Problems and Issues

2.1 The following problems and issues have been critical in drawing up the housing policies for this Local Plan.

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Population Growth and Age Structure

2.2 The District has experienced a rapid rate of population growth over the last three decades. Between the 1981 and 1991 census counts, the resident population of the District grew by 10.9% making it the 24th fastest growing District in the Country. This can be compared with an increase of 8.3% in the County as a whole, and virtually no change at all in England and Wales. This growth has been caused by net inward migration rather than by natural increase. In fact, during the 1980's there was a slight excess of deaths over births in the District.

2.3 Population estimates produced by the County Council (based on the Registrar Generals Mid 1991 estimates, adjusted to account for the Structure Plan's suggested housing provision) indicate that the population of the District will increase from 53,900 in 1991, to around 64,530 in 2011, an average increase of about 530 persons per year. (1.0% per annum)

2.4 The age structure of the population is not expected to change markedly during this period. The proportion of young people (age 0-16) is expected to fall slightly from around 22% to 21%, as is the proportion of post retirement age (from 24%-21%). However, within the elderly population, the number of very elderly (age 85 +) will continue to rise from 1,100 in 1991 to over 1,900 in 2011, increasing the demand for certain health and social services.

2.5 The largest increase is expected in the pre-retirement age group (age 45-retirement age) where the numbers are expected to increase from around 10,000 to almost 15,000 (a 50% increase). While many people in this age group will still be in employment now, there will come a time when the ‘bulge’ passes retirement age and increases the pressure on services for the elderly.

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Housing Growth

2.6 Pressures for new housing are arising both from people wishing to move into the area and from new households forming within the District. Average household size is falling throughout the country as people live longer, set up in independent homes earlier and couples divorce or split up more frequently. In North Dorset average household size is expected to fall from 2.39 persons per household in 1991 to 2.24 in 2011, creating a need for around 1,500 new dwellings just to house the existing population. On top of this, the incoming population will also need homes. During the 1970s around 350 dwellings were built each year. In the 1980s the construction rates increased to just under 400 dwellings per annum. Despite a depression in the housing market nationally during the early 1990s, levels of development have remained relatively high in North Dorset (averaging 394 dwellings per annum between 1990-96).

2.7 The crucial issue of how much new development should be accommodated in the District is determined by the Structure Plan. It is the role of the Local Plan to translate the broad policies of the Structure Plan into more detailed development control policies and map-based land allocations, bearing in mind the overall strategy of the Plan.

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Locational Pressures for Housing Growth

2.8 Policies in the original Structure Plan (approved in 1983) aimed to concentrate development in the towns and a number of "Priority Villages". Some of these villages experienced large scale development during the 1980s, and now need time for new residents to settle in and local services to adapt.

2.9 In the 1990s the approved Structure Plan again proposed to locate most growth in the towns, but with more modest development in any village of reasonable size and with one or more basic facilities. Unfortunately, a legacy of outstanding planning permissions has meant that more development than was originally intended has taken place in the rural area. This Plan now has to determine exactly how much development should be located in the towns and villages respectively, and what measures should be taken to try and ensure those targets are met.

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Type of Housing to be built

2.10 Another issue to be considered is what type of new housing should be built? The housing needs survey undertaken in the District in 1998 showed the existing stock to be heavily biased towards detached and semidetached houses and bungalows (80% of local stock compared with 53% nationally), whereas flats (8%) and terraced properties (12%) are under-represented compared with national figures (19% and 27% respectively). Also, bearing in mind the expected increase in smaller households during the Plan period, the Council is keen to encourage developers to build more small, (1 and 2 bed) dwellings at higher densities than have been achieved in the past. Good quality, higher density development can be achieved when developers and the Local Planning Authority work together towards agreed objectives on any particular site. The Council will produce Supplementary Planning Guidance and Development Briefs to establish guidelines for new residential development, as recommended in recent advice from the DETR and House Builders Federation (Housing Layouts- Lifting the Quality).

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Affordable Housing

2.11 The inability of large numbers of people to compete successfully in the housing market remains a major problem. A District wide survey of local housing need undertaken in 1994, showed a need (in the period up to 2001), for around 130 affordable homes per annum, simply to meet the requirements of ‘concealed’ households in the District.

2.12 The Council transferred its housing stock to the Signpost Housing Association (formerly North Dorset Housing Association) in September 1994. Since then, it has sought to develop its enabling role by encouraging and helping to finance developments by many different Housing Associations operating in the District. On average about 80 new Housing Association dwellings have been built each year since 1994. The Council produces an annual "Housing Strategy Statement" which aims to draw together all the various branches of housing policy (such as affordable and special needs housing, energy efficiency and housing condition) and set targets for future action in each area. The preparation of this Local Plan presents an opportunity to identify new sites where affordable and special needs housing may be sought as part of the development. The issues to be decided are how much affordable housing will be needed during the Plan period, and where is it most needed?

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The Structure Plan Strategy

2.13 The concept of sustainable development forms the guiding principle of the Bournemouth, Dorset and Poole Structure Plan to 2011. It does not rule out new development, but encourages us to consider its wider implications.

2.14 In respect of housing the Structure Plan aims to "make adequate provision for the housing needs of Dorset". In more detail, it aims to ensure that an adequate supply of dwellings is available to house the workforce necessary for the development of the local economy, to provide for those who cannot compete for market housing, and to ensure that those in special need of help or supervision are well housed.

2.15 The purpose of this Local Plan is to put flesh on the bones of the Structure Plan strategy by making proposals for the development of land which will help to meet the identified needs.

The District Housing Allocation

2.16 The overall housing allocation for the District is set out in the Structure Plan. This Plan, in its turn has had to consider guidelines for future housing development set by the Government in its "Regional Planning Guidance for the South West" (R.P.G.10 - 1994).

2.17 The regional guidance recommended an annual average construction rate of 3,150 dwellings in Dorset between 1991 and 2011. When allowance had been made for those dwellings built between 1991 and 1994, this left a requirement for 53,900 dwellings to be built in the County between 1994 and 2011.

