North East Lincolnshire Council

The Council through the policies in this Chapter seeks to ensure that housing developments are directed to the most appropriate sites in terms of sustainability, services and accessibility. In addition, this Chapter addresses the provision of affordable housing and the provision of local needs housing for people unable to compete for housing on the open market or who have particular living standard requirements.

6.2

The Plan Area contains some 68,500 dwellings mostly located within the main urban areas and the defined settlements. Within these areas the predominant use is residential with a number of other uses normally acceptable in housing areas for example isolated shops and occasional business use. Within the established residential areas development opportunities are likely to arise. Such development will be acceptable provided the proposal complements or enhances the residential areas. It is important on the other hand to protect residential areas from inappropriate non-residential development which would be detrimental to their character and result in an overall loss of amenity.

6.3

The unnecessary loss of residential property within residential areas creates additional demand elsewhere. In general proposals which result in an unnecessary loss of residential accommodation, particularly suitable for smaller household needs will be discouraged. However, there may be circumstances where limited loss may improve residential amenity.

Policy H1: Proposed Housing Sites.

The Council will ensure that suitable land is available for 2,000 new dwellings from 2001 to 2006. These will be catered for primarily in the following Proposed Housing Sites:-
Cleethorpes

Taylors Avenue

Whitehall Farm

Hampton Court

R/o Bentley Street

40-43 Kingsway

Blundell Park

Grimsby

Scartho Top

Springfield Hospital

Cambridge Road

10)

Land off Woad Lane

11)

Victoria Mills

12)

Ross Sports Ground (North)

13)

Weelsby Street

14)

Cromwell Road (Abattoir site)

15)

Haycroft Avenue

16)

Fraser Street

17)

Grantham Avenue r/o 21-25a

18)

Westhill Road

19)

Harold Street School site

20)

Heneage Road (All Saints Church)

21)

Central Parade

22)

203 Victor Street

23)

Great Coates (Cooks Lane)

24)

Wellowgate Mews

25)

119-123 Corporation Road

26)

Nunsthorpe Estate

27)

Millennium Park

28)

246 Corporation Road*

29)

Boulevard Avenue*

30)

St John's Workshops*

31)

R/o 501 Weelsby Street*

32)

71-85 Hamilton Street*

33)

R/o 372-416 Wellington Street*

34)

Art College Eleanor Street

Humberston

35)

Midfield Farm

36)

Land off Forest Way

Healing

37)

Stallingborough Road

Immingham

38)

Land south west of Roval Drive

39)

Tower Place

40)

Land adj to County Hotel

41)

Land at Spring Street

Laceby

42)

Land north of Cooper Lane

43)

Land west of site 42

44)

Land off Grimsby Road

New Waltham

45)

R/o Greenlands

46)

R/o Trafalgar Park

47)

Enfield Avenue

48)

R/o 31 Enfield Avenue

49)

Land west of Greenlands Reserve Site (see Policy H2)

Stallingborough

50)

Station Road (adj. railway)

51)

Land off Healing Road

Waltham

52)

Barnoldby House

53)

Golf Course site, Cheapside

54)

Station Road

* Sites not shown on Proposals Maps due to cartographic constraints.

6.4

The Borough Council is required by PPG3 (Housing) to identify sufficient housing land over at least a 5 year period to meet general requirements and to provide a range and choice of sites to cater to the Plan Area's various housing demands. The guidance also advises that the release of housing land be managed, or phased, according to the specific needs of the plan area. A five yearly sequence for the release of housing land is suggested by the guidance. As the end-date for this Local Plan is 2006, and commitments for monitoring and review are made, the housing land proposals meet the broad principles of the planning guidance.

6.5

Prior to the formation of North East Lincolnshire Council in April 1996 the housing land position in Great Grimsby and Cleethorpes was monitored by individual local authority studies and a biennial Great Grimsby and Cleethorpes Joint Housing Land Availability study prepared by the former Grimsby and Cleethorpes Borough Council and Humberside County Council in close conjunction with local house builders and service agencies.

6.6

The latest Joint Housing Land Availability Study, carried out in 1993, showed that the Plan area had a housing land supply of 6,327 dwellings. This figure has however been superseded by work carried out in both the Grimsby and Cleethorpes Local Plans and by more recent monitoring work contained within the monitoring report 'North East Lincolnshire Housing Land Availability - April 2002' which lists all of the Plan Area's housing sites. Policy H1 (Proposed Housing Sites) lists those sites with a remaining capacity of 10 or more dwellings as identified within the North East Lincolnshire Housing Land Availability document.

6.7

The Council intends to continue with the preparation of Joint Housing Land Availability Studies, with the house builders and service agencies to ensure that enough land is available to satisfy housing needs over the following 5 year period.

6.8

The Humberside Structure Plan Alteration No.1, for the period mid-1989 to mid-2006, sets a housing land requirement of 7,350 dwellings for the Plan Area. The Yorkshire and Humber Regional Planning Guidance published October 2001, identifies a housing figure of 880 dwellings per year up to 2016 for North/North East Lincolnshire sub regional area. The proportion split of this overall figure is yet to be agreed between the two planning authorities.

6.9

The Plan identifies suitable sites for 2,000 new dwellings from 2001 to 2006 working to a figure of 400 units per year. The table set out under paragraph 6.16 identifies sites allocated under Policy H1, and identifies their contribution to the overall supply within the plan period.

