supply and void houses (the ‘Humber Road area’ was quoted). However, it was noted that there is less available in the private rented sector for the University of Warwick students, although many of these will be seeking such accommodation in the Leamington/Kenilworth area. Interviews revealed that there are some concerns amongst Landlords that the slight downturn in the student market, most likely accounted for by the new private accommodation schemes and the refurbishment of some Coventry University Halls, is not being compensated via other options. For instance NASS contracts for asylum seekers were also reported to have reduced, although the Draft Coventry Homelessness Strategy 2005 – 2010 suggests that the majority of refugees prefer accommodation in the private rented sector once they have been granted leave to remain in the UK. Interviews revealed that private landlords are currently wary about taking on new houses due to their uncertainty about the plans of the two universities to develop more halls and the increasingly significant role of privately managed developments. However, interviews with Coventry University suggest that good quality private rented accommodation will continue to be easily let to students over the coming years and it is the poorer accommodation that will remain un-let, or may then become available for other social groups such as refugees. Further work would need to be undertaken in order to establish what proportion of these houses would be taken up by other groups and what proportion would remain vacant. However, there may be some minor re-balancing in the supply-demand

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equation, as some landlords may decide not to continue letting to students as a result of the property improvements which are likely to apply in the private rented sector resulting from the Housing Act 2005 (see Section 5.5 below for details of this). How easily landlords are able to rent to other groups in the absence of students may influence the number of houses on the market in these areas and thus the affordability of such houses to local residents. However, it is often the case that such houses, once they have been adapted for the private rented market are often sold onto other landlords and do not prove popular for family residences. There may also be issues around whether other groups, such as families actually want to move into these areas if affordable market housing becomes available. Future demand for housing in the private rented sector is clearly directly related to the number of private student accommodation schemes that are developed in the city. An interview with UNITE (who has considerable experience of developing such schemes in Coventry) reveals that they believe that the large scale corporate developments will play a strong role in Coventry over the next few years. UNITE estimates that in 2004 the total existing corporate landlord accommodation is around 7% of the total HIMO sector. This compares to around 25% in cities such as Manchester, Liverpool and Leicester. Coventry University intends to rely on this sector rather than developing its own Halls, and UNITE report that demand for the newer development is strong in Coventry despite the higher cost to students (this type of accommodation is generally around £80 per week as against £50 in the private rented sector). Some corporate landlords mix student housing with key worker/affordable housing which can have obvious advantages where there are shortages of such housing, although the impacts/perceived impacts on the local community may be similar.

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3. Impacts on the Local Community

This Chapter identifies a number of issues relating to the impact of students on local communities and the impacts of over-concentrations of students that have been identified through conversations with the Universities and student representatives. This anecdotal evidence has been supplemented by information based on national research. These issues may not all be applicable specifically to Coventry, but they are raised as issues which have been shown to be of concern elsewhere. The Chapter goes on to set out a number of suggested solutions to some of the problems from local residents in areas where there are concentrations of students.

3.1 Benefits to the Local Community The key benefits to the local community of the two Universities and its students are set out below: • The role of Universities as key employers (for instance Coventry University employs around 2,500 FTE staff); • The role of Universities in the economy (in 2004, the University of Warwick was estimated to contribute around £1 billion annually to the local and regional economy – source ‘The University of Warwick Profile 2004’, and there are many spin-off companies based on University research). Figures for Coventry University indicate that in 1996/1997 the University added between £97 million and £106 million to local economic output, and the University was the ninth largest employer in Coventry (source: Coventry University’s Centre for Local Economic Development).

• The role of the Universities in providing social, cultural and sporting facilities for the wider Community;

• The impact of student spending (through landlords and local spending) on the local economy, supporting local services (particularly important role in supporting a number of bars/restaurants/take-aways/cinemas). Traditionally international students have had significant spending power; • Students remaining in Coventry following graduation, increasing the qualified labour force and the impact of increased spending on the local economy (for instance a number of the medical graduates from the University of Warwick will move into junior posts in the local NHS Trust, a number of nurses and midwifes from Coventry University will also work in local hospitals, and other students may set up businesses in the area); • Students tend to lead sustainable lifestyles and whilst a number do have cars, a large proportion use public transport/walk and cycle and use facilities at off-peak times; • Students add to the creation of a vibrant, dynamic and multicultural environment;

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• The University of Warwick has an Active Community Programme which provides significant benefits to the Community (for example it provides assistance to local schools and community groups and provides volunteers to help the community in a number of ways) and Coventry University also participates in the Horizon Scheme, a community volunteering scheme; and • The student population can assist in regeneration in areas where derelict properties are brought back into use.