2.18 The Structure Plan, proposes a slightly lower figure of 52,900 dwellings for the County as a whole. This figure was investigated at an "Examination in Public" into the Structure Plan. The Panel conducting the examination concluded that the overall figure should be retained but that take-up of housing land should be carefully monitored to ensure that pressures on the housing market do not lead to an unacceptable increase in social problems. This approach was endorsed by the then Secretary of State for the Environment, Transport and the Regions. For the purpose of this Local Plan therefore, the housing allocation for North Dorset set down in the Structure Plan, has been taken as the guideline on which to base the housing proposals of the Plan.

2.19 Housing Policy A of the Structure Plan proposes that about 5,900 dwellings should be constructed in North Dorset between April 1994 and March 2011. Table 1 shows the situation with regard to outstanding commitments at 31st March 2000.

Table 1 North Dorset Housing Provision^*

* Base date of 1.4.00
** Total commitments adjusted to allow for a likely take-up rate on windfall sites not yet started of 60% in the towns and 70% in the rural area. 100% take up rate assumed on other sites.

2.20 Of the outstanding requirement for 2,430 dwellings, some development will come forward on infill and windfall sites within the towns and villages, while the remainder will have to be sought on greenfield sites.

2.21 Assuming a continuation of past trends of windfall development in the towns and a rate reduced by 50% in the villages (to reflect the constraining influence of the settlement boundaries), it has been estimated that around 1,800 dwellings should be built on windfall sites during the plan period. When development and commitments at 31st March 2000 are accounted for, it is calculated that around 680 dwellings will come forward on these sites during the remainder of the plan period.

2.22 This leaves a requirement of about 1,750 dwellings to be provided on greenfield sites. Altogether, development on greenfield sites will account for about 60% of the total development in the District, if these requirements are met. The Government has recently suggested¹ that nationally, up to 60% of new housing built over the next 10 years, should be on "brownfield" sites. (i.e. those sites which have been developed before). However, in a rural area such as North Dorset, this target would be extremely difficult to achieve. The densely built up centres of the small towns in the District offer few opportunities for brownfield development. This is a problem common throughout the South West region, where, in recent years only around 37% of new housing development has been on brownfield sites.

2.23 The government has indicated that it will expect Regional Planning Conferences to set more realistic targets for the development of housing on brownfield sites, for each region, together with indicative targets for Structure Plans and Local Plans. The aim of the most recent Regional Planning Guidance for the South West² is that 50% of new development should be on brownfield sites. As yet, this figure has not been disaggregated to County or District levels. Until this guidance is available, every encouragement will be given to developments on brownfield sites. However, the plan must also make adequate provision for greenfield development to ensure the housing requirements of the District are met.

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Policy 2.1

2.24 In order to promote sustainable patterns of development, most new housing will be concentrated in the four main towns of the District, in accordance with the overall strategy of the Plan set out in Policy 1.1. Furthermore, as part of the Government’s drive towards achieving a higher proportion of development on previously developed (i.e. "brownfield") land, there needs to be a systematic appraisal of other development opportunities before greenfield sites are released. A "sequential approach" therefore will be used in determining planning applications to ensure that further greenfield development should only go ahead if it is necessary to meet the needs of the local community, and that the proposal could not be met in an alternative, more sustainable way.

2.25 As explained in para 2.21 above the development potential of windfall sites in the District has been assessed. There are opportunities in each of the towns as well as many villages for developments that make good use of previously developed land or for conversion or re-use of existing buildings. This form of development will be encouraged. Further work will be undertaken to monitor and assess the potential of urban areas to accept more development of this type, in line with Regional Planning Guidance.

2.26 However, a proportion of the overall housing requirement in North Dorset will need to be met on greenfield sites. A number of these sites already have planning permission. (See Policy 2.4.) The Council will continue to monitor the land availability situation and in particular the availability of brownfield sites, in order to ensure that the future release of greenfield land does not impede brownfield development. Before making an application for a greenfield site, potential developers should therefore discuss with the Council the current land availability situation in the District and whether or not the proposed development might be realised on previously developed land. In deciding an application for greenfield development the Council should be satisfied that the sequential approach outlined above has been followed.

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Policy 2.2

Distribution of Development

2.27 In considering where new housing should be located, a first priority has been to focus development in the towns (principally Blandford, Gillingham and Shaftesbury), in accordance with the overall strategy of the plan. Developments here will support the employment opportunities, shops, services and public transport links which already exist. A second aim has been to develop sites which are within reasonable walking or cycling distance of the town centres. Topographical constraints such as land of high landscape quality, land liable to flood, or physical barriers such as the Blandford bypass have also been taken into consideration.

2.28 Outside the towns, new greenfield sites have been restricted in an attempt to reduce the high levels of development seen in the rural areas in recent years. (Between 1990 and 1996 over 30% more dwellings were built than were planned).

2.29 The approximate distribution of development between the towns and rural area will be as set out in Policy 2.3.

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Policy 2.3

Settlement Allocations

2.30 In order to meet the housing needs of the District, the sites identified under Policy 2.4 below are allocated for residential use. The "potential dwelling supply" is a guide to each site’s capacity, based on an average net site density of 30 dwellings per hectare, (unless indicated otherwise). The figures in Column A should be seen as a minimum, subject to good design and layout principles as in the Council’s urban village approach. This is explained further in para. 2.31 below. The "affordable housing potential" is a guide to the number of affordable (subsidised and low cost) dwellings which will be sought on particular sites. This is explained further under the section on affordable housing. The proposed phasing periods identified in Column C are explained below (para. 2.40 – 2.45). Each site is discussed in more detail under the relevant settlement statement in Part 2 of this document.

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Policy 2.4

Form of Major Housing Development

2.31 There is a need for major housing development to make better use of greenfield sites through careful design and use of higher densities. The "Urban Village" concept promotes housing design which always fronts onto public areas, creates natural vistas and transport links with existing developed areas, creates a sense of enclosure and is planned and integrated with open space, employment and community facilities. The Council has recently introduced an "Ecological Housing Code" which sets out standards on matters such as energy and water conservation and use of sustainable materials, by which all future developments by Registered Social Landlords will be judged. It is also hoped to promote this code with private sector developers.