6.10

Recent Housing Land Availability work has revealed an overall existing capacity for some 3976 dwellings (April 2002) within the plan area. This figure includes land both with and without planning permission and relates to total remaining site capacity. It is not envisaged that all sites will be built out during the plan period as reflected in the table under paragraph 6.16. The capacity of sites without planning permission has been estimated on the characteristics of the site and surrounding densities.

6.11

The Council is currently undertaking an Urban Capacity Study which once completed will identify the extent of brownfield housing opportunities in the plan area, and supplement the overall supply.

6.12

Windfall sites and property conversions will further contribute to the overall supply of housing over the plan period.

6.13

The following table lists the housing sites allocated in Policy H1 and, in addition, shows site area and remaining capacity. Please note that the remaining capacity figures are indicative only and could be subject to change. In addition to the proposed Housing Sites as listed in Policy H1, residential uses at ground floor are acceptable within the Convamore Road and Station Road Proposed Employment Sites.

Site Name		Area (Ha.)	Remaining Capacity Within the plan period
Cleethorpes
1)	Taylors Avenue	27.5	30
2)	Whitehall Farm	32	125
3)	Hampton Court	0.87	19
4)	R/o Bentley Street*	0.1	12R
5)	40-43 Kingsway*	0.16	15R
6)	Blundell Park	1.85	30#R
Grimsby
7)	Scartho Top	94	500
8)	Springfield Hospital	4.86	45R
9)	Cambridge Road	9.17	15R
10)	Land off Woad Lane	3.4	77

Site Name		Area (Ha.)	Remaining Capacity Within the plan period
11)	Victoria Mills	0.63	60R
12)	Ross Sports Ground (North)	1.8	30
13)	Weelsby Street	1.57	19R
14)	Cromwell Road (Abattoir Site)	0.93	39R
15)	Haycroft Avenue	0.45	34R
16)	Fraser Street	0.3	15#R
17)	Grantham Avenue R/o 21-25a	1.09	21
18)	Westhill Road	0.62	12R
19)	Harold Street School Site	0.42	20R
20)	Heneage Road (All Saints Church)	0.21	12R
21)	Central Parade	0.36	20R
22)	203 Victor Street	0.11	18R
23)	Great Coates (Cooks Lane)	3.07	22
24)	Wellowgate Mews	0.28	12
25)	119-123 Corporation Road	0.57	16
26)	Nunsthorpe Estate	7.23	30R
27)	Millennium Park	5.7#	43#R
28)	246 Corporation Road*	0.14	12R
29)	Boulevard Avenue*	0.15	10R
30)	St John's Workshops*	0.17	10R
31)	R/o 501 Weelsby Street*	0.33	15R
32)	71-85 Hamilton Street*	0.11	14R
33)	R/o 372-416 Wellington Street*	0.38	12R
34)	Art College Eleanor Street	0.14	20R
Humberston
35)	Midfield Farm	5.7	125
36)	Land off Forest Way	0.93	16
Healing
37)	Stallingborough Road	17.6	149
Immingham
38)	Land south west of Roval Drive	22	217
39)	Tower Place	0.79	30R
40)	Land adjacent to County Hotel	0.05	23R
41)	Land at Spring Street	1.44	50R

Site Name		Area (Ha.)	Remaining Capacity Within the plan period
Laceby
42)	Land north of Cooper Lane	6.3	139
43)	Land west of site 42	0.43	15
44)	Land off Grimsby Road	1.15	18R
New Waltham
45)	R/o Greenlands	17.5	112
46)	R/o Trafalgar Park	8.0	224
47)	Enfield Avenue	0.85	25
48)	R/o 31 Enfield Avenue	0.75	20
49)	Land north west of Greenlands Reserve Site (see Policy H2)	11.8	300#
Stallingborough
50)	Station Road (adj railway)	0.6	17R
51)	Land off Healing Road	1.45	22
Waltham
52)	Barnoldby House	24.1	16
53)	Golf Course Site, Cheapside	12.1	50
54)	Station Road	3.98	30
# Estimated capacity
* Sites not shown on Proposals Maps due to cartographic constraints
R Recycled land

6.14

PPG3 requires that the Plan identifies sites which are both suitable and available for housing development. They need to be located in the context of conserving and enhancing the quality of environment and be sited so as to encourage economic growth. In addition, housing developments should maximise the use of recycled or brownfield sites (i.e. land which has been previously developed for urban uses including industry), thus reducing new build housing pressure on sites on the urban fringe.

6.15

The Government has established a taskforce which is working to ensure that 60% of new housing is situated on 'recycled land'. In addition, it endorses a sequential approach to the location of new housing and a phased approach to the release of land urging that, whenever possible, recycled land in urban areas is to be used first, provided that it can be well linked to public transport, jobs, shops and other facilities. The advice of the task force has been reflected in the PPG3 for Housing (March 2000).

6.16

In line with the latest emphasis on brownfield sites, the Council produces an annual audit of such sites with outstanding planning permissions entitled 'Recycled Land Available for Housing'. This document defines 'recycled sites' as land which has previously been developed, e.g. a recycled site would not necessarily have been developed for urban uses and could include a site on which farm buildings are being demolished and replaced by dwelling units. Housing sites on recycled land are noted in the list under paragraph 6.13. Within the lifetime of the Plan it is expected that an increased number of Brownfield sites will become available for development within the main Grimsby/Cleethorpes urban area. These sites will be in addition to those identified within the 'Recycled Land Available for Housing' document. The Council are also committed to assessing the area (in conjunction with North Lincolnshire Council) to identify the capacity of the Strategic Plan area for brownfield development. This work is likely to begin in earnest following the issue of the Regional Planning Guidance and will be part of the review of the Structure Plan for the area. It is anticipated that this will fall within the timeframe of the PPG guidance that has a national target for the use of brownfield land of 60% to be provided by 2008.

