Contents

Introduction 1 Introduction 2

2 Space Standards 2

3 Demonstrating Need 4 3.1 Need 5 3.2 Viability 9 3.3 Timing 9

4 Summary 9

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1.1 A lack of space in a home can compromise basic lifestyle needs and have negative impacts on living standards. Research (i) suggests that new build homes are often too small for the needs of people who buy them and are often perceived as impractical for modern daily living. Lack of adequate space and overcrowding has been shown to have significant impacts on health, educational attainment and family relationships. Government Guidance identifies that lack of space and overcrowding has been linked to psychological distress and various mental disorders. It is also linked to increased heart rate, increased perspiration, intolerance, inability to concentrate, hygiene risks, accidents and spread of contagious disease.

1.2 In 2015 the government set out in a Written Ministerial Statement (ii) on a new approach to housing technical standards for England. This included optional standards in relation to access, water efficiency and internal space standards, called the 'Nationally Described Space Standard (NDSS)'. These rationalised standards exceed the minimum standards required through Building Regulations. They aim to provide a simpler, more streamlined planning process for developers helping with the overarching aim of delivering more high quality, accessible and sustainable new homes.

1.3 From 1st October 2015, local authorities have had the option to apply these additional technical requirements through the statutory development plan (the County Durham Plan). In order to do so, a local authority must demonstrate that there is both a need for the standard and that they have considered the viability implications of adopting them. This report sets out the evidence that demonstrates the need to implement the Nationally Described Space Standard. Once the County Durham Plan has been adopted, the standard will be applied as a planning condition when granting planning permission.

1.4 Durham County Council does not currently impose internal space standards through planning policies. As part of the Duty to Co-operate, however, the council are aware that many of the authorities within the North East are either intending to apply the standard through their various draft plans, or have secured a policy within their adopted plan, establishing a consistent regional approach for house builders to adapt to.

2.1 The Government’s Nationally Described Space Standard deals with internal space within new dwellings and is suitable for application across all tenures(iii). It sets out requirements for the Gross Internal (floor) Area of new dwellings at a defined level of occupancy as well as floor areas and dimensions for key parts of the home, notably bedrooms, storage and floor to ceiling height. The requirements are relevant only in respect to new dwellings.

2.2 The standard requires that:

a. The dwelling provides at least the gross internal floor area and built-in storage area (set out in the table below) b. A dwelling with two or more bedspaces has at least one double (or twin) bedroom c. In order to provide one bedspace, a single bedroom has a floor area of at least 7.5m² and is at least 2.15m wide d. In order to provide two bedspaces, a double (or twin bedroom) has a floor area of at least 11.5m² e. One double (or twin bedroom) is at least 2.75m wide and every other double (or twin) bedroom is at least 2.55m wide f. Any area with a headroom of less than 1.5m is not counted within the Gross Internal Area unless used solely for storage (if the area under the stairs is to be used for storage, assume a general floor area of 1m² within the Gross Internal Area)

i RIBA Studies (Various) & Quantifying the extent of space shortages: English dwellings, Building Research & Information (Malcolm Morgan & Heather Cruickshank (2014)) ii https://www.gov.uk/government/speeches/planning-update-march-2015 iii Furnished layouts are not required to demonstrate compliance

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g. Any other area that is used solely for storage and has a headroom of 900-1500mm (such as under eaves) is counted at 50% of its floor area, and any area lower than 900mm is not counted at all h. A built-in wardrobe counts towards the Gross Internal Area and bedroom floor area requirements, but should not reduce the effective width of the room below the minimum widths set out above. The built-in area in excess of 0.72m² in a double bedroom and 0.36m² in a single bedroom counts towards the built-in storage requirement i. The minimum floor to ceiling height is 2.3m for at least 75% of the Gross Internal Area

2.3 The standard Gross Internal Areas (GIAs) set out in Table 1 below are organised by storey height to take account of the extra circulation space needed for stairs to upper floors, and deal separately with one storey dwellings (typically flats) and two and three storey dwellings (typically houses).