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Policy 2.5

Infill and Windfall Development

2.32 In addition to the development of the allocated sites listed above, opportunities exist within the settlement boundaries of the towns and villages for infilling and small scale development or redevelopment. Windfall sites include previously-developed land that has unexpectedly become available as well as conversions. In the past some greenfield sites were included in this category. However, in accordance with PPG3, no new greenfield land will be considered as a windfall site. Estimates of the likely supply of dwellings on windfall sites are currently being updated through an "urban potential study". If the results of the study indicate that estimates in the Plan need amendment, revised figures will be published as Supplementary Planning Guidance.

2.33 Within the towns, some fairly substantial mixed use sites have been identified for development. (For instance the former Livestock Market at Sturminster Newton and Oakwoods site at Gillingham.) Development of these brownfield sites will contribute towards the windfall element of the housing allocation for each town.

2.34 However, not all sites within the settlement boundary will be suitable for development. (Particular care will be taken to protect the character of those sites identified as "Important Open or Wooded Areas.") The appropriate density of this form of development will depend on the character of the site and its location. Where small groups of houses are permissible, this should not, through aggregation, lead to the development of larger estates.

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Policy 2.6

Sites with Outstanding Planning Permission

2.35 In accordance with PPG3³ all applications for the renewal of a residential consent will be scrutinised for compliance with current policy. Renewal will not be automatic. Some applications may not meet current policy while others may need to be revised to accommodate higher quality development that makes better use of the available land.

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Policy 2.7

Monitoring

2.36 The Local Planning Authority will seek to ensure that the housing needs of the whole community are met through the housing policies of this Plan. To do this an effective system of monitoring must be in place so that any necessary adjustments to the Policies or their implementation can be put into practice quickly.

2.37 During the 1980s North Dorset experienced rapid growth rates. Actual development rates in the whole District exceeded those planned by around 13%. This trend has continued into the 1990s. During the first five years of this Plan period, the expected average development rate in the District has been exceeded by 18%. Excessive unplanned growth rates are not sustainable indefinitely since they can result in unexpected pressures on schools, health and social services as well as local infrastructure.

2.38 PPG3 (para 77) sets out those factors which Local Planning Authorities need to monitor. These include:

• Number of dwellings provided in the Plan area
• Proportion of dwellings provided on previously developed land or by re-use of existing buildings
• Numbers of dwellings provided on windfall sites
• Numbers of affordable dwellings provided
• The variety of types and mix of sizes of housing
• Density of new development, and
• Car parking provision.

In order to be able to monitor these factors, a target or indicator needs to be established against which to measure progress. Table 2 below sets out the indicators for each of these factors in North Dorset.

Table 2: Housing Indicators

Definition of indicators used. 

Overall dwelling numbers: Dwellings includes all self-contained units of accommodation. The figure is set out in Policy 2.1 and refers to gross completions.

Dwellings on previously developed (brownfield) sites: As defined in PPG3, includes land currently or previously occupied by a permanent structure, (excluding agricultural or forestry buildings), including the curtilage of the site.

Windfall development: Windfall sites include any site not allocated for development in a Local Plan. Estimates of windfall development are based on past trends of such development with adjustments to account for current Plan policies. (See Policy 2.6 and Housing Topic Paper 1999). Affordable dwellings: Includes both subsidised and low cost market housing specifically provided to meet identified housing need. Estimates of need based on 1998 Housing Needs Survey. (See Policies 2.12, 2.13 and 2.14 and "The Need for Affordable Homes in North Dorset 1998-2011", December 1998).

Density of development: Refers to the net site density of any site. Includes access roads, parking areas, private gardens, incidental open space/play areas. As set out in Policy 2.10 and paras 2.30, 2.46-2.47.

Car parking: Includes the number of defined spaces per dwelling, (not other on-street parking). Standards set out in Table with Policy 5.17.

2.39 The District Council will monitor the factors outlined above and will publish an annual report detailing progress against the indicators in Table 2. Progress will also be assessed according to the phasing requirements of the Plan set out in Table 3, and for individual towns against the criteria in the Town Statements in Part 2 of the Plan. Where targets are being significantly exceeded or under achieved (i.e. by + or – 10%), the Council will take steps to rectify the situation as explained in the following section on phasing.

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Policy 2.8

Phasing the Release of Land for Development

2.40 PPG3 requires that Local Plans should include policies for the release of sites for housing development, following the presumption that previously developed land should be developed before greenfield sites. Unfortunately, many of the larger greenfield sites allocated in this Plan had already been granted permission before this requirement came into effect.

2.41 In order to manage the controlled release of the remaining housing land, to ensure that as far as possible "previously developed" land is brought forward for development before greenfield land is released and to enable the provision of necessary infrastructure alongside new housing, the Plan period has been divided into three phases of development and sites programmed accordingly. (See Policy 2.4 and further details under each town statement).

2.42 Phase 1 covers the period of 01.04.94 – 31.03.00 during which the Plan was being developed and the first sites released. Phase 2 covers the period 01.04.00 – 31.03.06 during which the bulk of new sites will be brought forward for development, although not all will be built out during this period. The final phase of 01.04.06 – 31.03.11 will allow for adjustments to be made according to progress on earlier phases. For instance if planned densities on earlier sites have been exceeded or more windfall development than anticipated has come forward, the sites allocated for the final phase may be held back or additional windfall development be refused permission until the situation has stabilised. Conversely, if some sites planned for earlier phases have not come forward, or windfall/brownfield or affordable housing development has fallen short of expectations, sites planned for the later phase may be released earlier to ensure that anticipated development rates will be achieved.

2.43 The phasing of individual sites is shown in Policy 2.4. As mentioned above, a large amount of development is scheduled for Phase 2, largely because it has been committed through early granting of consent. The anticipated rates of development in each phase, based on commitments and the phasing programme identified in Policy 2.4 is as follows:

Table 3 Phasing - Expected Rates of Development

*Figures updated at Local Plan Committee 04.04.02.

**This figure represents a 7% over-supply on the original planned total of 5900 and should not be seen as the base figure for dwelling supply in the District.

2.44 When a site is programmed for a particular phase it is intended that development should not start on site before the beginning of that phase. Planning applications may be processed in the run up to that period, but may be subject of conditions or a legal agreement to ensure that development does not commence until the relevant period. In some cases phasing may be related to the provision of a particular facility or service that is of strategic importance to the development of the Town. For instance in Gillingham the provision of a new primary school at Ham is needed to serve the south-eastern part of the town. Development of the Ham Farm site needs to account for this.