3.2 Areas of Concern Key areas of concern associated with concentrations of students (particularly, but not exclusively in areas of private rented accommodation), based on interviews, anecdotal information, experience reported from elsewhere in the Country and national research are identified below. It should be noted that not all of these are issues which are a particular problem in Coventry and in many cases the problems are perceived rather than actual problems.

3.2.1 Physical Impacts and Occupancy Issues • Properties falling into disrepair with un-kept gardens, poor property maintenance, rubbish being left out (particularly a problem at term and year end) and letting boards never being removed;

• Parking issues, close to the University campuses and University accommodation. In areas of terraced housing there are particularly problems as there is often a shortage of parking spaces to start with, and residents have concerns about students taking up their spaces. Discussions with the Universities and the Council indicate that no specific surveys on student car ownership or parking habits have been undertaken. It should be noted that this is a problem in areas with a large number of HIMOs, not just in areas where there are a lot of students. There are also concerns about on street parking near the University, although according to Coventry University, it has sufficient spaces, but there is a problem that people are not always willing to pay for permits; • Where landlords are required to make changes to their properties to meet health and safety requirements, these often have a negative impact on the appearance of the property and thus result in the character of the area changing. There have also been concerns from local residents that these safety requirements often render a property unattractive for future family use, making it more likely that once the property is sold on, it will be sold to another landlord; • Increased rents in the private sector (in some cases forcing low income tenants to move out) and rising property prices due to increases in buy-to-let landlords. The increased property prices can prevent new families from moving into the area; and • The size of some new private developments is a concern to many residents as these are frequently providing for well over 200 bed spaces.

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Parking issues are a key area of concern amongst many residents. The main problems seem to be around the Coventry University campus, although there have been problems close to the University of Warwick campus in the past. Unless detailed parking studies are undertaken it is not possible to establish who is parking where, although a number of people have stated that the problem is much worse during term time. Coventry University estimates that it has around 500 staff parking spaces. A University survey indicated that the main pressure for on-street car parking near the University is from around 100 full time students, around 1,250 part-time students who are at the University about one day per week (therefore around 250 students per day) and staff who are not prepared to pay for car parks. A staff travel to work survey was undertaken at the University. This showed that just over half (55%) of all the staff in the survey drove to work, with just over 21% travelling by bus, 11% walking, and just over 3% travelling by train. An issue seems to be that a number of staff and students are not prepared to pay for parking. For instance Lyndon House has a car park, but no students take up the opportunity to buy permits. Singer Hall has around 200 parking spaces, and this is rarely full, again illustrating that there are spaces available, but that staff/students are not prepared to pay to use them. However, it is clear that it is not only staff and students of the University who are not prepared to pay for parking. A number of parking spaces in residential streets around the central area of Coventry are taken up by commuters working in the centre of Coventry. At the University of Warwick, there are around 3,950 parking spaces (of which 30 are for visitors only, and 373 are permit/staff only). Over the past few years the University has funded a resident’s parking scheme in the area around the University where it was recognised that there was a problem with students parking.

3.2.2 Social and Demographic Impacts • Low levels of anti-social behaviour (including noise and lack of consideration for neighbours and petty vandalism/pranks); • Student areas are often areas with high rates of burglary due to students not being as aware about security and there is often lots of expensive equipment (stereos, PCs etc) in student houses; • Lack of community spirit (not helped by frequent changes of tenants and the seasonal nature of the student population); • The nature of the student population results in an imbalance in the population, and has in places led to the closure of primary schools. There is no evidence to suggest that this has happened in Coventry. However, residents in parts of Coventry have concerns about falling rolls in secondary schools and the changing mix of pupils; • Alienation of non student residents;

• Student areas can be characterised by an over concentration of bars and take-aways which is not always seen as desirable, although there is not a significant amount of evidence to suggest that this is the case in Coventry. Concerns have also been raised about the nature of local shops and what they stock being changed to reflect the needs of students and single people. Related to this are concerns that local services have begun to disappear (such as milk deliveries, window cleaners, newspaper deliveries etc.), although this may well be a trend generally; and

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In some areas the more recent increase in new private student developments has resulted in fewer students living in private rented accommodation and in some cases there is a perception that these students have been replaced by problem tenants. In some cases students are not replaced, resulting in vacant properties falling into disrepair.

3.2.3 Possible Solutions Suggested by Local Residents A number of solutions to problems/perceived problems associated with concentrations of students in certain parts of the City have been suggested by local resident group representatives. These are summarised below: • There should be a restriction on the proportion of properties allowed for use as HIMO/student accommodation; • There should be better regulation of landlords;

• Property standards should be introduced, and these should be in keeping with the surrounding area to include maintenance of front gardens. Community Caretakers could be employed in areas with lots of HIMOs. • More resources need to be made available to enable Planning Control and Enforcement to police HIMOs. • The only solution in some areas to ensure that there is a more balanced population is for direct action to be taken, for instance, to purchase, renovate and conserve, and resell under restrictive covenants. • Agreements with the University to only let properties to non-car owners. This has happened on a small scale in parts of Coventry already, but has in some cases just shifted parking problems to streets further away. • ‘Areas of Local Distinctiveness’ should be created in order to encourage enhancement schemes.