Table 1 Table 1: Minimum gross internal floor areas and storage (m2)

Number of Number of 1 storey 2 storey 3 storey Built-in bedrooms (b) bedspaces dwellings(iv) dwellings(v) dwellings(vi) storage (persons) (m²)(vii)

1b 1p 39 (37)(viii)m² 1.0

2p 50 58 1.5

2b 3p 61 70 2.0

4p 70 79

3b 4p 74 84 90 2.5

5p 86 93 99

6p 95 102 108

4b 5p 90 97 103 3.0

6p 99 106 112

7p 108 115 121

8p 117 124 130

5b 6p 103 110 116 3.5

7p 112 119 125

8p 121 128 134

vii Built-in storage areas are included within the overall GIAs and include allowance of 0.5m² for fixed services or equipment such as a hot water cylinder, boiler or heat exchanger vi GIAs for three storey dwellings include enough space for one bathroom and one additional WC (or shower room). Additional sanitary facilities may be included without increasing the GIA provided that all aspects of the space standards have been met. v GIAs for two storey dwellings include enough space for one bathroom and one additional WC (or shower room). Additional sanitary facilities may be included without increasing the GIA provided that all aspects of the space standards have been met. iv GIAs for one storey dwellings include enough space for one bathroom and one additional WC (or shower room) in dwellings with 5 or more bedspaces. Additional sanitary facilities may be included without increasing the GIA provided that all aspects of the space standards have been met. viii Where a 1bedspace 1person dwelling has a shower room instead of a bathroom, the floor area may be reduced from 39m² to 37

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Number of Number of 1 storey 2 storey 3 storey Built-in bedrooms (b) bedspaces dwellings(iv) dwellings(v) dwellings(vi) storage (persons) (m²)(vii)

6b 7p 116 123 129 4.0

8p 125 132 138

2.4 Individual dwelling types are expressed with reference to the number of bedrooms (denoted as ‘b’) and the number of bedspaces (or people) that can be accommodated (denoted as ‘p’). A three bedroom home, with one double bedroom (providing two bed spaces) and two single bedrooms (each providing one bed space), is therefore described as '3b4p'. The number of floors, or storeys, is denoted with an 's'.

2.5 The breakdown of the minimum Gross Internal Area allows not only for the different combinations of bedroom size, but also for varying amounts of additional living, dining, kitchen and storage space - all of which are related to the potential occupancy of the dwelling.

2.6 Minimum floor areas and room widths for bedrooms and minimum floor areas for storage are also an integral part of the space standard. The Gross Internal Area of a dwelling is defined as the total floor space measured between the internal faces of perimeter walls(ix) that enclose the dwelling. This includes partitions, structural elements, cupboards, ducts, flights of stairs and voids above stairs. The Gross Internal Area should be measured and denoted in square metres (m²).

2.7 The Gross Internal Areas in this standard will not be adequate for wheelchair housing (Category 3 homes in Part M of the Building Regulations) where additional internal area is required to accommodate increased circulation and functionality to meet the needs of wheelchair households.

3.1 When considering whether or not to adopt these space standards, local authorities should take account of the following matters:

Need – evidence should be provided on the size and type of dwellings currently being built in the area, to ensure the impacts of adopting space standards can be properly assessed; Viability – the impact of adopting the space standard should be considered as part of a plan’s viability assessment with account taken of the impact of potentially larger dwellings on land supply. Local planning authorities will also need to consider impacts on affordability where a space standard is to be adopted; and Timing – there may need to be a reasonable transitional period following adoption of a new policy on space standards to enable developers to factor the cost of space standards into future land acquisitions.

vii Built-in storage areas are included within the overall GIAs and include allowance of 0.5m² for fixed services or equipment such as a hot water cylinder, boiler or heat exchanger vi GIAs for three storey dwellings include enough space for one bathroom and one additional WC (or shower room). Additional sanitary facilities may be included without increasing the GIA provided that all aspects of the space standards have been met. v GIAs for two storey dwellings include enough space for one bathroom and one additional WC (or shower room). Additional sanitary facilities may be included without increasing the GIA provided that all aspects of the space standards have been met. iv GIAs for one storey dwellings include enough space for one bathroom and one additional WC (or shower room) in dwellings with 5 or more bedspaces. Additional sanitary facilities may be included without increasing the GIA provided that all aspects of the space standards have been met. ix The internal face of a perimeter wall is the finished surface of the wall. For a detached house, the perimeter walls are the external walls that enclose the dwelling, and for other houses or apartments they are the external walls and party walls

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3.1 Need

3.2 A sample of recent housing schemes have been reviewed to analyse the internal space standards of dwellings in the county. This review focuses on a sample of major schemes, including some recently built and some with full planning permission. The schemes were chosen from across the county, ensuring a range of local market value and viability contexts. The study includes many of the main house builders operating in the county, who between them deliver a significant proportion of new homes.