6.17

The provision of land for housing also requires an assessment of empty properties and encourages measures to be taken to initiate reuse. This plan area currently has over 3,220 vacant properties of which 90% are in the private sector. The Council has recently started work on producing an 'Empty Homes Strategy' which will effectively channel the Council's efforts in bringing empty properties back into productive use. This initiative will have more of an impact towards the end of the Plan's lifespan and beyond and it is expected to contribute moderately towards the Council's housing land requirements at present. However as it is difficult to estimate the success of this scheme it has not been taken into account when determining the Plans housing land requirement figure.

6.18

PPG3 advises that sites proposed for new housing should be well related in scale and location to existing development. Schemes should also be well integrated with the existing pattern of settlement and surrounding land uses and should take account of the availability of, or need for, infrastructure including public transport. New housing developments can often put a strain on existing school facilities which may then require the extension of an existing school or in extreme cases, a new school. When this occurs the Council will seek by negotiation the signing of 106 Agreements with developers of new housing sites to provide new school facilities to the satisfaction of the Education Authority.

6.19

The Plan has allocated new housing land throughout the Plan Area with the intention of consolidating the Grimsby/Cleethorpes urban area and main villages to encourage the retention and expansion of existing facilities and services. As advised by PPG3 sites have been assessed and greenfield sites, previously proposed, (but for which no planning permissions are outstanding) have been excluded from the Plan. In the longer term the Council may need to reconsider the renewal of expiring permissions on greenfield sites. Renewal of such permissions will depend upon the housing needs of the area and whether more sustainable sites can meet these needs.

6.20

The contribution of urban sites is a major factor in terms of achieving the Plan's housing land requirement. It is essential that the planning system should continue to identify and realise the development potential of derelict, under-used and waste land in urban areas such as Grimsby/Cleethorpes. Development of such land can represent a real environmental gain, not only by providing the homes required, but also by helping to make urban areas pleasanter places in which to live and by alleviating development pressure elsewhere. The development of vacant urban land should not be at the expense of vulnerable open space.

6.21

Within rural areas it is important to ensure that new development is sensitively related to the existing pattern of settlement and has proper regard to Government policies for the protection of the countryside. New housing may help to maintain local shops, pubs, schools and other features of community life in rural areas. Some of the smaller villages within the Plan Area have reached the limit of their natural growth whilst in others provision can be made for modest development.

6.22

It is important that housing developments within the defined boundaries of settlements reflect the character and form of the area. Due regard will need to be given to site density and design thus ensuring that the development would not have an adverse effect on the settlement's often sensitive character. In general, densities should reflect the settlement's existing pattern, however, instances may arise where a higher density of housing is suitable on appropriate sites, i.e. 'affordable housing' schemes. Development proposals involving ribbon development or fragmented pattern of development which result in an expansion of the village outside defined boundaries will not be permitted.

Policy H2: Housing Monitoring.

The Council will undertake and publish an annual monitoring report confirming the number of new dwellings provided in the plan area, including the totals and proportions:-

(i)

on previously developed land or by re-use of existing buildings;

(ii)

on windfall sites; and,

(iii)

of affordable dwellings.

In the event of the mean annual contribution from previously developed land and buildings falling below 40% of total completions based upon a cumulative assessment over the plan period (2001-2006) the reserve housing site (H1/49) will be released. Monitoring will also include detail on:-

(i)

the variety of types and mix of sizes of housing;

(ii)

density of new development; and,

(iii)

car parking provision.

6.23

To establish a firm basis upon which to implement a 'plan, monitor and manage' approach to the release of land for housing an annual monitoring exercise will be undertaken. This monitoring exercise will follow the guidance set out under paragraph 77 of PPG3. It will specifically record: dwelling completions, windfall contribution, affordable dwellings and the proportion provided on previously developed land or by re-use of existing buildings. In addition details will be recorded on the variety of types and mix of sizes of housing, density of new development, and car parking provision.

6.24

On a cumulative basis over the plan period 2001 to 2006 the Council will assess the contribution that previously developed land and buildings makes to the overall supply of new dwellings. The Council are committed to making the most of previously developed land and existing buildings. The aim is to maximise brownfield opportunities, identifying sites through an urban capacity study and promoting development based upon good urban design and sustainability principles.

6.25

An annual monitoring report will be produced on the basis of a 12-month period 1st April - 31st March. Consideration of the release of the Reserve Site H1/49 will be made no earlier than April 2006 to enable a cumulative assessment of the supply to be undertaken.

6.26

If this assessment identifies a mean average yearly contribution of new housing from previously developed land and buildings of less than 40%, the reserve site will be released. Should the completions rate fluctuate during this time frame the contribution of 40% will be taken as a proportion of the average for 2001-2006.

6.27

It is important that the reserve site be capable of being brought forward for early development if the monitoring exercise reveals that sufficient completions are not being achieved on brownfield or other urban sites.