2.45 To merit a change from the phasing programme set out in the Plan it must be shown that planned levels of development are being significantly exceeded or under achieved (i.e. by + or – 10%). This assessment should be made towards the end of a particular phase when enough time has elapsed to be able to gauge whether or not the strategy is being met. Any proposed changes to the Plan’s programme of development will be published as Supplementary Planning Guidance and made available for public comment prior to implementation.

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Policy 2.9

Density of New Development

2.46 The density of any new development will vary considerably from site to site. In the past higher densities have normally prevailed in town or village centres, with lower densities towards the outskirts. However, in view of the need to house growing numbers of small households and to protect the countryside from unnecessary development, it is likely that average densities of new development on the edge of settlements will need to be higher than in the past. Government advice is that densities of between 30 and 50 dwellings per hectare should be encouraged, with greater intensity of development at locations with good public transport accessibility.

2.47 The potential dwelling supply calculated on most greenfield sites has assumed an average net site density of 30 dwellings per hectare. However, many sites are being developed at higher densities, in line with Government advice. It is anticipated that most sites will contain a mix of dwelling types offering areas both above and below the average. (see also the section on Low Cost Market Housing paras. 2.80 – 2.85). Ultimately, the density of new development should respect the character of the locality. Good design can be achieved with higher densities if care is taken in the way the site is laid out and with the form of housing provided. These issues are particularly important in Conservation Areas.

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Policy 2.10

Dwelling Extensions

2.48 Extensions to dwellings will be required for a variety of reasons. However, poorly designed extensions can cause a number of problems. They can detract from the character of the original dwelling, damage the street scene and may adversely affect the amenity of neighbouring properties. Smaller extensions often fall within the "permitted development" limits of the Town and Country Planning (General Permitted Development) Order 1995, and do not require planning permission. In certain circumstances, such as in developments of a particularly high density, the conversion of an historic building or development of agricultural, affordable or low cost dwellings, the Local Planning Authority may consider removing some or all of the householder "permitted development" rights.

Policy 2.11

Affordable Housing

The situation in North Dorset

2.49 The Council is concerned with the lack of accommodation in the District to satisfy the needs of those who cannot compete in the open market. The high level of migration into North Dorset forces house prices up as the newcomers often have greater resources than those living and working locally. However some new comers will also be in need of affordable housing - for instance, some people seeking a job in the area, or elderly people needing to move closer to their relatives.

2.50 In 1998, the Council commissioned a second Housing Needs Survey to find out more about the housing problems in the District. Several relevant factors shown up by the survey are identified below:

• There were around 980 "concealed"⁴ households in the District, of whom 75% were single person households. Over 80% of the concealed households were seeking 1 or 2 bed accommodation.

• The average income of house purchasers in the District was £26,400. However, over 90% of the concealed households in the District had incomes of £17,500 or less.

• The average price of property in the District was £82,800 (some £9,000 higher than the UK average). There was very little property available at a price below £50,000.

North Dorset has a much lower proportion of flats and terraced houses within its housing stock than the national average (In 1991 the local proportion was 28% compared with 47% nationally. In 1998 the proportion had dropped to around 20% locally).

2.51 It was clear from these findings that there is still an "affordability" problem in the District, and a need for more small dwellings. Although the situation does seem to have improved since 1994 when over 1,600 concealed households were identified, it should not be assumed that this necessarily indicates a downward trend in housing need. A report analysing the results of the survey, entitled "The need for Affordable Homes in North Dorset, 1998 – 2011" has now been published by the District Council. The Council will continue to monitor the housing need situation closely, and will publish further information as and when available.

What is meant by "affordable" housing?

2.52 The Government uses the term "affordable" housing "to encompass both low-cost market and subsidised housing, that will be available to people who cannot afford to occupy houses generally available on the open market".

2.53 Subsidised housing is normally provided by a "registered social landlord" (i.e. a housing association or other body regulated by the Housing Corporation as a social landlord, as defined by the Housing Act 1996). The accommodation provided is usually subsidised by grants from the Housing Corporation and/or Local Authority. Rent/mortgage levels are controlled ultimately by Housing Corporation sanctions. Occupation is limited to those on a "Waiting List" or "Housing Needs Register". It is therefore relatively easy for the Local Authority to monitor this form of housing and ensure that those in most need of local housing benefit from the provision.

2.54 Low cost market housing is understood to be housing which is provided by the private sector, where the price of property may be restricted through conditions or legal agreement requiring for instance, a higher than average density of development, a restriction of "permitted development" rights and/or control over the type of occupants, (e.g. by limiting the housing provided to people over a certain age).

2.55 There are several problems in trying to equate this type of housing with affordable housing provided through subsidy. First, low cost market housing can only effectively be provided in the larger towns of the District where land values are generally lower than in the villages. Subsidised housing however, can be provided throughout the District . Secondly, the Local Authority has no means of monitoring who actually purchases the "low cost" property. Some could be purchased by people who have the means to afford more expensive properties but choose, (for retirement or other reasons) to buy a smaller, cheaper property.

2.56 If the Council tried to impose tighter controls, for example restricting occupation of the low cost housing to those who satisfy the criteria of "Local housing need", (set out in para 2.59 below), it would place an onerous burden on the Local Planning Authority, who would have to monitor and enforce the proper occupation of the property, not just initially, but for every subsequent change of ownership. North Dorset District Council does not have the resources to undertake such measures.

2.57 The Council’s aim is to increase the stock of affordable homes in the District to meet the needs of those households who cannot afford to purchase or rent housing which is generally available on the open market. It is accepted that both low cost and subsidised forms of housing have a role to play in meeting the need for affordable homes. Low cost market housing can provide a "foot in the door" of home ownership for first time buyers, while subsidised housing provides homes for individuals and families who have no means or desires to own their own home. Thus the council will seek through the policies of this Plan to increase the stock of both types of affordable housing wherever possible and achievable.

2.58 The 1998 Housing Needs Survey showed that those households earning less than £20,000 would find it very difficult to purchase anything more than a small flat or terraced property in one of the four main towns in the District. The calculation of the overall level of housing need explained below, thus relates to households whose income is below this threshold and who are unlikely to be able to access property priced at or above average priced terraced dwellings in the District.