3.3 The sample features a range of standardised house types from the developers portfolio of 'products', which are typical of many schemes throughout the county, region, and, beyond in some cases. The schemes feature a selection of dwellings types, typically within 2-4 bedroom range. This approach allows for a more concise sample for the review. Schemes were chosen within the following locations:

Bishop Auckland Chester-le-Street Chilton Consett Durham

Browney Framwellgate Moor Mount Oswald

Easington Newton Aycliffe Nettlesworth Peterlee Sedgefield Spennymoor Stanley Ushaw Moor

3.4 Table 2 shows the main findings from the review. Dwellings are grouped by number of bedrooms. The middle column shows the percentage difference between the surveyed/actual average when measured against the minimum NDSS requirement. The table also shows the range measured within the sample. The final column shows the NDSS range which is linked to the intended number of inhabitants (5 people, 6 people, etc.) as set out in Table 1.

Table 2 Table 2: Dwelling size from survey versus NDSS

Average Gross Percentage Surveyed Range NDSS Range (m²) Internal Area (m²) difference of (m²) average GIA against NDSS (minimum requirement)

Average 2 63.6 -9.1 51 - 75.5 70 - 79 bedroom dwelling

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Average 3 87.1 3.6 69 - 108 84 - 108 bedroom dwelling

Average 4 123.5 27.3 88 - 166 97 - 130 bedroom dwelling

3.5 In addition to gross floor area, the national standard also sets down minimum requirements in terms of bedroom sizes, storage areas and ceiling heights. Data is most readily available in respect to bedrooms, so the review includes analysis of bedroom floor areas and how they perform against prescribed standards.

3.6 The internal size measurements, along with the number of bedrooms and the intended number of occupants and number of storeys, have been compiled from a range of sources, including planning applications, housing completion data, marketing material and Energy Performance Certificates.

Key Findings

3.7 The review demonstrates that many new homes do not meet minimum space standards. The study highlighted a broad range of sizes within the sample, however a significant number of the house types in the survey fall short of the NDSS.

Gross Internal Areas (GIA)

3.8 Gross internal areas for 2 bedroom dwellings range from 51m² to 75.5m². The smallest property in this cohort measured 51m² which is -27% less than the gross internal area required within NDSS. The largest property in the survey measured 75.5m². This property was marketed as having two double bedrooms (i.e. 2b4p) and should therefore meet the higher NDSS requirement of 79m². Measured against this, the 75.5m² property is -4.5% smaller than the standards require.

3.9 A greater range was recorded in relation to three bedroom dwellings. While an average size of 87.1m² was recorded within this range of dwellings, this approach somewhat masks the scale of the shortfall. Indeed the majority of properties in the survey did not satisfy the standards, even against the minimum NDSS of 84m² (which would apply to 3b4p dwellings).

3.10 For example, most three bedroom dwellings in the survey are marketed as having two double bedrooms and one single bedroom - in other words as being suitable for five persons in NDSS terms. Therefore, if the midpoint in the NDSS range (93m² for a 3b5p dwelling) is applied, this highlights that the average property (87.1m²) is falling below the NDSS requirement for this level of occupation.

3.11 The smallest three bedroom properties in the sample measured 71m². One of these properties was marketed as 3b4p, while the other was marketed as providing accommodation for five persons. The NDSS requirements for properties providing these levels of accommodation are 84m² and 93m² respectively. In percentage terms, these properties provide -15.5% and -23.7% of the space that they would do if they were built to NDSS.

3.12 While the majority of four bedroom dwellings are being built either roughly in line with space standards, or above them, the survey nevertheless identified 13 property types (some 26% of the sample) that are below space standards.

3.13 The survey also included a site in a high value location (Framwellgate Moor, Durham City) which included three five bedroom house type, however analysis showed they were intended for nine persons and therefore above the highest occupancy standards in NDSS and are not included in the sample. Nevertheless all three house types exceeded the minimum space standards. While the

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study could be expanded to assess the standards at the higher occupancy levels, they make up a small proportion of new build supply and anecdotal evidence suggests they tend to provide ample internal space standards.

