Chapter 11 - Housing

Introduction

11.1 The release of an adequate and continuous supply of land for new housing development is a key objective of Council policy and fundamental to successful local economic growth and community regeneration.

11.2 Trafford has long been, and remains, a very attractive and popular place in which to live. The demand for new housing, arising both from people and households already living within the Borough and from those living outside its boundaries, has been and remains significant. There has been a constant need to plan to find additional suitable land to accommodate housing development. There has also been a need to find additional suitable land to accommodate the new houses that have to be built to replace the old/sub-standard/unfit dwellings that have to be demolished.

11.3 Over the Plan period the population of the Borough, in contrast to the decline of the 1970’s and 1980’s, is expected to experience a modest increase. In line with past trends, the number of houses that will be required to accommodate this slightly increased population is expected to increase at a more significant rate. The demographic and social trends at the root of this accelerated household growth are expected to lead to a greater variety in the range and type of accommodation built to meet peoples housing needs.

11.4 When releasing land for new housing development the Council has long sought to balance the demand for new houses against the need to conserve the Borough's valuable and attractive countryside and limit the outward spread of the built up area to the minimum. Within the built up area it has also long sought (within the bounds of the regulatory planning framework) to balance the demand against the need to safeguard the environment and amenity of local community areas. The Policies and Proposals set out in this Chapter (read in association with the Policies and Proposals set out in the Countryside and Development Control Criteria Chapters) seek to carry forward these environment and conservation objectives within the framework of the themes or guiding principles of the Plan set out in Policy GP1.

General Justification for the Policies and Proposals for Housing

11.5 Regional Planning Guidance for the North West (RPG13) indicates that to meet anticipated demographic needs the Council should plan to release land to make provision for the building of an average of 270 new dwellings per year between 2002 and 2006 and until such time as RPG13 is reviewed and new proposals are published. In planning to make this provision the Guidance stresses that the Council must: -

• Make the best possible use of the existing housing stock;
• Maximise the re-use of vacant and under used land and buildings;
• Consider the impact of new development on the existing housing stock and market in the immediate area and adjoining Districts;
• Give priority to the re-use of previously developed urban land sites;
• Phase the release and development of the sites identified in a way that takes account of “windfall” development that may take place on suitable but unidentified urban development sites, and,
• Take into account the need for the provision of “affordable” housing.

11.6 RPG13 also indicates that the Council must make an allowance for the replacement of dwellings cleared during the Plan period. In framing the Policies and Proposals of this Chapter, therefore, the Council has determined to make an allowance for clearance replacement of 40 new dwellings per year between 2002 and 2006 and until such time as RPG13 is reviewed and published.

11.7 The RPG13 housing land release figures have been determined within the context of 1996 based household growth projections, regional economic growth aspirations (set out in the North West Regional Development Agency’s Regional Economic Strategy), regional housing needs and demands (set out in the North West Regional Housing Need and Demand Study), existing and potential future regional housing land supply information and Green Belt, environmental and other planning policy considerations (set out in RPG13 itself).

11.8 The dwelling clearance replacement allowance has been determined within the framework of an assessment of the likely scale of the Council’s clearance programme and other clearance activity that may occur within the Borough.

11.9 To meet the RPG13 annual average building rate for Trafford, the Policies and Proposals of this Chapter bring forward additional areas of land for development to supplement the areas that have already been committed for development and those likely to be so committed on previously developed “windfall” sites (of all types and sizes) over the Plan period.

11.10 The additional areas of land that have been identified for release for development have been derived from Urban Area Housing Capacity and National land Use Database survey work undertaken by the Council between 1998 and 2002.

11.11 The urban area committed and opportunity “windfall” development site contribution to the land supply has been derived from an analysis of development experience between 1991 and 2001 undertaken as part of the Trafford Urban Housing Capacity Study 2002.

11.12 In general the new land release proposals seek to promote the efficient use of previously developed land within the established urban area. They seek to promote, in appropriate circumstances, the mixed housing/commercial use of land.

11.13 The overall proportion of development expected to occur on previously developed land over the Plan period is anticipated to fall in the range between 78 to 90%.

11.14 To meet the PPG3 and RPG13 requirement to release land for new housing development in a controlled, managed and prioritised way, the Council proposes a phased programme of release of these additional areas of development land. The proposals have been drawn up within the framework of the specific advice set out within the Government published document Planning to Deliver – The Managed Release of Housing Sites (see Proposal H3).