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4. National Case Studies

Approaches to planning for student accommodation vary between authorities, although very few authorities have approved SPD specifically relating to student accommodation. A number of Universities have their own campus development plans, as the University of Warwick does. However, the trend for the development of more off campus student accommodation and increasing student numbers in certain cities is resulting in significant concentrations of students in certain areas and has led to the need to provide further guidance for student accommodation development. The majority of the authorities below are in the process of preparing such SPDs or guidance on student accommodation, although Leeds is setting out detailed policies, including a restraint policy in its UDP Review. In the case of Nottingham City, following consultation and legal advice a Revised Draft SPD has been prepared. It is therefore considered that the following short summaries of the approaches different authorities (mostly urban) are proposing to student accommodation is useful. This experience raises a number of issues which may be useful to consider in relation to Coventry.

4.1 Leeds City Council The Leeds City Council UDP Review (Revised Deposit, March 2004) includes a section on student housing. In some core areas of Leeds students comprise 50 to 100% of the population and in the surrounding areas they comprise more than 20%. Areas of concern are identified as being those residential areas just beyond the core and surrounding areas which have a smaller student population, but are under pressure from investors. The Plan proposes the boundary of the Area of Student Housing Restraint (ASHORE) be drawn widely to embrace not only areas with an existing high concentration of students but adjoining areas under pressure. This excludes the campuses and areas particularly well related to the campuses. Within the ASHORE, student halls and alterations to existing halls resulting in an increase in bed spaces will not be permitted. Also in these areas, extensions to existing student housing resulting in an increase in habitable rooms will not be permitted, and houses in multiple occupancy and flats of three or more bedrooms (unless subject to an occupation condition prohibiting occupation by full time students) will not be permitted. The ASHORE is identified as an area policy initiative where the manifest problems of a concentrated student population will be addressed in partnership with the local community, other service providers, the Universities, Unipol (non profit making organisation that provides accommodation for students in Leeds) and landlords. The Inspector’s Report is due to be published at the end of 2005. Leeds has been one of the leading authorities in attempting to manage the provision of student housing through a multi agency approach to problem solving.

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4.2 Nottingham City Council In 2003 the City Council produced draft SPD for the development of family housing and student housing entitled “Building Balanced Communities: New Housing Development in Nottingham City”. The draft encouraged the provision of more family housing on appropriate sites, and set an 80% family housing target for new residential sites outside the city centre and regeneration zones. It proposed a ‘Student Housing Restraint Area’ (ASHORE), and encouraged the provision of purpose built and managed student accommodation in specific locations. Substantial comments were received during consultation on this draft, particularly concerning the restriction of student accommodation. There was strong support from members of the community for the ASHORE approach, but there was concern from others about recent appeal decisions and the link between the area of restraint, policies in the Local Plan Review and existing case law. This led the Council to seek clarification on certain issues, in particular the 80% target for family housing and the ASHORE. Following legal advice, Nottingham City has now produced a revised draft SPD for public consultation. Specifically relating to the ASHORE, the advice concluded that given existing case law, it would be difficult to argue that the area of restraint was supplementary to any policies in the Local Plan, and so introducing the concept via a SPD would not be in accordance with government advice and would be open to challenge. It was noted that elsewhere in the country the approach is being promoted through Unitary Development Plans (e.g. Leeds). The advice also stated that an Article 4 Direction removing permitted development rights based on the area of restraint would be unlikely to be supported by the Secretary of State. Therefore key changes made to the draft SPD (relating to student accommodation) are as follows: • The area of restraint is replaced with a criteria based approach, which has regard to the level of student households and numbers of students in a locality. • This approach linked more explicitly with policies in the Local Plan Review.

• A re-worded occupation condition targeted specifically at student households. • Issues concerning retail and leisure facilities and design of purpose built student housing area already adequately covered through existing Local Plan Review policies. The SPD continues the approach to encouraging a greater level of provision of purpose built student accommodation to exceed the growth in student number, and thus free up existing family housing occupied by students for more general occupation. The Committee Report on the revised draft SPD (City Council, 25 th July 2005) states that there is evidence to suggest that this policy may be beginning to work. Between 2003/04 and 2004/05, the number of new bed spaces exceeded the growth in student living in the City, and it is anticipated that the shift in students living in private accommodation to purpose built accommodation should accelerate as new schemes become available over the next few years. It is noted that there are currently a further 4,648 bed spaces under construction, 546 with planning permission, and 549 in pending planning applications.