Bedroom Size

3.14 Analysis of available information in relation to bedroom size shows that more than a quarter of surveyed properties do not include a master bedroom that meets the minimum floor area requirement. Marketing material and floor plans were assessed and where a double bed was shown the room was assessed against the standards for a two person room (11.5m²) set out in the NDSS.

3.15 For second bedrooms the results show that only around 54% of properties provided the minimum floor area. This trend worsens for third and fourth bedrooms. For example, as few as 23% of three bedroom properties provide the minimum floor area requirement for the third bedroom (including where they are identified as double or twin rooms). One such three bedroom property includes a third bedroom which measures 3.65m² - i.e. less than half NDSS requirements (which is 7.5m² for a single bedroom).

Affordable and Discounted Market Sale Housing

3.16 The majority of surveyed affordable dwellings were two bedroom two storey units. None met NDSS standards when assessed against the relevant occupancy level indicated in the planning drawings. This is problematic, as Registered Providers (RP) need to ensure their properties satisfy national space standards as a condition upon securing grant funding from the Home and Communities Agency. Discussions with two separate RPs operating in County Durham highlighted problems with the S106 stock being offered to them by market developers. A representative for one of the RPs noted concerns that some people will be so pleased to buy their first property with Help2Buy that they may not consider the longer term implications. The RP however will own these homes forever and needs to know that people will still choose to rent from them 20 years down the line (when they aren’t shiny and new anymore). RPs are also keen for settled tenants so that they stay in situ long term - if they feel the need to move to something larger, this incurs void costs and dissatisfaction amongst customers. Further issues sited included that while small room dimensions have been the main issue with customers, lack of storage is also a problem in some properties.

3.17 We are also aware of issues in relation to discounted market sale housing, which provides further opportunities for people entering the property market. Some of these products are built below NDSS levels, and our intelligence suggests that they are proving difficult to sell when the first owners wish to move on to larger properties. In some instances it is noted that this is due to the lack of space in the property.

Health Impacts

3.18 Adequate space standards ensure that homes can respond to occupiers changing requirements over their life times. Studies (x) demonstrate the benefits to health and well-being from living in a well designed home that offers both privacy and sociability, and that in all respects provides adequate space to function well. A more quantitative analysis of health and housing space was undertaken by the charity Shelter (xi). A survey of households in accommodation deemed to be ‘overcrowded’ revealed the importance of space in providing personal privacy, reducing depression, anxiety and stress, giving children room to play and ensuring a good night’s sleep. Three quarters of respondents

x Housing standards: evidence and research Space standards: the benefits. University College London. Carmona, Gallent, Sarkar (2010); Mayor of London (2010) Evidence Base for the London Housing Strategy, November 2009, Mayor of London: London; The University of Glasgow Scottish Health, Housing And Regeneration Project (SHARP) (2005) xi Reynolds, L. (2005) Full House? How Overcrowded Housing Affects Families, Shelter: London

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in this survey saw space as playing a key role in determining the quality of family relationships. The cramming of different activities (studying, socialising, and relaxing) into limited space may adversely affect family life, creating a difficult dynamic and having a negative impact on relationships.

Consultation Feedback

3.19 Consultation feedback from residents clearly advocates adopting minimum internal space standards. Concerns have been raised regarding inadequate internal space within new properties in particular. While national guidance on adopting NDSS does not take this information into account, it nevertheless provides further support for adopting the standards.

3.20 The house building industry have raised concerns during the consultation on the CDP. These concerns included the potential impacts in terms of viability, delivery of affordable housing and delivering properties that provide a stepping stone for first time buyers. Our evidence however demonstrates that homes can be built to NDSS without impacting upon deliverability, while discount market sale properties which are purportedly providing access to the housing market are, in some cases, less attractive due to their lack of internal space (amongst other things) when they are marketed as second hand properties. It is also acknowledged that a transition period will be in place to allow the industry to gear up for the change, while viability will be taken into account when assessing proposals against the standard.