11.15 RPG13 indicates that the scale of new housing provision required in the Borough will be kept under continuous review at the regional level and alterations brought forward for implementation as and when appropriate. Within this context the Plan Policies and Proposals indicate the Council’s intention to monitor the rate at which unidentified “windfall” land and committed and allocated sites comes forward for development. The annual average rate of new housing provision set by Policy H1 will, where possible, be achieved by adjusting the phased release of identified and allocated sites and then, if necessary, by managing the rate of “windfall” development.

Part I Policy H1 – Land Release for Development

The Council will ensure that sufficient land is released for development to achieve the annual average rate of new housing provision set out in Regional Planning Guidance (RPG13): -

• To take account of demographic need – 270 dwellings per year;
• To allow for the replacement of dwellings lost through clearance and demolition – 40 dwellings per year.

This average rate of new provision will apply for the period between April 2002 and March 2006 and until such time as Regional Planning Guidance (RPG13) is reviewed and new proposals are published.

Within the overall supply of land made available for development, the Council will seek to ensure that an adequate range of sites are made available across the Borough to allow a variety of types of housing affordable by all sectors of the local community to be provided, subject to the capacity of the urban area and infrastructure to accommodate new development and the need to protect the environment.

Part I Policy H2 – Location and Phasing of New Housing Development

In releasing land to achieve the annual average rate of new housing provision set by Policy H1, the Council will permit high quality development within the existing urban area, to the extent that such development is compatible with other Policies and Proposals of this Plan that seek to protect the quality, appearance and amenity of established residential areas.

Within the urban area, as a first priority, the Council will permit the re-use of previously developed land and vacant buildings, particularly in locations that are well related to local community services and facilities and accessible by public transport.

The Council, as necessary, will then permit the use of previously undeveloped urban area land where it: -

• Is well located in relation to established areas of housing, jobs, local community services and facilities;
• Avoids the use of important areas of open space;
• Is or can be made accessible by public transport and other non-car modes of travel, and,
• Respects and enhances the quality and character of the local built environment.

Well designed higher density mixed use and mixed housing type developments (developments in excess of 30 to 50 dwellings per hectare) will be permitted on urban area sites that are well related to existing or firmly planned public transport infrastructure and other community facilities. Density considerations will be assessed in the context of the design of the development and the character of the locality.

The areas of land identified for development in accordance with the above priorities will be released in a phased manner to achieve the annual average rate of new housing provision set by Policy H1.

The Council will monitor the rate at which unidentified urban area “windfall” land and allocated sites identified on the Proposals Map come forward for development. The annual average rate of new housing provision set by Policy H1 will, where possible, be achieved by adjusting the phased release of identified and allocated sites taking account of the Priority Regeneration Areas identified in Policy A1 and then, if necessary, by limiting the rate of windfall development.

Part II Proposal H3 – Land Release for Development

The following sites, identified on the Proposals Map, are released for new housing development: -

These sites will be released for development in the phased manner described below to provide the approximate number of new dwellings indicated: -

Phase 1 Release – April 2002 to March 2006

Phase 2 Release – April 2006 to March 2011

Phase 3 Release – April 2011 to March 2016

The Council will adhere to the phased land release proposals for the sites listed in the above Table until such time as the monitoring of new housing needs and windfall and allocated site development in the Borough and the wider area indicates that the land release requirement prescribed within Regional Planning Guidance (RPG13) needs to be altered and the phasing proposals revised.

Proposals that come forward for development within the urban area on sites not identified in the above Table will only be permitted where they are acceptable in planning terms and where approval does not result in a significant oversupply of new housing as measured against the land release requirement prescribed within RPG13.

Justification

1. This Proposal is intended to enable the Council to maintain a supply of land for new housing development sufficient to meet the requirement set within Regional Planning Guidance (RPG13) for the period between April 2002 and March 2006 and until such time as the guidance is reviewed and new proposals published.

2. The Proposal consists of site allocations carried forward from the May 1996 adopted Plan (all of which have the benefit of planning permission for development) and new site allocations (some of which have the benefit of planning permission for development) identified through urban capacity and other study assessment work.