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The main approach with regard to student accommodation in the city is to divert students from the general housing market (in particular areas of over-concentration) into purpose built student accommodation in appropriate locations, and to improve the environmental conditions in areas dominated by students. In the SPD the Council seeks to minimise impacts of purpose built accommodation on the community, but also find locations which are attractive to students. Consequently, the City Council has identified three general locations in which further purpose built student accommodation is considered appropriate (these include locations on campus and in regeneration zones).

The Local Plan Review contains relevant policies on sustainable communities, density, appropriate housing types, student housing, and layout and community safety.

4.3 Charnwood Borough Council In February 2005 the Borough Council produced Consultation Draft SPD for student housing provision, specifically relating to Loughborough University. This Draft consisted of five options, as follows: Option 1 - Existing approach , without defining an “Area of Student Housing Restraint” (ASHORE). Option 2 - “Leeds” style “ASHORE” with a defined ASHORE. No purpose built managed student housing would be permitted in the ASHORE, no conversion of larger properties to student accommodation, no extensions to properties to allow them to become residences for students, planning conditions on new houses to prevent occupation by students, removal of permitted development rights, discretionary licensing to control untidiness to front gardens, sites for purpose built managed student housing identified outside ASHORE. Option 3 - Modified ASHORE which would be the same as Option 2 above, but would include sites for purpose built managed student housing inside and outside the ASHORE. Planning conditions would not be used to prevent occupation of new housing by students as this has been held to be unreasonable by the Planning Inspectorate. Option 4 - Targeted Approach which identifies two zones, an inner and outer zone. Within the Inner Zone no new purpose built managed student housing or extensions to existing, no conversion of larger properties to student accommodation, no extensions to properties that would allow them to become unmanaged residences for students, control over extensions that would increase the amount of people living in the area and decrease garden space, remove permitted development rights and bring in discretionary licensing to control untidiness in front gardens. Within the Outer Zone sites identified for new purpose built managed student housing in outer zone and town centre, no conversion of larger properties to student accommodation, and control over extensions that would increase the amount of people living in the area and decrease garden space. Option 4a - Annual Targeted Approach As Option 4, except the definition of the Inner and Outer Zones would be subject to an annual review and adjustment as necessary.

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Option 5 - Threshold Approach which would apply to an area where student numbers are considered too high. Within these areas, sites would be specifically identified for purpose built managed student properties, no extension in existing student halls where this would cause excessive noise/disturbance, no conversion of larger properties to student accommodation, no extensions to properties that would increase the amount of people living in an area and decrease the amount of garden space, control over extensions that would increase the amount of people living in the area and decrease the amount of garden space, bring in discretionary licensing and remove permitted development rights.

4.4 Birmingham City Council In July 2001, Birmingham City Council adopted the Selly Oak Local Action Plan. This defines a vision for the area, sets out broad policies and principles for regeneration based on this vision and provides development guidance for a number of specific sites. This area includes Birmingham University and a new hospital site. An ‘Area of Restraint’ to restrict the growth of restaurants, take-aways and pubs (A3) is identified. The increases in provision of such uses in the area are seen to be a direct result of the increase in student population. In order to encourage tenure diversity, the Plan identifies sites that will be suitable for a mix of housing (but not student housing). It identifies an ‘Area of Restraint’ (AoR) where proposals for purpose built student accommodation may be refused and limited areas where purpose built student accommodation should be provided. This is only required to provide limited parking spaces, unless developers can show evidence, on road safety and traffic management grounds that it is essential that more be provided. The Plan states that the possibility of using legal agreements to restrict occupancy to those who do not own a car should be explored. It also encourages appropriate management arrangements including 24 hour on site supervision to restrict noise and disturbance. The AoR was identified due to concerns about the high density of development in the area, not just to deal with student housing. The Plan also identifies a number of initiatives in the area which aim to tackle behavioural/housing maintenance problems.

4.4.1 Implementation Since the Action Plan was adopted in 2001, a number of applications for student development in the AoR have been submitted. Prior to finalisation of the draft Action Plan, one application for student accommodation in the proposed AoR area went to Appeal. The site was located in an area identified as being suitable for a mix of housing, but not student accommodation. The Inspector considered that this approach was not consistent with the Government’s position, expressed in paragraph 10 of PPG3 where the Government states that ‘it does not accept that different types of housing and tenures make bad neighbours.’ It is understood that developers have been trying to get around the AoR issue, by proposing a mix of student and other housing development or other uses. It is understood that there have been a number of proposals for student accommodation just beyond the AoR, perhaps shifting pressure to the fringes of this area.