6.28

It will therefore be prudent to undertake a flood risk assessment prior to the release of the site. This should determine the extent of the actual fluvial floodplain.

6.29

If such a study has been undertaken it will remove any consequential delay in the release of the site. This commitment to the release of the identified site under the circumstances highlighted removes any further consideration of the release of any additional greenfield sites within the plan period and accords with the principles of a plan monitor, manage approach.

Policy H3: Scartho Top Proposed Housing Site.

The phased construction of the Scartho Top proposed housing site will be carried out in a minimum of 4 phases in the following numerically ascending order, unless written agreement is reached with the Council for any departure from the order:

Phase 1

(i)

Not more than 220 dwellings shall be commenced within 2 years of the commencement of the development of the site;

(ii)

The access for emergency vehicles into the grounds of the Grimsby District Hospital will be provided as part of Phase 1. Emergency vehicular access to Crosby Road shall be provided before 300 dwellings have been completed;

(iii)

The existing paddock, east of the Hospital Annexe building (Scartho Hall, a locally listed building) and north of the new local distributor road, will be retained as open space and the Annexe building will be retained. Appropriate alternative uses will be considered should the building become surplus to the Health Authority's requirements.

Phase 2

Phase 2 will contain a maximum of 685 dwellings served by the new local distributor road off Scartho Road.

Phases 2 to 4

Emergency access(es) will be required wherever more than 300 dwellings are served only by one access point.

Phase 3

Phase 3 will contain a maximum of 685 dwellings served by the new local distributor road off Scartho Road. Prior to any work commencing to Phase 3, land for the village centre and community facilities serving the whole site will be allocated, levelled and grassed to the satisfaction of the Council. Such land to be allocated in a readily accessible location.

Phase 4

Phase 4 of the Scartho Top proposed housing site will contain a maximum of 250 dwellings served by the new local distributor road.

During the construction of Phase 4 the local distributor road system for Scartho Top will be linked to Springfield Road. Following the opening of the through-link, consideration may be given to closing the emergency access to Crosby Road.

No dwelling will be commenced on Phase 4 until the junction between Springfield Road, Lavenham Road has been improved in accordance with a scheme approved by the Council and the new local distributor road through-link between Scartho Road and Springfield Road is open to traffic. The developer/s will be expected, by negotiation, to fund the necessary highway works.

6.30

Scartho Top

Scartho Top the Borough's largest housing site has an overall capacity of 2,100 dwellings and is to be constructed in phases as a new village with mixed residential, open space and community spaces. Land is to be reserved for a new school site, set adjacent to or within the village centre. The development also includes no less than 155 affordable housing units. Work on the first phase is well under way with total site development expected to take at least 10 years to complete. Site development has been directed by the Scartho Top Local Plan (now superseded), a detailed master layout plan prepared by the developer and agreed by the former Great Grimsby Council and more recently the Great Grimsby Local Plan. The phasing sequence expressed by the policy is to ensure a north to south progression of development. The Council consider that this phasing should be followed so that the development of the village centre evolves as part of the whole development. An unstructured pattern of development could result in the village centre being left undeveloped or its provision the sole responsibility of the remaining developers. The village centre is to provide services for the whole of the resident population.

6.31

The strategic need for Scartho Top was first identified in the mid 1970's when it became evident that a major new housing allocation was needed, if Grimsby was to meet its housing land requirements.

6.32

Existing sites at that time suffered from constraints with the majority of prime sites already developed. Against this background a Joint Study by the former Great Grimsby and Cleethorpes Borough Councils and Humberside County Council was published in 1980 as 'Policies for Housing Land in Grimsby and Cleethorpes' which confirmed the principle of development at Scartho Top. A subsequent review of the study in 1984 led to its findings being incorporated into the then emerging Scartho Top Local plan which was superseded by the Great Grimsby Local Plan. Given the detailed planning background for Scartho Top and its strategic importance the Council feels that it is necessary to guide its development by means of a separate phasing policy H3, the wording of which is as recommended by the Inquiry Inspector for the Great Grimsby Local Plan, but amended to reflect the opening of the Peaks parkway Highway Scheme.

Policy H4: Affordable Housing.

The target for affordable housing is 3981 dwellings.

For the purpose of this policy affordable housing is defined as low cost market and subsidised housing (irrespective of tenure, ownership - whether exclusive or shared - or financial arrangements) that will be available to people who cannot afford to occupy houses generally available on the open market.

To contribute towards this figure planning obligations will be sought with developments for part or all of sites within a total capacity 25 or more dwellings or sites of greater than 1.0 hectares to provide a proportion of affordable homes. Where planning obligations provide for rented accommodation the Borough Council will seek to ensure that rent benefits are passed on to subsequent tenants and will seek to negotiate nomination rights from its housing list.

6.33

Planning Policy Guidance 3 'Housing' (PPG3) and Circular 6/98 'Planning and Affordable Housing' contain advice on affordable housing. For the purposes of the Local Plan 'affordable housing' is defined as:-

"low cost market and subsidised housing (irrespective of tenure, ownership - whether exclusive or shared - or financial arrangements) that will be available to people who cannot afford to rent or buy houses generally available on the open market". (Circular 6/98).

6.34

Circular 6/98 supplements PPG3 'Housing' and gives practical advice on how to increase the supply of affordable housing in appropriate circumstances. A community's need for affordable housing is a material consideration which may properly be taken into account in formulating development plan policies and deciding planning applications.