3. The phasing of the release and development of the new site allocations identified in this Proposal is the product of an assessment that has taken into account the current planning permission status of sites, the priority land release provisions of Policy H2 and likely site marketing and development rates. The preferred order of release specified reflects the approach set out in PPG3 and Planning to Deliver –The Managed Release of Housing Sites. The sites have been assessed on the basis of their type, location, accessibility and readiness for development.

4. The number of dwellings associated with each identified site is an estimate of the approximate total development capacity of each allocation. Developers, in bringing forward detailed development schemes for each site, will need to pay due regard to the requirements of Proposals D1 and D3. To assist developers to prepare satisfactory schemes for individual sites in accord with the requirements of these two UDP Proposals, the Council may prepare guidance in the form of site planning briefs to illustrate how the principles set out in the two Proposals can best be applied.

5. Four sites (HOU5 Pomona, HOU14 Woodfield Road, HOU17 Moss Lane and HOU18 Park Road) are identified for mixed housing and employment use. The allocation for site HOU5 ( Pomona) is being carried forward from the May 1996 adopted Plan. The allocations on sites HOU14 ( Woodfield Road), HOU17 Moss Lane and HOU18 Park Road are new proposals on sites that were allocated in the May 1996 adopted Plan wholly for employment development.

6. All thirteen of the Phase 1 release sites and four of the Phase 2 sites have the benefit of planning permission for development. Ten of the Phase 1 sites (HOU1, HOU2 and HOU8 to HOU17) are already in whole or in part under development.

7. Fifteen of the sites (HOU1, HOU5, HOU6, HOU7, HOU8, HOU9, HOU10, HOU11, HOU12, HOU13, HOU14, HOU15, HOU16, HOU17 and HOU18) are previously developed urban area sites. Three of the sites (HOU2, HOU3 and HOU4) are previously undeveloped urban area sites.

8. Site HOU14 is a substantial site that is currently occupied by several large buildings used by a range of small businesses. Prior to any new mixed housing and employment developments taking place on this site, the Council will continue to permit development proposals (renewal of temporary planning permissions, suitable changes of use and limited extensions to existing buildings) that will enable these established businesses to continue to operate efficiently and effectively on the site, that do not undermine longer-term development intentions for the land.

9. Site HOU4 is a previously undeveloped urban area extension site that represents a rounding off development between Altrincham and Sale. Further details associated with the development of this site are set out in Proposal MD1. Section 106 planning agreement accompanying the current planning permission secures the construction of the site access road, the provision of an element of affordable housing provision and a contribution to the provision of new community facilities for the Broadheath area.

10. With regard to site HOU5, the Council will expect prospective developers to prepare a comprehensive Master Community Development Plan before their development is proceeded with. This Plan will be required to illustrate the intended distribution of housing, community facilities and other land uses on the site and the proposed pedestrian, cyclist, public and private transport access arrangements to and within the development.

11. The supply of land identified for release in this Proposal will supplement the supply that will come forward for development within the existing built up areas on unidentified “windfall” development sites (infill, redevelopment or conversion development sites). The Council will monitor the rate at which these “windfall” development opportunities come forward for development. If necessary it will seek to control their rate of release, after any adjustment of the phasing and rate of release of the sites allocated in this Proposal, to ensure that the annual average rate of new housing provision set by Policy H1 is not significantly exceeded. Priority will be given, within the annual average, to any development schemes that would contribute substantially to provision of affordable housing accommodation.

12. Adjustments proposing amendments to the order of release of the sites identified in this Proposal, that may be brought forward as a result of the above monitoring programme, will be published for public consultation purposes as Supplementary Planning Guidance. Adjustments proposing amendments to the list of sites identified for release in this Proposal will be brought forward and published for public consultation purposes as formal alterations to this Plan.

13. The potential housing land supply for the three phases of the Plan period (2002 - 2016) is summarised below: -

2002 – 2006

2006 – 2011

2011 – 2016

Part II Proposal H4 – Release of Other Land for Development

The Council will normally grant planning permission for the development and redevelopment of other suitable land within the built up area for housing provided that such proposals: -

i) Are either (a) not on sites protected as open space, unless the provisions of Proposal OSR5 can be satisfied, or, (b) allocated for some other use;

ii) Comply with the relevant provisions of Proposals D1 and D3 and where appropriate Proposals ENV21 and ENV23;

iii) Do not prejudice the development or redevelopment of adjoining land.