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4.5 Key Issues

4.5.1 Issues of Consultation and Presentation As the above cases demonstrate there are clearly issues around the most appropriate way of introducing an Area of Restraint if this approach is to be taken. If introduced through SPD it needs to very clearly link to policies in the UDP or LDF. At Charnwood, consultation was undertaken on options, prior to taking any of these forward into draft SPD. Consultation on the approach is clearly very important given that planning for student accommodation is potentially a controversial issue amongst the local communities affected by large student populations and developers of student accommodation.

4.5.2 Issues of Implementation and Legal Issues The Leeds ASHORE is being implemented through the UDP which will be subject to independent examination. The Nottingham and Charnwood draft SPDs are based on relatively detailed plan policies relating to student accommodation. The Coventry UDP does not include such detailed policies on student accommodation. It is important to note that a number of the cities where the Area of Restraint is being introduced or considered have much higher concentrations of students than Coventry in particular areas. Detail on this is provided in section 2.3.7 above. It may therefore be much more appropriate to introduce criteria based policies to deal with the issues around over-concentration of students in certain areas. It is clear that an ASHORE and a very specific criteria based policy could not be introduced in Coventry through SPD as there is no policy in the Adopted UDP for this to link to. The most appropriate approach would either be to introduce a detailed criteria based policy through the City’s local development document (LDD) or through an SPD linked to a specific policy in the LDD. As the above SPDs, with the exception of the Selly Oak Local Action Plan in Birmingham have not yet been adopted, experience of implementation is limited, although the Birmingham case demonstrates that its Area of Restraint has not been entirely successful in that it may simply be pushing problems elsewhere, and may not stand up to legal scrutiny. There are clearly a number of issues that are proposed as being dealt with through conditions or Section 106 Agreements as part of new purpose built student accommodation schemes in the SPDs. However, it should be noted that these are not always entirely successful. Coventry University has expressed concerns about agreements stating that students living in such developments cannot bring their cars within a certain distance of the development, often resulting in students parking in surrounding streets and causing problems elsewhere. Coventry University has sought legal advice on these issues and has concluded that these agreements may not accord with European law. It is important to be aware of, and to make the public aware of, through the consultation exercise what can and cannot be controlled through the planning system. For instance in Charnwood it was specifically stated that planning conditions would not be used to prevent occupation of new housing by students as this has been held to be unreasonable by the Planning Inspectorate. In the revised Draft Nottingham SPD it is made clear that the numbers of students in student households cannot be controlled through the planning system.

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5. Options and Recommendations for Supplementary Planning Document

5.1 Introduction This report has outlined the baseline information and likely future trends in student accommodation in the City. Whilst student numbers in the City are not anticipated to grow significantly over the next few years, some growth is anticipated, and the University of Warwick is already undertaking detailed work through the review of its campus development plan to set out the most appropriate way of accommodating its students in future. Coventry University also expects to see a growth in student numbers but has traditionally taken a very different approach and has not provided its own student accommodation to the same degree. In future, we understand that the University intends to rely more on corporate private student development schemes of which recently there have already been several in the City with several more schemes with planning permission. Private rented accommodation and the older HIMO housing stock will still play an important role in providing student accommodation in the City, but the demand for such accommodation seems unlikely to significantly increase if students gravitate towards the newer accommodation. As referred to in the introductory chapter, Government policy (PPS12) and guidance (Companion Guide to PPS12) states that SPDs should not set out policies that should be subject to proper independent examination. An ASHORE or detailed constraint policy in Coventry would have to be introduced through the City’s local development document (LDD) when this is prepared or through an SPD linked to a specific policy in the LDD.

5.2 Area of Student Housing Restraint (ASHORE)/Criteria Based Constraint Policy The approach to identifying an ASHORE is being considered by other authorities in the production of their SPDs. It was proposed to be taken forward in Nottingham (although this is now being reviewed) and Leeds (through its UDP Review) and is proposed as an option in Charnwood. If the ASHORE approach was successfully implemented and enforced it could assist in slowing the increase in the student population in areas of over-concentration. The Council might still not be able to control students living in private rented accommodation other than possibly through the use of restrictions on extensions to existing houses occupied by students or via housing management measures for certain HIMOs. There are a number of legal issues associated with ASHOREs and the refusal of planning permission for student developments. As noted in section 2.3.7 of this report concentrations of students in Coventry are not as high as in the other cities that are proposing such an approach. In Coventry there is also more of a spread of students throughout the city, with concentration in the central area associated with Coventry University students and a concentration to the south west associated mainly with students from the University of Warwick, but also with Coventry University students.