Who qualifies as in "local housing need"?

2.59 There are four main categories of household accepted as in housing need:

1. Those households already living in the area who need separate accommodation, (such as newly married or co-habiting couples, or people forced to seek a new home because of family break up or other problems).

2. Existing residents who have to find alternative accommodation because of changes in their financial circumstances, (for instance through loss of a job or tied accommodation, or through changes in the Housing Benefit regulations), or because they are living in housing which is insanitary, overcrowded, temporary or occupied on insecure terms.

3. Households who need to move into the area, (for instance those people who need to move close to relatives for reasons of health or social support.)

4. People with the offer of a job in the locality, but who cannot take up the offer because of a lack of affordable housing.

2.60 Of course many people could claim that they satisfy these criteria, the deciding factor has to be whether they could afford local market housing. To qualify as being in local housing need, the household should have been identified through a local Housing Needs survey, be included on the current Housing Needs Register or should provide the relevant information on their local connections, income level etc. on a form to be provided by the Council.

What is meant by "local"?

2.61 Affordable housing should be provided to meet local needs. To this end, potential occupants of affordable housing schemes from the parish or town where the proposal is located, or an adjacent parish will have highest priority. However, it should be recognised that people from other locations may also have valid reasons for needing to move to a particular town or village. As such, if there are insufficient occupants from the immediate area those from a wider area within the District, then from the County, adjacent Local Authorities and elsewhere will be considered, providing they meet one of the above criteria.

2.62 In the case of housing allowed under the rural "exceptions" policy (see Policy 2.14 below) the Council will expect occupants to have a close connection to the particular village where a scheme is proposed, or an adjacent parish.

The level of need in the District

2.63 The results of the 1998 Housing Needs Survey have been used to project forward the need for affordable homes in the District up to 2011. (The detailed calculations are explained in the report "The Need for Affordable Homes in North Dorset 1998 – 2011").

2.64 Altogether, it is shown that in order to meet the needs of those on the current "Housing Needs Register" as well as an estimated future needs of homeless and concealed households, around 1,615 new affordable dwellings will be needed. Most of this need is for subsidised housing.

2.65 To meet this need in full would require an annual construction programme of 124 dwellings, which is equivalent to 36% of the average annual new build programme in the District. When existing planning consents are taken into account, the proportion of subsidised housing required rises to just over 50%.

2.66 To expect to achieve such a high proportion from each new development site is unrealistic. It is also unlikely that the necessary financial resources from this Authority and the Housing Corporation will be available to help fund such a heavy new build programme. Bearing these factors in mind, the Council proposes a more realistic target of 650 new subsidised dwellings to be built between 1998 and 2011.

2.67 Low cost market housing also has a role to play in meeting needs. Those households who are earning between £10,000 and £20,000 should be able to purchase a property priced at between £31,500 and £63,000. (This is based on the formula: Property price = 3 x household income + 5%).

2.68 A few small flats and terraced houses are available at this price in the four main towns. However, prices in the rural area are much higher and low cost market housing is not expected to be achievable here.

2.69 Altogether the results of the Housing Need Survey show that around 520 low cost market flats and terraced houses should be provided. These will help meet the needs of the many small, low income households, who are hoping to buy a property in the District. Thus, the overall target for affordable housing in the District is for 650 subsidised and 520 low cost market dwellings, 1170 dwellings in total.

2.70 The level of provision sought in particular towns and villages, should reflect the local need in that area. As such, the total requirement will be split in the following manner: Blandford 36% (420 dwells.), Gillingham 22% (260 dwells.), Shaftesbury 22% (260 dwells.), Sturminster Newton 9% (100 dwells.) and Stalbridge, and the remaining rural area 11% (130 dwells.). This forms the basis on which the targets for the individual sites identified in Policy 2.4 have been calculated. If necessary, these targets may be adjusted in the light of any changes in the pattern and type of housing need shown through later surveys.

On which Sites will Affordable Housing be Sought?

2.71 A community’s need for affordable housing is a material planning consideration which may properly be taken into account in formulating development plan policies. The Council will therefore seek to negotiate with developers to secure a proportion of the dwellings on specific, "suitable" sites as affordable homes. The proportion of dwellings sought will reflect local need in the area. For guidance, the "Affordable Housing Potential" of new housing allocations in the plan, is shown in column B of Policy 2.4.

2.72 Guidelines on the size of site on which local authorities may negotiate for an element of affordable housing are set out in Circular 6/98. This Circular introduced the ability for Local Planning Authorities to adopt "appropriate" thresholds, based on an assessment of local needs and the available supply of land for housing, in settlements with a population of 3,000 or fewer. It also suggests that, in larger settlements where there are "exceptional local constraints" a threshold below the normal 25 dwellings, or 1.0 hectare site size, may be introduced.

2.73 The Housing Needs Survey has shown that, despite the building of about 100 subsidised dwellings over the last four years, there is still a significant need for more affordable housing in Blandford. The tight-knit character of the town means that there are limited opportunities for windfall sites of 25 dwellings or 1.0 hectare to come forward. Nothing of this scale has become available during the last four years. Allocated sites are also more restricted here than in Gillingham and Shaftesbury, as the town has almost reached the practical limits for sustainable growth. The Council therefore proposes to implement the lower threshold of 15 dwellings or 0.5 hectares in Blandford.

2.74 This lower threshold will also apply to Sturminster Newton whose population is below 3,000. The normal threshold of 25 dwellings or 1.0 hectare will apply in Gillingham and Shaftesbury.

2.75 In Stalbridge and the villages listed in Policy 1.4, around 100 units of subsidised housing are needed on windfall sites. When existing commitments are accounted for, over 40 units will still be needed. In view of the limited availability of sites of 15 or more dwellings, or 0.5 hectare in size in the villages, a lower threshold of 8 dwellings or 0.25 hectare is proposed. The Housing Needs Survey showed that needs in most villages were for around 3 or 4 dwellings. A site of 8 dwellings (or 0.25 ha) is considered to be the minimum practicable size of site on which to negotiate for this level of subsidised housing. No low cost market housing is being sought in the villages as residential land values are too high to enable housing to be developed at an affordable price.