Justification

The development/redevelopment of unused land and redundant buildings will make a valuable contribution to urban regeneration that the Council is firmly committed to. Such activity will serve also to divert and reduce the pressure for the use of land on the fringe of the urban area and add to the range and choice of sites for developers and potential residents.

Further development within the built up area must be limited in this way in the interests of good planning to ensure that other essential services and amenities are not over loaded and that the quality of the environment and amenity of present and future residents is not adversely affected.

Part II Proposal H5 – Improvement of Houses

The Council will encourage and promote the improvement to modern standards of older houses, where they are not required to make way for some other development proposed elsewhere in this Plan, provided that such proposals comply with the relevant provisions of Proposals D1 and D3 and, where appropriate, Proposals ENV21, ENV23 and ENV24. Priority will be given to schemes for the comprehensive improvement of areas.

Justification

The refurbishment and improvement of the Borough's stock of older property is an important complement to policies that encourage/allow new developments and further supports the themes and guiding principles of the plan. Revitalising the stock of older houses will also reduce their rate of deterioration and the consequent need for their clearance and minimise the amount of land needed to replace them.

Area improvement provides the most effective and efficient use of available resources. Comprehensive action of this kind is encouraged by the Local Government and Housing Act 1989 and will be pursued by the Council (see Proposal H9 below).

Part II Proposal H6 – Sub Division of Houses

The Council will only permit subdivision of houses into smaller self-contained units where such proposals: -

i) Comply with the relevant provisions of Proposals D1 and D3 and where appropriate Proposals ENV21, ENV23 and ENV24;

ii) Provide adequate amenity space for residents.

Justification

Sub-division of property, particularly older property, can make a valuable contribution to the stock of accommodation available and contribute to urban regeneration by bringing unused or under used buildings back into economic use.

Not all property however is suitable for sub-division. Carefully designed schemes that make full and proper provision for the needs of prospective residents are therefore essential if the amenity of neighbours and the character of an area is not to be adversely affected. This will be the primary concern of the Council when considering such proposals.

Part II Proposal H7 – Accommodation for Elderly Persons

Within the built up area the Council will normally grant planning permission to convert property to residential care homes and nursing homes for the elderly only where they are satisfied that: -

i) The site and property in question is of sufficient size to accommodate adequately the proposed use and all necessary ancillary facilities for prospective residents and can comply with the relevant provisions of Proposals D1 and D3 and where appropriate proposals ENV21, ENV23 and ENV24;

ii) The concentration of similar uses in the immediate locality has not reached an unacceptable level.

Justification

As a general principle the Council wishes to encourage all types of accommodation for the elderly in locations that allow them to maintain easily their links with the rest of the community and the services that they require.

In recent years the number of residential care homes and nursing homes for the elderly has considerably expanded. They can make a considerable impact on surrounding residential property if their development is not properly planned.

The Council has produced Planning Guide-lines for Residential Care Homes and Nursing Homes for the Elderly to give further guidance to prospective developers of this type of accommodation.

Part II Proposal H8 – Affordable Housing

The Council will encourage and promote the provision of new housing to meet the needs of local people who cannot afford to rent or buy housing available on the open market on both Council and private sector owned sites, where this can be achieved without prejudicing other Council planning objectives.

The Council will seek to negotiate for the inclusion of an element of low cost housing on all urban sites that come forward for development for housing purposes during the Plan period, including those sites identified in Proposal H5 which do not already have the benefit of planning permission, that are large enough to accommodate a reasonable mix of types and sizes of housing, where: -

• the site is 1.0 hectare or more in size or has the potential for the development of 25 or more dwellings;
• the site is located in reasonable proximity to local services and facilities and accessible by public transport, and,
• an adequate element of low cost housing can be incorporated into a development without detriment to the successful implementation of that scheme.

To ensure that both the initial and subsequent occupiers of property enjoy the benefits of provision of this form of housing, the Council will encourage and promote the involvement of registered social landlords in the development process. Where a developer other than a registered social landlord is involved in the development process, the Council will seek to control the occupancy of dwellings built by means of a planning condition or by an agreement under Section 106 of the Town and Country Planning Act 1990.