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If the ASHORE approach was considered appropriate, this could be based on the Output Area (OA) data which is set out in Chapter 2 of this report and which identifies the percentage of students in various OAs, although the Charnwood SPD notes that a recent appeal decision in Nottingham held that Output Area data was statistically unreliable as an area in assessing the potential impact of additional housing. It is considered that wards are too large an area to be used for these purposes. Work undertaken in Charnwood Borough suggests that Council Tax data may be used to more effectively identify student households as all student households are exempt from paying Council Tax. Both the Output Area and Council Tax approach to identifying areas with high student numbers are likely to require regular review, as the populations in each of the identified areas will be constantly changing. More effective is likely to be an approach which uses Output Areas as a starting point but then defines an ASHORE via some empirical research (street visits during term time to highlight areas where student impacts are seen to be greatest). There is also a more general problem with the ASHORE approach in that the areas beyond the ASHORE could become more vulnerable to new student accommodation and simple ‘displacement’ of development would occur. There are clearly a number of options within the ASHORE approach which can be considered in more detail should the Council wish to go down this route. A number of these are identified in Chapter 4 as options that were put forward in Charnwood Borough. From the review of the approaches that other authorities are taking and the analysis of data on the student population in Coventry, the ASHORE approach is not necessarily considered to be the most appropriate for Coventry. A detailed criteria based policy either in the LDD or SPD to accompany the LDD may be more appropriate.

5.3 Suitable Locations for New Student Accommodation The SPD could, instead of operating in a negative way (as with an ASHORE), work positively, making reference to suitable locations for new student accommodation, including locations already identified for new student accommodation, such as those that will be identified through the University of Warwick Development Plan once it is adopted, through the Adopted Coventry UDP Policies and through emerging LDD policies. The SPD could also identify other areas where student accommodation is likely to be appropriate, such as on the University campuses and in areas where such development will assist in regenerating an area, perhaps areas such as Canley. In such areas it is likely to be appropriate to encourage mixed use applications, for example applications incorporating retail units with student accommodation and possibly incorporating affordable or key worker housing. These locations would need to be on good public transport routes to the University and City Centre. Concerns have been expressed about the nature of possible student locations, as safety needs to be a key consideration when a number of young people are ‘living on their own’ and are often out in the evenings. There have been suggestions that the option of creating a student village should be investigated. Suggestions include a location close to the new Swanswell learning village or as part of the Phoenix development. The City Council may be aware of other sites, perhaps sites that are allocated for employment development and are surplus to requirements that would be appropriate for new student accommodation.

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The Nottingham approach is interesting in that it seeks to encourage large scale purpose built schemes (through a criteria based policy) in order to reduce the numbers of students in private rented accommodation, to enable such housing to become family housing. This is based on having regard to existing student numbers in a locality. One of the issues with this approach is that such large scale schemes can have a significant impact on the character of areas as much as large numbers of students in private rented accommodation. In terms of impact on the community, there are still likely to be issues around car parking, although it is likely that anti- social behaviour may reduce slightly as a result of stricter management within such schemes. If Coventry was to encourage large numbers of new purpose built schemes in order to reduce the number of students living in private rented accommodation this could result in more housing coming back onto the market for local people, for instance this would probably be the case in areas such as Earlsdon, but in some areas it could also result in other social groups replacing students or houses remaining empty. This is perhaps more likely to be the case in areas around Coventry University. Detailed work on the housing market in these areas would need to be undertaken in order to provide a more informed view on what is likely to happen under these circumstances. The Revised Draft Nottingham SPD is linked to wider sustainable community objectives, rather than simply focusing on student accommodation. This approach may be considered appropriate in Coventry if there is a need to address these wider issues, although there is a danger that this may result in weakening the case for the control of student housing.

5.4 Detailed Criteria for New Accommodation SPD should set out detailed criteria for the development of student accommodation, linked to a section specifically on design. This could include criteria relating to proximity to public transport and local services, density, parking, the need for appropriate security measures and control measures (such as on-site wardens for developments over a certain size), and safeguarding the amenity of neighbouring residences. Specific design guidance could be included relating to issues such as scale, massing, mixed uses and overall design, to include the need for CCTV, good lighting and visibility. Guidance on anti-social behaviour and schemes to tackle this would be sought from the Community Safety Partnership. This should also include advice on issues that could be subject to planning conditions and Section 106 Agreements. This may even go as far as providing example conditions relating to security, maintenance, car parking, lighting, cycle parking etc. Such criteria would need to cross refer to the new ‘Code of Practice for the Management of Student Housing’ which is being produced by ODPM (see section 5.5.3 below for details of this).