6.35

PPG3 says that where there is a demonstrable lack of affordable housing to meet local needs local authorities may indicate how many affordable homes need to be provided throughout a local plan area. Where such a need is identified then it is considered acceptable to seek negotiations with developers of housing on a substantial scale for the inclusion of an element of affordable housing within the development. The overall threshold for the minimum size of eligible residential sites on which planning authorities are entitled an element of affordable housing is set by Circular 6/98 at 25 dwellings or 1.0 hectares for most urban areas. In rural areas with a population of 3,000 or less, local authorities may set thresholds based on local assessment. In the case of this area most of the settlements in rural areas are very small with populations of 300 or less. They are therefore not considered large enough to accommodate development other than through infill. Affordable housing needs for such villages will be met through Policy H5: Local Needs Housing. It is important to note that the provision of affordable housing cannot be facilitated just by contributions made by private developers. Housing associations, working independently, will meet some of the need as will programmes to bring empty properties back into use.

6.36

Policies should give clear guidance on what the Council would regard as affordable housing but should not be expressed in favour of any particular form of tenure. The benefits of affordable housing may be passed on to subsequent occupiers by the involvement of a housing association or by the Borough Council promoting a partnership with private developers.

6.37

Assessing Need

In November 2000 there were some 4,112 applicants on the Council's Housing waiting List (excluding applicants who are seeking transfers). Regular reviews of the List show that the total number of applicants remains fairly constant. Of the 4,112 some 68% (2813) of applicants were unemployed. As such they would not qualify for a mortgage.

6.38

A survey of all the banks and building societies in the area has shown that they will generally lend up to 3 times the annual income of a single borrower and 3 times the main income and 1 times the lower income of a working couple.

6.39

A survey of advertised house prices in North East Lincolnshire in March 2000 revealed the following average prices:-

Flats (1 and 2 Bed) £26,558

2 Bed Terrance £29,019

3 Bed Terrace £32,172

6.40

Based on the above prices and the lending policies of mortgage brokers it is assumed that an income of at least £10,000 per annum will be needed to secure a mortgage for the lowest average priced property of the types above. Some 131 applicants on the housing waiting list declared an income in excess of this figure (November 2000). It is therefore assumed that 131 people on the waiting list could compete on the open housing market if they choose. This leaves 3,981 people who consider that they cannot buy privately actively seeking accommodation through the Council and for whom affordable housing is needed.

6.41

It is recognised that the amount of affordable housing needed is huge and cannot be met in the plan period but will extend into future plan periods. The factors of people actively seeking accommodation, low income levels and the proportion of those unemployed are fairly constant. The means to address these housing needs are changing and by no means fall solely on the activities of private house builders. The Council, through its Housing Department, has a Housing Strategy and this has targets which could lead to about 20 properties per year becoming available through the Empty Homes Strategy and some 40 properties per year through Housing Associations and other agencies and schemes. That means about 300 properties to meet housing needs over the plan period. Policy H4 can provide a contribution to increasing the activities of Housing Associations by the building of housing units for them to manage or by agreeing financial contributions for their use. Such contributions may also be used to enhance the Empty Homes Strategy and the refurbishment of other housing.

6.42

The Council will seek to negotiate with developers of housing development schemes involving 25 or more dwelling or sites of greater than 1.0 hectares to provide a proportion of affordable homes within the scheme. On potential sites where a requirement for an element of affordable housing would be appropriate the Council may find it preferable that a financial or other contribution should be made towards the provision of the element of affordable housing on another site, or towards the regeneration of existing housing stock. Given the current status of the Plan area's housing sites i.e. sites with outstanding planning permission, the Council acknowledges that the affordable housing unit figure of 3981 is idealistic and in practise unrealistic to achieve. However, it represents a good indicator of the scale of the affordable housing issue.

6.43

Affordable housing is primarily aimed at people who cannot afford to rent or buy housing on the open market. Such people require local access to public transport and facilities as they may not have direct access to private cars. In terms of sustainability/accessibility inner urban sites offer the best locations for the provision of affordable housing and are generally more densely developed than sites in Selected Settlements and in the urban edge. It is, therefore, considered that the provision of affordable housing should be concentrated within the urban areas and that a % range be established which reflects the sites location. The Council will, therefore, seek with new housing developments the following % of affordable housing:- 10% for 'Selected Settlements', 10-15% on edge of urban area sites (Waltham, New Waltham, Humberston, Scartho Top), and 15-20% and above for inner urban areas and Immingham. The proportion of affordable housing to be provided on specific sites will be subject to further assessment. Factors that will influence the amount of provision will be: the type of accommodation needed (e.g. family or smaller units), access to everyday services (e.g. schools and shops) and public transport services. For example, a site on the edge of the urban area is likely to accommodate less units than a more central site.

6.44

PPG3 points out that where a local plan contains a policy regarding affordable housing the willingness of a developer to include an element of affordable housing in accordance with the policy will be a material consideration.

6.45

Under the 1988 Housing Act and in Planning Policy Guidance Note No 3 'Housing', local authorities are encouraged to take on the role of builders and work with housing associations and the private sector to provide affordable housing. The Borough Council therefore, in the hope of relieving pressure on its housing stock and meeting demand, is looking towards these organisations to provide affordable housing for sale, housing for shared ownership (equity share) and housing for rent.