On sites within rural areas of the Borough, the Council will only consider proposals for the development for low cost housing that accord with the provisions for development within the Green Belt set out within Proposal C5 (i).

Justification

1. PPG3 seeks to encourage local authorities to promote the development of low cost/affordable new housing on suitable sites in areas where there is a demonstrable lack of such housing to meet local needs. For the purposes of this Proposal, affordable or social housing is defined (as in Government Circular 6/98) as “low cost market and subsidised housing (irrespective of tenure, ownership, type of occupation or financial arrangements) available to people who cannot afford to rent or buy houses generally available on the open market”.

2. The Council has prepared Supplementary Planning Guidance (Affordable Housing) which offers further guidance on what the Council regards as affordable housing based on the relationship between local house prices, incomes and ability to meet housing costs. This Guidance indicates that an affordable home, in the Trafford context is: -

• Housing for rent - the rent for which does not exceed 30% of the average net income within that particular sub-district and is, in any event within Housing Corporation target rents for that particular property type;
• Housing for sale - the maximum price for which does not exceed that which can be purchased with a mortgage equivalent to 3 times the average household income within that sub-district or which is equivalent to the relevant Housing Corporation Total Cost Indicator (TCI) for that particular property type, whichever is the lesser.

The Council’s Supplementary Planning Guidance offers indicative figures in relation to the above that will be uprated on an annual basis.

3. Across the Borough as a whole, private sector and registered social landlord (Housing Association) developers currently make available a reasonably broad range of types of property to meet the needs of Trafford residents. The Council is aware, however, from evidence contained within its waiting list and from various local housing needs surveys, that provision is inadequate across the Borough and that there are people in housing need who are not able to find suitable and affordable accommodation on the open market. Research, jointly undertaken on behalf of the DETR by the Universities of Manchester and Liverpool and published in March 2000, has also indicated a need for more affordable housing provision within the Borough.

4. Since the cessation of the Council’s own programme of building affordable or social housing in 1991, it has been working to expand provision of this type of accommodation by a variety of means, including: -

• making the best (most efficient and effective) use of the Council owned stock of rented property;
• encouraging improvement initiatives within the private sector owned and rented stock (investing in the renewal, revitalisation and conversion of property), and,
• in partnership with the Housing Corporation and registered social landlords (Housing Associations), utilising land in Council and private sector ownership to build new stock.

5. The Council’s latest Housing Needs Survey published in June 2001 reveals a strong need for more subsidised social rented housing and for shared ownership and other forms of low-cost home ownership (see Appendix L).

6. In negotiating for the inclusion of an element of affordable or social housing on suitable sites (as defined by this Proposal), the Council therefore will seek to achieve a target contribution of between 25% and 35% of the total site development capacity, unless such a contribution would prejudice the realisation of other planning objectives. On the basis of its Housing Needs Survey which analyses supply and demand by geographical sub-district, together with data on local house prices and incomes, the Council has set the following target contribution figure for each sub-area of the Borough: -

7. Due to the high and continuing demand for affordable housing units, coupled with high land values and site scarcity, the Council’s expected method of delivery will be for the affordable housing units to be provided on site. Only in exceptional circumstances, where it is in the interests of achieving more balanced housing communities and housing markets, will the Council consider an off-site payment being made in the form of a commuted sum.

8. Where the Council considers that it would be preferable to provide the affordable housing on a suitable alternative site within the Borough, the Council will negotiate to obtain the financial contribution in accordance with the provisions of paragraph 23 of Circular 6/98. The Council will determine the suitability or otherwise of alternative sites put forward in this context by reference to criteria (ii) of this Proposal, the conclusions of the 2001 Trafford Housing Needs Survey and the provisions of the Trafford Housing Strategy.

9. The Council generally expects affordable units to be provided through a partnership with a Registered Social Landlord (RSL), although consideration will be given to provision of low-cost market housing where it will meet affordable housing objectives.

10. To ensure that the benefits of affordable or social housing can be maintained in the long term, the Council will use planning conditions and agreements that accord with the provisions of paragraphs 15 to 20 and 32 to 34 of Circular 6/98.

11. The Council will keep under review the scale, nature and distribution of the need for affordable or social housing within the Borough and will amend the provisions of this Proposal as appropriate, as and when the review indicates this to be necessary.