5.5 Management and Legal Issues

5.5.1 Housing Act 2004 The implications of the Housing Act 2004 are potentially significant for private landlords letting student accommodation. The main change affects dwellings which are not self contained flats (will be exempted from HIMO standards). Under the Act, HIMO standards will apply to private student lets where there are three or more students (none living as a couple) undertaking a full time course or in higher education. It is therefore likely that students will not be construed as a

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‘single household’ (with familial relationships) and thus landlords will have, in many cases to bring their properties up to a higher standard. The Housing Department estimate that around 4,000 new units in HIMOs will be created by the Housing Act. The main cost implications will relate to fire doors and alarm systems (particularly smoke detector) systems and the estimated cost per property is at least £3,000. This could cause some landlords to think again about the student market, and there could be a knee-jerk reaction in some quarters, although overall the numbers withdrawing from the market altogether are expected to be small. It is unlikely that a large number of properties would end up on the market as a result of this. From October 2004, local authorities have a duty to licence any HIMOs that are three storeys or over and are occupied by five or more persons. This is known as mandatory licensing. Local authorities can also apply to license other types of HIMO, or housing in specific areas. However, this ‘additional’ licensing is not straightforward and local authorities will have to show that they have undertaken other measures (e.g. accreditation schemes or community warden schemes) before a designated licence will be approved. Licensed properties will have to be fit and proper for purpose under Schedule 14 of the Housing Act. Educational establishments are exempted from being licensed provided that they have can show they have an approved code of practice in operation. In the case of Coventry, any property that is currently accredited will be given a reduced licensing fee.

5.5.2 Conversions and the Housing Act It will be particularly important that following the Housing Act 2004, the City’s Planning Department are aware of the new regulations when granting planning permission for conversions involving students. All conversions creating student accommodation on a room by room basis will be subject to much higher standards of regulation in the future. It will be important to avoid a situation whereby a landlord is given permission to convert, only to find that they are pursued immediately afterwards to bring the property up to standard. It is critical that Housing and Planning Departments work closely together where new applications are being considered. Planners must understand the definition of a HIMO under the new Act.

5.5.3 ODPM Consultation Draft Code of Practice for the Management of Student Housing (April 2005) The new ‘Code of Practice for the Management of Student Housing’ is being produced by ODPM and is currently at consultation draft stage, although ODPM hopes to implement this by Autumn 2005. This code will apply to all student housing managed or controlled by the higher education institutions listed in the Code. Higher Education accommodation is not exempt from the relevant provisions of the 2004 Housing Act (see section 5.5.1 above). At this stage it is not really possible to predict the impact of the stricter regulation of student housing through the introduction of the Housing Act and the Code of Practice. Clearly the impacts will be greatest where landlord housing is in poor condition, but there will undoubtedly be a significant number of landlords who will make the necessary improvements since student housing is still likely to prove a good investment. There has however been anecdotal evidence to suggest that the more ‘flighty’ (Buy to Let) landlords may already be leaving the market. 5.6 Stakeholder Involvement To ensure that SPD is as effective as possible it is important to get involvement and support from key stakeholders. Discussions have already taken place with a number of the key

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stakeholders and when draft SPD is prepared there will need to be further consultation, most likely involving the public. The draft SPD will then go through the formal consultation process undertaken by the City Council. It is particularly important to have support from the Universities, the local community, developers, service providers and landlords. 5.7 Conclusions According to University figures, there are currently just under 25,000 full time undergraduates and postgraduates in Coventry City’s district. Both Universities have seen increases in the number of students over recent years, with the University of Warwick experiencing the greatest growth. Both Universities have plans to continue to grow over the next 5 years and beyond. Coventry University expects an increase of around 3,000 FTE students over the next five years, while the University of Warwick expects to see an increase of over 4,000 FTEs over the next nine years. Nationally, there is a significant degree of uncertainty about the ability to grow student numbers towards a 50% target (as proposed in the “The Future of Higher Education” White Paper). Where there is growth, it looks likely to be highest in foundation degrees and in industry linked part time courses, which should not put too much stress on the current stock of student housing. Our research shows that there is a finely balanced supply-demand equation at the current time, with some neighbourhoods even exhibiting over supply of private rented accommodation. There are currently plans for new private student accommodation schemes and the University of Warwick has plans for 1,200 additional campus bed spaces, while Coventry University anticipates a need for 1,000 bed spaces to be provided through private development. It is likely that there will continue to be a number of speculative applications for larger student accommodation schemes to meet the need for higher quality and better managed accommodation. Corporate landlords have indicated that there is considerable demand for such schemes in Coventry, and that they will not have difficulty letting to students. We estimate that there is sufficient private rented accommodation in the city to meet immediate student demand, and we believe that the modest growth in demand for accommodation will be soaked up by the private corporate sector to a significant extent, leaving the demand for existing and older private stock relatively unchanged. This is still a significant number of students, particularly Coventry students who rely on the older private sector, although the private corporate sector is, according to our findings, fairly confident that students will move into newer accommodation providing that it is competitively priced. Nottingham has taken the view that new corporate developments should be encouraged, and that as more students move into managed accommodation there is more family housing available, creating more mixed communities. If Coventry allowed a significant number of new private schemes it is likely that fewer students would rent in the private sector. In some areas such as Earlsdon this may be beneficial, freeing up more market or rented housing for local people. However, there is also a danger that students are replaced by asylum seekers and other social groups perhaps considered to be ‘less desirable’ by the local community, or that houses remain empty. The extent to which this would happen is unknown. It is vital that any policy on student housing in the LDD/SPD is closely linked to the City’s views and visions on how best to encourage regeneration and sustainable communities. The location of new student housing development has to be a key issue in considering how best to balance local communities. There are clearly concerns about the imbalance in population in