6.46

The deal opportunity for this exists where the Borough Council owns the land suitable for affordable housing. Such land can be used as an element of public subsidy to reduce the price of dwelling and retain some nomination rights and disposal terms. With regard to shared ownership, partnership arrangements with housing associations can prevent 'staircasing' to full equity and ensure that affordable housing remains available to those who need it, and not just the first occupiers. Unfortunately, this approach would have a limited impact on the provision of affordable housing in relation to needs in North East Lincolnshire, due to the relatively low levels of Borough Council owned land suitable for affordable housing.

Policy H5: Local Needs Housing.

Exceptionally, over and above the housing requirement identified in Policy H1, small scale developments which provide low cost affordable housing in rural areas for local people will be permitted provided that:-

the development is in or adjoining a defined settlement;

the proposal is justified by a survey, the format, analysis and geographical extent of which have been agreed with the local planning authority, demonstrating that there is a local need for the scheme;

the development is of a scale and design which respects the character of the settlement and satisfies normal development control requirements.

Cross subsidy schemes will only be permitted where the normal market housing lies within the boundary of a defined settlement and the number of open market dwellings shall be no more than that required to provide the necessary number of local needs dwellings at low cost and shall be no more than 50% of the total number in the scheme.

6.47

The social and economic well-being of rural communities depends to some extent on its ability to retain a wide range of people who offer a range of family and social circumstances. Many people with close ties to rural communities find themselves unable to purchase or rent properties within the rural part of the Plan area. This is partly due to the escalation of house and land prices in the late 1980's, low wages and the depletion of the Council housing stock.

6.48

To re-address this imbalance the Council under Policy H5 will as an exception allow, subject to other Local Plan policies, residential development on land within or adjoining existing defined settlements which would not normally be permitted.

6.49

Such sites will be released as an exception to normal policies for general housing demand and will be in addition to the provision within this Plan for housing need. Housing sites identified under Policy H1 will not be considered for local needs housing and will be released solely for meeting general housing needs.

6.50

The Council will only consider low cost housing schemes on land outside development boundaries if it can be demonstrated that suitable land does not exist within the defined settlement. Development within the open countryside would normally be contrary to Policy GEN2 but, as an exception, limited development will be acceptable under Policy H5 provided that the development site abuts the boundary of a defined settlement and the proposal satisfies other Local Plan policies and normal Development Control considerations.

6.51

In accordance with PPG3, the Council will only consider cross-subsidy schemes (i.e. where normal market housing subsidises the provision of low cost housing) where the normal market housing lies wholly within the boundary of a defined settlement or is in a site allocated for housing under Policy H1. The Council will not permit any cross subsidy scheme which lies wholly within an area covered by Policy GEN2 'Development in the Open Countryside'.

6.52

To maintain a well balanced community the Council will expect development proposals for local needs housing to satisfy one of the following needs categories:-

(i)

Existing residents needing separate accommodation in the area (newly married couples, people leaving tied accommodation on retirement).

(ii)

People whose work provides important services and who need to live closer to the community.

(iii)

People who are not necessarily resident locally but have long-standing links with the local community (e.g. elderly people who need to move back to a village to be nearer relatives).

(iv)

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

6.53

The long-term ownership of houses built for low cost shared ownership or for rental will be controlled by legal agreement to ensure that preference be given to purchasers or lessees as highlighted in (i) - (iv) above.

6.54

In accordance with government guidance the Council under Policy H5 will seek a high standard of design for all new-build housing developments including local need schemes which have been approved as an exception to normal local plan policies. It is likely that low cost housing schemes will be submitted in sensitive locations outside but abutting defined settlements and the open countryside. The quality of design particularly the use of local building materials will therefore be of paramount importance when considering such schemes in order to minimise any possible adverse effects on the character and environment of the site and the surrounding area.

6.55

New Housing for people with Mobility Impairments.
In Yorkshire and the Humber about 93 people in every 1000 have some form of medical condition resulting in a locomotion disability - many of these are elderly people and it is the Council's aim to ensure that a suitable proportion of new buildings are designed and constructed with the wheelchair user in mind.

6.56

Local authorities are no longer in a position to be able to provide new build dwellings suitable to meet the needs of people with mobility impairments and it is to the private sector that the Council must necessarily look to provide such housing on sites which will normally be located close to shops, public transport and in an area of level ground. From October 1999, Part M of the Building Regulations will require new homes to be accessible to wheelchair users. This will ensure that homes are suitable for wheelchair users without the need of expensive conversion work at a later date.

6.57

As the majority of new housing is provided by the private sector and housing associations, the Council feels that, due to economies of scale, larger housing developments can and should absorb the costs involved in meeting the following standards.

6.58

Good wheelchair access can be secured by the following measures:-

low thresholds at the main entrance and canopy for weather protection;

doors and passageways at ground floor sufficiently wide enough to permit the use and easy turning of wheelchairs;

at least one bedroom, bathroom and WC at ground floor level or, in a two storey house a straight flight staircase suitable for the installation of a chair-lift;

bathrooms and WC's large enough to permit lateral transfer from a wheelchair;

suitable positioning of light switches, plug outlets, consumer units, heating controls, gas cut offs and water stop-cocks;

kitchens designed for ease of use by those confined to a wheelchair.

Policy H6: New Build Housing Development Standards.