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Policy 2.12

Subsidised Housing

2.76 In respect of the subsidised housing the Council will encourage the developer to make arrangements with a registered social landlord who will develop and/or manage this element of the scheme. Where the registered social landlord is both developer and manager of the housing, further planning constraints will not normally be necessary. (Other than in the case of the rural "exceptions" policy. See paras. 2.92 – 2.96 below).

2.77 Where a private developer is to build dwellings which a registered social landlord will subsequently manage, the Council may wish to negotiate a legal obligation with the developer to ensure that a proportion of the general market housing cannot be occupied until the affordable element has been built and transferred to a registered social landlord. Or if a registered social landlord is not forthcoming, the Council may seek to negotiate a financial contribution towards an alternative site in the same town or village.

2.78 In transferring the land (or dwellings) to a registered social landlord, a level of subsidy may have to be met by the landowner. The aim of the subsidy is to enable the housing to be provided at a rent (or joint rent/mortgage) which will be affordable by those in housing need. For example, it was shown in para. 2.50 above that those defined as in need of subsidised housing (i.e. were earning less than £17,500) had incomes at least 33% below that of the average house purchaser in the District. The level of subsidy needed may therefore be in the region of one third of the freehold value of the property, or equivalent to free or substantially discounted land, depending on the particular circumstances (location etc.) of the proposed development.

2.79 To ensure that the housing remains available at an affordable price/rent to subsequent occupants, a legal obligation may be sought from the developer (unless it is a registered social landlord) to limit the occupation of the property, (both for initial and subsequent occupants), to those in local housing need. (See para 2.59 above).

Low Cost Market Housing

2.80 In respect of the low cost market housing, the Council’s aim is to increase the supply of small flats, bedsits and terraced dwellings in the District. The Housing Needs Survey showed that over 80% of the concealed households were seeking 1 or 2 bedroom sized accommodation.

2.81 The Council wish to negotiate with developers to achieve the targets set out in Column ‘B’ of Policy 2.4 on the "allocated" sites and similar proportions on any suitable windfall sites in the towns.

2.82 To achieve housing which is affordable, these units may be built at higher than average densities, minimal car parking requirements will be applied and "permitted development" rights may be restricted to ensure that the dwellings remain available as small units. Planning conditions or a legal agreement may be required to ensure that the appropriate mix and size of dwelling is provided.

2.83 In the past, problems have arisen in defining what is an affordable price for this type of housing. Setting a "top price" will not be effective over the full term of the Local Plan, and will not reflect the various income levels of the households in need.

2.84 To clarify the Council’s intentions on this issue, low cost market housing is defined as follows:

"A low cost market dwelling shall be priced at no more than 3 x household income + 5% of those households identified as in local housing need in up-to-date housing needs survey approved by the Council. A mixture of dwelling types should be provided in any low cost market scheme".

2.85 The Council will initiate regular district-wide housing need surveys to provide an up to date information base. In interviewing periods more limited surveys may be undertaken, or updated house price/income data will be published by the Planning Department. This will be used as the basis for any legal agreements or planning conditions applied to this type of housing.

Greenfield Sites

2.86 In deciding which particular sites are suitable, for affordable housing, the Council has borne in mind the relevant size of site and other factors such as the availability of local services and public transport, as well as the need to consider the cost of meeting other planning objectives (such as expensive highways infrastructure) on some sites.

2.87 Policy 2.4 shows what the Council considers to be the affordable housing potential of the sites allocated in this plan, and this will form the basis for any future negotiations with developers.

2.88 Some of the sites listed in Policy 2.4 are relatively large, and in two or more separate ownerships. In such a situation the Council will wish to negotiate the best possible location for the affordable housing within the site, but will expect all landowners involved to contribute towards the cost of provision. Occasionally, a site may satisfy all the criteria for the provision of affordable housing, but it may be considered preferable to seek or give a financial or other contribution to a site elsewhere in the locality. The Council will be willing to negotiate in this way providing it will help to achieve the overall targets for affordable housing set out in this Plan.

Windfall Sites

2.89 It is hoped that the remaining 520 or so affordable dwellings, will be provided on windfall sites. Where sites of the relevant size set out in Policy 2.11 come forward, the Council will seek to negotiate a proportion of the development as affordable housing; the proportion will reflect the level of local need shown in an up to date survey.

2.90 In the past, Housing Associations have independently acquired and developed small sites in the main towns and villages, or have developed land which they already own to provide additional affordable dwellings. The Council will encourage further developments of this nature, particularly where they would involve the re-use of vacant floor space in or around town centres, conversions of large property into units more suitable for small households, or the bringing into use of vacant or derelict land. Windfall developments will be particularly important in Blandford and the rural settlements, since greenfield opportunities here are limited.

2.91 In all affordable housing schemes, the Council will seek to incorporate a mix of housing types and sizes, to enable a well balanced community to develop, and will expect a good quality of design which respects the character of the locality.

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Policy 2.13

Rural "exception" Sites

2.92 In villages where it can be shown (through a Housing Needs Survey or waiting list data) that a need exists for a small development of affordable homes which cannot be met on an allocated or windfall site , the Local Planning Authority may, as an exception to normal policy, give sympathetic consideration to a suitable site within or adjacent to the settlement boundary. This policy will apply to all settlements of 3,000 or fewer population (including the small town of Stalbridge).

2.93 This policy will also apply to villages or hamlets without a defined settlement boundary, subject to the scale of development proposed being related to the size of settlement. (i.e. Within a small hamlet, a single dwelling or pair of dwellings may be all that should be provided). In small settlements of a dispersed character, the proposal should take the form of infilling of an otherwise built up frontage, to avoid further extension of the settlement. Where a registered social landlord wishes to redevelop its own property and possibly intensify use of the site, the proposed development will be considered under this policy.

2.94 Safeguards (in the form of a legal agreement), to ensure the continuing use of the property to meet local needs will be essential in this form of development, even if the developer is a registered social landlord. The Council will not wish to include clauses in such an agreement, to enable sale of the property on the open market as a last resort, since this would jeopardize local trust in the rural "exceptions" policy.