12. For the avoidance of doubt, the Council will not seek to apply this Proposal to developments where the accommodation is intended for occupation by elderly persons.

Part II Proposal H9 – Priority Regeneration Area: Gorse Hill

A Neighbourhood Renewal Area has been declared in Gorse Hill. Through this initiative the Council will:

• Improve the area’s housing stock and quality of environment;
• Mitigate the effects on the area of traffic and industry;
• Continue the programme of environmental improvements along Chester Road (A56).

Opportunities will be taken to: -

• Clear pockets of unsatisfactory housing;
• Provide some off-street car parking as part of a programme to tackle the parking/congestion problems throughout Gorse Hill, which detracts from the quality of life of residents;
• Improve Gorse Hill Park and the recreation ground at Nansen Road;
• Examine ways of minimising the impact of industry and other infrastructure, in particular the Euro-Freight Terminal, on residential areas.

Justification

Council intervention on a major scale is needed in this area in order to remedy unsatisfactory housing conditions and to tackle those problems that reduce the quality of life for local residents below modern expectations.

Part II Proposal H10 – Priority Regeneration Area: Old Trafford

Within the Old Trafford area, the Council will take action to: -

• improve the quality and diversity of the area’s housing stock;
• improve the quality, appearance and safety of the local environment;
• mitigate the effects on the area of local and through traffic;
• improve facilities for pedestrians, cyclists and public transport;
• promote the redevelopment and re-use of unused, under-used or derelict land and buildings for residential, business and community purposes;
• improve the quality and diversity of recreational and other facilities available to the local community;

Opportunities will be taken to: -

• remove dereliction and obsolescence;
• undertake selective area renewal;
• diversify housing tenure by encouraging the building of private affordable homes within the Stretford Road corridor;
• develop the Stretford Road corridor as a strategic gateway into and out of the Borough;
• develop a multi-purpose community facility on the Old Trafford Primary School site;
• support local shops and services, particularly on Ayres Road and Seymour Grove;
• refurbish retail/commercial property at Shrewsbury Street/Skerton Road;
• provide new food retail store facilities on Chester Road (adjoining Stretford Leisure Centre);
• improve Hullard Park, Seymour Park and St Bride’s Field;

The Council will not grant planning permission for any development within the Old Trafford area that would prejudice the implementation of the above proposal

Justification

The inner urban area of Old Trafford is the most deprived area of the Borough and has been identified by the Council as a priority area for improvement and regeneration action.

An Old Trafford Partnership Board has been established and an Old Trafford Strategy and Action Plan prepared to guide the process of regenerating economic, educational, housing, social and environmental conditions in the area. A combination of private sector, European, SRB, Capital Challenge and Council resources have been committed to help accomplish the task. The Council has prepared Supplementary Planning Guidance and site Development Strategy documents to promote its regeneration aspirations for the area.

Part II Proposal H11 – Priority Regeneration Area: Partington

Within the Partington area, the Council will take action to: -

• Improve the quality and security of the area’s housing stock;
• Improve the quality, appearance and safety of the local environment;
• Improve the quality, appearance and safety of the local shopping facilities available to the local community;
• Improve the quality and diversity of recreational and other facilities available to the local community;
• Promote the re-use and redevelopment of unused, under-used or derelict land and buildings for residential, community or local business use;
• Develop and improve urban/rural environment links;
• Develop a programme of local access/infrastructure improvements;
• Improve local community transport provision and public transport links to other parts of the Borough.

Opportunities will be taken to: -

• Undertake selective area renewal;
• Identify a local building to be used as a Resource Centre by local community and voluntary groups;
• Develop the existing Opportunities Centre as a local employment training centre;
• Improve local open spaces including garage court areas.

The Council will not grant planning permission for any development within the Partington area that would prejudice the implementation of the above proposals.

Justification

The urban area of Partington is one of the most deprived areas of the Borough and has along with the adjoining area of Carrington been identified by the Council as a priority area for improvement and regeneration action.

A Partington and Carrington Partnership has been established and an Action Plan prepared to guide the process of regenerating economic, educational, housing, social and environmental conditions in the area. A combination of private sector, Single Regeneration Budget and Council resources have been committed to accomplish the task.

Proposal E15 sets out the future development intentions of the Council to guide the process of regeneration in the main employment area to the north of Partington.