New build housing development will be expected to meet the requirements of the Council's housing design standards in relation to:-

(a)

layout,

(b)

design,

(c)

density,

(d)

sunlight and daylight,

(e)

mix of type and size of units,

(f)

landscaping,

(g)

existing site features,

(h)

accessibility,

(i)

parking,

(j)

open space provision,

(k)

wildlife interest, and

(l)

sustainability.

6.59

The Council is committed to creating sustainable residential environments, in accordance with the advice in PPG3. It will therefore promote development that is:-

(i)

linked to public transport;

(ii)

mixed use development;

(iii)

a greener residential environment;

(iv)

greater emphasis on quality and designing places for people; and

(v)

the most efficient use of land.

6.60

This policy lists the criteria to be considered in relation to new build housing developments. The Council is currently drawing up a residential and development design guide for the area that will form Supplementary Planning Guidance (SPG) for particular relevance to Policy H6.

6.61

Proposals for housing developments should therefore address matters relating to :- layout, density, housing design, landscaping, open space provision and maintenance, vehicle and pedestrian movement and community needs. Special attention should be given to developments within environmentally sensitive areas such as conservation areas, and to the contribution that existing site features make to the character of the area.

6.62

Consideration of layout and design should take account of the nature, character, scale and density of existing development in the locality and should not unduly adversely affect residential amenities nor itself be subject to adverse effects from adjoining land uses.

6.63

Housing development should seek to make the most efficient use of land in accordance with guidance in PPG3. The Council will therefore:-

(i)

seek to avoid developments which make inefficient use of land (those of less than 30 dwellings per hectare net.);

(ii)

encourage housing development which makes more efficient use of land (Between 30 and 50 dwellings per hectare net.); and

(iii)

seek greater intensity of development at places with good accessibility such as town and local centres or around major nodes along good quality public transport corridors.

6.64

Development should seek to respect the existing character of an area, however respecting character does not necessarily mean replicating existing densities. In general, to reflect PPG3 and the character of the area, densities of between 30-40 units per hectare will be appropriate on allocated sites at the edge of settlements and the urban area and between 40-60 or more within the urban area. The proximity of the site to services and everyday facilities will also be a factor in assessing suitable densities.

6.65

A mix of house types and sizes should be provided on larger sites of 0.5ha/20 dwellings or more. Planning guidance in PPG3 advises that a mix of accommodation types will allow more choice of housing and allow the evolution of mixed and balanced communities. A mix of housing type and size is also seen to be essential to attaining higher densities of development whilst also encouraging better layout and design.

6.66

New development will be expected to allow for adequate daylight and sunlight to enter residential properties and garden areas, and include an appropriate provision of open space.

6.67

Open space, in the form of amenity areas and landscaping features should feature as an integral part of new developments, including appropriate walkways and cycle links. The Council will expect an appropriate amount of open space to be provided, complementing the open aspects of the neighbourhood, or creating valuable breathing spaces in areas of deficiency. Developers of larger housing sites will be expected to provide open space giving consideration to the assessments stated under Policy LTC1. When appropriate consideration should be given to the enhancement, and management of features of wildlife interest.

6.68

Development proposals will be expected to provide a level of parking no greater than the maximum set out in the Council's Mobility and Parking Standards. The layout of parking areas will be expected to provide safe and easy manoeuvring of all vehicles requiring areas, including service, emergency and delivery vehicles.

6.69

Sustainable forms of development and building will be encouraged. This includes aspects as the orientation of buildings to maximise the benefits of sunlight; consideration of natural energy sources, conservation of water resources including recycling, and the use of reclaimed materials.

6.70

Areas outside defined settlements generally consist of open countryside, small settlements or individual or isolated groups of dwellings or other buildings.

6.71

National and Structure Plan policies seek to ensure that the countryside is protected for its own sake, the loss of valuable agricultural land is minimised and development including a higher than average cost of servicing is avoided.

6.72

Development proposals in areas close or adjacent to defined settlements where dwellings or other buildings already exist can have an unduly adverse effect on the characteristics of the area.

6.73

Often such areas are characterised by a form of built development much less than the adjacent settlement and is a transition between the open countryside and the settlement itself. Development within the transition zone would increase the area's density resulting in a greater visual extent of the settlement. The approval of single housing proposals in the transition zone may have a limited input on the visual characteristics of the area, however such approvals could set a precedent where cumulatively an unduly detrimental effect may result.

6.74

The location of new development outside defined settlements is likely to increase the demand for private car usage and subsequently is contrary to other guiding sustainable principle contained elsewhere in this Plan.

6.75

There are a few exceptional circumstances where some new residential development outside settlement boundaries may be acceptable. This could take the form of infilling development in small settlements or isolated group of dwellings if the proposal does not on its own or cumulatively have a detrimental effect on the character of the immediate area. Development in the open countryside will only be acceptable under Policy H7 where it is essential for an agricultural worker to live near to their place of work.

Policy H7: Agricultural Forestry Dwellings.

Proposals for residential development outside the development boundaries defined in Policy GEN1 will be permitted provided that:-

(i)

it is proven to be of agricultural/forestry need;

(ii)

the development cannot be accommodated within a defined settlement;

(iii)

where possible and reasonable the development takes the form of Infilling within a settlement or group of dwellings without a development limit;

(iv)

where possible and reasonable the development is in close proximity to existing buildings.

6.76

One of the few circumstances in which isolated residential development in the countryside may be justified is when accommodation is required to enable farm or forestry workers to live at or in the immediate vicinity of their place of work. Normally it will be as convenient for such workers to live in nearby towns or villages as it will be for them to live where they work. This may have domestic and social advantages as well as avoiding potentially intrusive development in the countryside.