2.95 Occasionally, the need may arise for a single private dwelling, for a household with local connections but no proven agricultural or forestry need. Such proposals should be considered under the "exceptions" policy set out below. Dwellings allowed under this policy are likely to be restricted in floorspace or number of bedrooms and may have "permitted development" rights withdrawn, to ensure that the dwelling remains "affordable" for future as well as initial occupants. Persons applying in this way must show that they satisfy the criteria of need set out in para 2.59 above and that their need is strictly related to the parish where the housing is being sought, or an adjacent parish. The Council will also wish to ensure that all other means of providing housing locally have been explored before granting permission for this type of development.

2.96 Any development permitted under this policy will not count against the overall housing allocation for the District, but will be taken into account as helping to meet the need for affordable housing, when the Plan is reviewed.

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Policy 2.14

Replacement Dwellings in the Countryside

2.97 Although new residential development in the countryside is not normally permitted, there are occasions, such as when an existing dwelling falls into disrepair, that it may reasonably be replaced on a one for one basis. If the dwelling concerned is a Listed Building, the criteria set out in Policy 1.22 will be used to determine whether it may be demolished.

2.98 A replacement dwelling should be designed to a high standard and respect the character of the rural area. Proposals for replacement dwellings will only be acceptable if they relate to existing buildings where the use has not been abandoned. Mobile homes, or other dwellings allowed on a temporary basis, will not be considered suitable for replacement by permanent dwellings, unless their need has been justified during the trial period.

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Policy 2.15

Dwellings for Agricultural or Forestry Workers

2.99 One of the few occasions when a new dwelling may be permitted in the countryside, is to satisfy the need of a farm or forestry enterprise. In determining planning applications for such dwellings the Local Planning Authority will consider the needs of the enterprise concerned, not those of the potential owner or occupier.

2.100 Planning permission will only be granted for a dwelling which is essential to the enterprise concerned. The applicant will be expected to consider the suitability of any other housing available on the farm or locally, or the possibility of converting a redundant building on the unit, before pursuing a new dwelling. Where any dwelling(s) have recently been sold separately from the holding concerned, the Local Planning Authority will expect a reasoned justification for an additional dwelling.

2.101 Dwellings which are unusually large in relation to the needs of the unit, or expensive to build in relation to the income the unit can sustain in the long term, will not be permitted. In some cases it may be necessary to restrict some "permitted development" rights, to ensure that the dwelling does not become too large or expensive to maintain for the unit concerned. The new dwelling should if possible, be situated within or close to an existing settlement, or if this is not feasible, should be related to the main buildings of the farm or forestry unit.

2.102 The applicant will be expected to submit evidence of the functional need for the dwelling. The Planning Authority will also require financial evidence to support the stated intentions of the enterprise concerned. Where information supporting an application is inconclusive, or the application relates to a new enterprise, the Local Planning Authority may grant temporary permission for a caravan or other temporary accommodation to allow time for the viability of the unit to be established.

2.103 Any permission granted will be subject to an "occupancy" condition to ensure that the dwelling is kept available to meet the established need. In certain circumstances, the Local Planning Authority may also impose an occupancy condition on other dwellings on the unit which, at the time of the application, are under the control of the applicant and are used in connection with the farm or forestry enterprise. A legal agreement may also be used to tie a farmhouse to adjacent farm buildings or the agricultural land of the unit. These measures should help protect the countryside from unnecessary development whilst still allowing new dwellings where the need can be justified.

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Policy 2.16

Removal of Agricultural Occupancy Conditions

2.104 Applications for the removal of occupancy conditions will be considered against an assessment of the continuing need for the restricted dwelling in the local area. The removal of a condition will not be permitted unless it can be proved that there is no longer a requirement for an agricultural dwelling on the holding or in the locality, and that a requirement is unlikely to arise in the future. The Local Planning Authority will expect the property to have been advertised at its value with the agricultural restriction, for a period of at least six months, to test the local market. The term " in the locality" as included in the occupancy condition, will normally be interpreted as within 15 minutes travelling time by car (or about 8 miles) from the enterprise concerned.

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Policy 2.17

Mobile Homes

2.105 There are currently three, long established private mobile home parks providing permanent residential accommodation in the District at Winterborne Whitechurch, Ashley Wood (Tarrant Keynston) and Sherborne Causeway (Motcombe). Individual mobile homes also provide temporary accommodation in a number of situations throughout the District.

2.106 The Structure Plan, Housing Policy E states:

"Proposals for the development of residential caravan sites should be treated in the same manner as permanent residential development and be subject to the same policies, except where visual appearance would make a site unacceptable".

2.107 Although the high quality of landscape in North Dorset means that new opportunities for this type of development in acceptable locations will be limited, any planning applications will be considered against the Structure Plan policy and the general assessment criteria of this plan (Policy 1.8).

2.108 However, there is also a need in the District, for individual mobile homes to be used temporarily in different situations. For instance, planning permission may be sought for a mobile home, where there is a need to prove the viability of an agricultural holding, before permission is granted for a permanent dwelling; to house elderly relatives close to their carers (or vice versa), where the practicality or cost of a permanent extension is unwarranted; to accommodate the occupants of a dwelling being restored/rebuilt; or to accommodate a gypsy household (see Policy 2.21).

2.109 Applications for this type of use may often be in areas where the establishment of a separate residential use would not normally be acceptable. In these circumstances permission will only be granted where the need can be justified, and the normal assessment criteria met. Any permission granted will also be limited to a specific time period which will be determined by the Council, depending on the circumstances of the proposal. A legal obligation will be sought from the applicant to ensure that, at the end of the period, the site will be returned to its previous use. This will enable the Council to maintain long term control over the site.

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Policy 2.18

Conversion of Property to Multiple Units

2.110 Dwellings are not always occupied by single family units, but may be shared for a number of reasons. For instance, a house may be used by students, each with their own bedroom, but sharing other facilities. A property may offer bed and breakfast or guest house accommodation on a short-term basis for holidaymakers or on a longer term for the homeless. A property may also be divided into self-contained flats.

2.111 The District Council has adopted a Corporate Policy⁵ which defines the various categories in more detail. Under the terms of the Town and Country Planning (Use Classes) Order 1987, the use of a dwelling house for any of the various categories of multiple occupation usually requires planning consent except in the case of houses occupied on a shared basis where no more than six people share the accommodation and live as a single household.