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certain parts of the city, for instance in one of the Earlsdon Output Areas (OAs) where students make up almost 30% of all households. Students make up around 20% of households in 3 other OAs. There are a number of OAs where the percentage is between 10 and 20%. In Charnwood Borough, observations by local residents suggested that the critical threshold between a balanced and non-balanced community is around 25% students. However, a community is not necessarily made up of one or two OAs, so the percentage of students will vary depending on the area defining the community. However, these percentage are generally not as high as in the other cities proposing SPD to control student housing. There is a balance to be struck in considering planning applications in areas where the student population is already high. A large development could make a major impact in changing the nature of an area; at the same time, it could relieve pressure in a number of other areas where students are not ideally placed. Detailed criteria for new student accommodation could assist in directing such developments to more appropriate areas and where they are proposed in these areas it could assist in ensuring that impacts are reduced. It is considered that this approach may be more acceptable than the ASHORE approach, and the latter may require considerable legal advice. A positive approach to locating new student housing developments, combined with a tighter management and accreditation process for student housing in the older stock, may provide a more realistic way ahead. This approach should consider the needs of the community as a whole and seek to ensure that the population is as balanced as possible, whilst addressing the specific needs of students.

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Appendix A List of Interviewees/Telephone Discussions/Comments Received

During the information gathering stages, the following people have been interviewed or information has been obtained through telephone conversations with the following:

City Council Mike Campbell, Landlord Accreditation Officer Helen Caves, Principal Environmental Health Officer Ian Prowse, Development Control Rhoda Hickman, Development Control Coventry University Professor Pennington, Pro-Vice Chancellor Christine Morgan (Halls Manager) Margaret Gibson (Accommodation Service) Ama Uzowuru, Education and Welfare Officer, Coventry University Students Union Ken Schafer (Accommodation Director) The University of Warwick Kate Dodd (Director, Student and Ancillary Services) Clive Dove-Dixon (Director of Warwick Retail) Matthew Scott (Accommodation Manager) Wendy Roberts (General Manager, Accommodation) Trevor Seeley, Community Relations Manager Carly Braddock, Welfare and Equal Opportunities Officer, Students Union Mike Best, Turley Associates (preparing University Development Plan and represent UNITE) Bob Wilson, Director of Estates Further Education Colleges and Hospital Bernadette Thompson, City College Matthew Self, City College Sheila Broad, Accommodation Officer, Henley College Linda Feecham, Head of Care, Hereward College Carol Gray, Walsgrave Hospital Community/University David Malcolm, Accommodation Officer, National Union of Students Steve Mills, Crime Reduction, Coventry Community Safety Scheme Team, Little Park Police Station Andrea Clements, Crime Reduction Co-ordinator, Coventry Community Safety Scheme Team Nigel Barclay, Local Economic Development Research Unit, Coventry University Coventry City Council Research and Strategy Team Sheila Adams, Earlsdon Residents Association Malcolm Adkins, Spon End and Lower Coundon Red Brick

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Lynne Wilkins, Spon End Red Brick and Chapelfields Area Residents and Traders Association Kevin Noble (ex Spon End and Lower Coundon Red Brick) Mr. Griffiths, Charterhouse Residents Group Bill Beverage, Sky Blue Residents Association Estate Agents/Landlords James Gareth, Archer Bassett and Company Jo Maher, Alternative Estates Thalia Karabulat, Bradford and Bingley Locke and England Fran Marsh, Pettifer Estate Agents Sharon Okane, Cartwright Marston Bob Townsend, Townsends Independent Estate Agents Tony Twigger, Coopers Residential Lettings Centre Mike Nicolage, Heart Property Services Developers John Whittle, UNITE Other Local Authorities Uyen Phan Van, Birmingham City Council Guy Longley, Charnwood Borough Council Karen Shaw, Nottingham City

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Appendix B Student Numbers by Census Output Area with Wards Overlaid

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Appendix C Maps of Coventry Output Areas with the Highest Student Concentrations

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