Wider Local Context

3.21 The County Durham Plan clearly articulates an ambitious but deliverable vision to capitalise on the range of opportunities which exist to move the county forward through the plan period to 2035. Durham should secure a good, competitive standard of housing moving forward to support its continued regeneration and ensure that its housing offer is fit for purpose. Setting minimum standards for internal floorspace will help to achieve this by ensuring that homes built in the county are good quality and have enough space to be lived in as intended.

3.22 The SHMA (2019) demonstrates that County Durham is predominantly self-contained as a housing market area (HMA). There is, however, some overlap with Sunderland to the East, Newcastle and Gateshead to the North and Darlington to the South East. Sunderland, Newcastle, and Gateshead are all proposing to adopt the NDSS in their local plans. There is therefore a risk that, if County Durham does not also implement the space standards, first time buyers in the North and East of the county could choose to move out of the local authority area in order to access better quality housing.

Trends over Time

3.23 Government data on EPC floorspace over time (xii) shows that, within County Durham, there has been a slight decline in average internal floorspace since 2015. Implementing the standards therefore represents an opportunity to prevent the average size of dwellings from declining still further, by setting an absolute minimum requirement for internal floorspace.

3.24 The picture for England as a whole differs, with an overall trend towards an increase in floorspace since 2011 and a slight decline only in the past two years. This adds further support to the view that in order to be able to compete with other regions in the country, County Durham would benefit from having a policy safeguarding higher average internal floorspaces. The highest average GIA in Durham in the past decade was 94m2 in 2015; for England as a whole the highest average GIA was 127m2 in 2012. The average GIA in England as a whole has not dropped below 100m2 since 2008, again demonstrating that homes in County Durham are disproportionately small.

xii https://www.gov.uk/government/statistical-data-sets/live-tables-on-energy-performance-of-buildings-certificates

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3.2 Viability

3.25 National guidance requires local authorities to consider the impact of adopting the space standard as part of a plan’s viability assessment with account taken of the impact of potentially larger dwellings on land supply. Local planning authorities will also need to consider impacts on affordability where a space standard is to be adopted.

3.26 The council’s local plan viability work (2018) assesses and tests the policies contained within the County Durham Plan. As part of the assessment the balance of contributions sought from developers, for example affordable housing and the cost of infrastructure and mitigation, are considered. The modelling in the viability assessment has also assessed the impact of applying Nationally Described Space Standards (NDSS) as part of the land allocation process. An additional amount of £2,000 per dwelling was included for space standards, however, it is possible that building a slightly larger product would be cost neutral, as the corresponding sales values would also increase. Housing land supply is more than sufficient to meet need at a standardised 30 dwellings per hectare and the impact of applying NDSS in these terms would be negligible.

3.27 In terms of affordability the council adopts a flexible approach which recognises that some areas will be able to deliver a greater percentage of affordable dwellings than lower value areas. It is also the case that the council takes a flexible approach to the application of planning obligations where developers can demonstrate viability issues and this will be the case in respect of space standards. Where developers can show a development is not viable then negotiations would normally be undertaken to consider whether the level of obligations can be reduced, providing the scheme still accords with the principles of sustainable development.

3.3 Timing

3.28 In order to allow for an appropriate transition period the standards will only be applied to outline or full applications approved a year after the Plan is adopted. This would represent a reasonable transition period with the moderate benefit of allowing for a defined initial half-year’s data for annual monitoring of the policy. The standards will not be applied retrospectively to those applications for reserved matters where the outline permission was determined or is subject to a resolution to grant permission (including subject to planning obligations) before the policy comes into effect.

Summary

4.1 National space standards ensure that new houses are built to a minimum set of internal size standards, as the amount of internal space in a home impacts on quality of life and wellbeing. This study demonstrates that many properties are being built below the standards in respect to gross internal floor area and bedroom size. The study shows that on average smaller dwellings (2 and 3 bedroom properties) tend to perform worse against the standards, compounding the problem. Viability testing shows that building to NDSS can be achieved without negatively impacting upon deliverability however it is accepted that obligations will be assessed on the merits of individual schemes. This notwithstanding, house builders will be aware that many council's across the region are intending to adopt the space standards which will signal that new house types are required to meet the requirement. Furthermore, a transition period will allow developers to adapt to the changes.

4.2 The evidence supports the case to incorporate nationally described space standards within the County Durham Plan. This policy requirement is included within the Sustainable Design Policy.

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