2.112 It is recognised that the conversion of a property to multiple accommodation, can make good use of a building by utilising vacant or under-used space and providing relatively cheap units of housing. However problems can also arise. The demand for car parking space, for storage of refuse, clothes drying facilities etc. all increase as more households are accommodated. The cumulative effects of several conversions may harm the character of an area by the extensive hard surfacing of gardens or development of unsightly external staircases. Generally conversion to self-contained units of accommodation is preferable to units with shared facilities since residents identify more closely with their own accommodation and are likely to maintain better standards of upkeep.

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Policy 2.19

Flats over Shops

2.113 The "Flats Over The Shop" Initiative launched by the Government in the Autumn of 1991 and earlier campaigns by English Heritage have highlighted the under use of upper floors in central commercial areas and the potential of this space as a housing resource. In encouraging conversion to residential use, the Local Planning Authority may help to stimulate the creation of a mixed range and tenure of housing to satisfy the needs of a broad cross-section of the local community. Where such sites are unsuitable for residential conversion, alternative proposals such as office/business uses may be considered as being appropriate. The policy relating to this form of development is included under the "Shopping" section of the Plan. (Policy. 3.27).

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Residential Care Homes

2.114 Within the settlement boundaries of the towns and larger villages, there may be opportunities to convert existing or build new property to satisfy the special requirements of groups of the elderly, handicapped, infirm etc. In view of the special needs of these groups, proposals should be well located in relation to local services and amenities, designed to provide adequate on-site amenity space, with a site layout that enables access for wheelchair users. Proposals should also respect the character of the neighbourhood. As too many schemes of a similar type of high density accommodation could have an adverse effect on an area, the cumulative effect of such schemes will be taken into account.

2.115 Additionally, in the move to provide care in the local community, the need may arise to convert a large property in one of the smaller settlements of the District. It may be beneficial for those whose physical or mental impediments are not too severe, to live in a family type situation in a rural community. (Such a location is unlikely to be suitable for the more elderly or severely handicapped, who need to be within easy walking distance of the services and facilities that the larger settlements provide).

2.116 Where such a proposal involves more than six people sharing the accommodation and living as a single household, planning permission will be required. Proposals will be acceptable providing they show respect for character of the property and local area and satisfy the normal assessment criteria of Policy 1.8.

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Policy 2.20

Housing for the Disabled

2.117 Disability, either temporary or permanent, potentially affects everyone at some stage in their lives. Even perfectly able bodied people have difficulties as parents of young children, in manoeuvring bulky prams or pushchairs in and out of houses. Proposals for the development of land provide the opportunity to secure a more accessible environment for everyone.

2.118 The Government has now amended part M of Schedule 1 to the Building Regulations 1991, to require all new dwellings to be designed and constructed to a standard to meet the needs of the disabled. Item 12 of Policy 1.8 (Standard Assessment Criteria) of this Plan, reinforces this requirement by setting out this Authority’s intention to negotiate with developers for site layouts to provide adequate access for the disabled.

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Provision for Gypsies

2.119 There are currently two authorised Local Authority sites for gypsies at Shaftesbury and Thornicombe, as well as several small, privately owned sites around the District. In recent years, several unauthorised sites used by gypsies and other travellers have sprung up throughout the District, in some cases causing concern to nearby residents.

2.120 The Criminal Justice and Public Order Act 1994 repealed the duty of County Councils to provide adequate accommodation for gypsies. However local authorities will continue to have discretionary powers to provide sites and they have a continuing role, as planning authorities, in relation to both public and private sites. These changes are expected to lead to more applications for private gypsy sites. More private sites should release pitches on local authority sites for those gypsies most in need of public provision. The District Council will monitor the overall need for provision, through the six monthly counts of gypsies in the District undertaken by the Environmental Health Department.

2.121 The definition of gypsies is now taken to mean "persons who wander or travel for the purpose of making or seeking their livelihood" and does not include persons who move from place to place without any connection between their movement and their means of livelihood.⁶ Some "New Age Travellers" may fall within this definition. It is up to the Local Authority to decide whether any particular group is composed of gypsies.

2.122 The burden of the provision of sites is likely to fall on rural areas, however consideration will have to be given to other policies which seek to protect the countryside. In particular, sites will not be appropriate in Areas of Outstanding Natural Beauty or sites of nature conservation or archaeological interest. Favourable consideration may however be given to the redevelopment of derelict or unused sites in the countryside. A distinction will be made between short-term (or transit) sites where only a basic level of services need to be provided, and longer term sites where higher standards including hard-standings for caravans will be needed.

2.123 Any new permanent sites for gypsies should have good vehicular access and be reasonably convenient for schools and other community facilities, such as public transport, shops, doctors and public telephones. Potential nuisance to neighbours from vehicle movements and business uses on these typically mixed use sites will be taken into consideration. All sites should be landscaped to an appropriate standard.

2.124 Conditions or a legal agreement should be attached to the short term/transit sites to restrict their use to a maximum of 9 months in any year. This will give a chance for the site to be cleared during the months when there are fewer gypsies moving through the District.

2.125 Where no other suitable sites or pitches are available, applications for small privately owned sites for an individual family will be considered against the general criteria for larger sites. However, in view of the fact that gypsies are by definition, nomadic, where applications for the stationing of a mobile home or caravan are otherwise acceptable, permission will only be granted for a temporary period. The period allowed will be determined in accordance with the family’s needs (for instance to allow stability while children are of school age.) However, as permanent residential development would not normally be allowed in the countryside, the Council will wish to ensure long term control over the site and will seek the restoration of the site to its former condition, once the time period has elapsed. (See also Policy 2.18).

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Policy 2.21

In addition, long term sites should be reasonably related to schools and other community facilities, and a legal agreement may be sought to control the management of the site. On short-term (or transit) sites a legal obligation will be sought or conditions used to restrict the use of the site to 9 months in any year. Where no other sites are available, temporary permission for a caravan or mobile home to house a gypsy family on a small privately owned site, may be granted providing the above criteria are satisfied.

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Footnotes:

1 DETR "Planning for Communities of the Future"

2 RPG10 (2001)

3 PPG 3 Para 40

4 "Concealed" households are those living within an existing household, but in need of accommodation of their own

5 NDDC Corporate Policy, Houses in Multiple Occupation. November 1993

6 Ref: DoE Circular 18/94