6.77

There may be some cases, however, in which the demands of the farming or forestry work concerned may make it essential for one or more of the people engaged in this work to live at or very close to the site of their work. Whether this is essential in any particular case will depend on the needs of the farm or forestry enterprise concerned and not on the personal preferences or circumstances of any of the individuals involved.

6.78

The Council will be guided by PPG7 ' The Countryside - Environmental Quality and Economic and Social Development' in respect to agricultural and forestry dwellings when applying both functional and financial tests to all such applications. The Council will consult with MAFF/ADAS regarding agricultural appraisals.

6.79

Where the need to provide accommodation to enable farm or forestry workers to live near their place of work has been accepted as justifying isolated residential development in the countryside, it will be necessary that the dwellings are kept available for meeting this need. For this purpose planning permission will be subject to an occupancy condition.

Policy H8: Removal of Agricultural and Forestry Occupancy Conditions.

Occupancy conditions relating to a dwelling used to house an agricultural or forestry worker will only be removed if there is no need for the accommodation for such workers. The Council will need to be satisfied that the property has been made available and marketed appropriately at a price reflecting its value as a agricultural/forestry workers dwelling before lifting occupancy conditions.

6.80

Occupancy conditions will not normally be removed at a later date, unless it can be clearly demonstrated that the long term need for that type of dwelling no longer exists in the locality. Applications for the removal of occupancy conditions should be considered on the basis of realistic assessments of the existing need for them, bearing in mind that it is the need for a dwelling for someone solely, mainly or last working in agriculture in an area as a whole and not just on the particular holding that is relevant. The Council will therefore seek to limit the occupation of the dwelling to a person solely or mainly working, or last working, in the locality in agriculture or in forestry, or a widow or widower of such a person, and to any resident dependant. Removal of occupancy conditions will only be considered when the Council is satisfied that the property has been made available on the property market and advertised in the relevant trade sectors (e.g. agents and publications specialising in the agriculture sector) for sufficient time (usually about one year) at a value that reflects its status.

Policy H9 Replacement or Restoration of Dwellings in the Countryside

Development proposals involving the replacement or restoration of existing dwelling(s) on areas outside the defined development boundaries under policy GEN2 will be permitted provided that:-

(i)

the original dwelling has not been demolished, abandoned or fallen into such a state of disrepair that it no longer has the appearance of a dwelling;

(ii)

the development would not have an unduly adverse effect on the character and appearance of the surrounding countryside; and

(iii)

in the case of a replacement dwelling

(a)

it is of a scale and size consistent with the original and in any case does not exceed the volume of the existing building by more than 15% and

(b)

the original dwelling is not capable of repair and reinstatement at reasonable cost and is not a temporary or mobile structure.

6.81

Occasionally, planning applications are submitted to replace or restore an existing dwelling which is often small and in poor repair with a new, often larger dwelling in the open countryside. To avoid conflict with other Plan policies which generally resist new housing developments in the countryside, the Council will have to be convinced that replacement houses are absolutely necessary, relate to an established and continuing residential use and that the existing building is unfit for human habitation. The Council will, therefore, expect an independent appraisal of building condition to be undertaken to assess the building(s) condition in relation to continuing residential use.

6.82

If the existing residential use has been abandoned, i.e. a derelict uninhabited property, then permission will only be permitted for replacement dwellings in exceptional circumstances, such as if the proposal relates to an agricultural dwelling as defined in Policy H7.

6.83

It is important that any replacement buildings respect the character and countryside setting of the original building, do not look out of place in its surroundings, and do not alter its role within the housing stock. To prevent new buildings being out of scale and character with its original, proposals should not increase the volume of the existing building by more than 15% including porches, garages and attached outbuildings. The Council will seek to prevent any subsequent increase by the removal of permitted development rights. Wherever possible, in order to minimise impact, the replacement dwelling should be located on the site of the original or as near to it as is possible.

Policy H10: Development of Dwellings in Gardens, adjoining land and Infilling.

Housing development proposals within existing gardens or adjoining land of properties will be permitted where it can be shown that the proposal will not lead to one or more of the following:-

(i)

an unduly adverse effect on the residential amenities of nearby homes including the existing dwelling(s) by virtue of:-

(a)

overlooking and loss of privacy;

(b)

unacceptable reduction of private open space of the existing property in which the proposed dwelling(s) would be located;

(c)

an unacceptable level of nuisance and general disturbance resulting from the movement of vehicles and visitors to and from proposed housing past existing dwellings.

(ii)

an unduly adverse effect on the general character and appearance of the neighbourhood or settlement area in which it is to be located by:-

(a)

unacceptably increasing the density of residential development in that area;

(b)

leading to an unacceptable proliferation of vehicular accesses on to a highway to the detriment of road safety;

(c)

creating a form of development that is out of character.

6.84

The character of many residential areas is determined as much by the open spaces within them as by the buildings themselves. Much of the open space comprises private gardens and there is a pressure for new homes to be built within such areas, particularly where larger gardens are involved. Depending on the nature of the proposal this is commonly referred to as 'backland' or 'tandem' or 'infill' development.

6.85

It is important that gardens and land adjoining (for example, paddocks and other open land) are protected from over-development resulting in damage to the character of the local environment and reduction in residential amenities. The character of many villages and areas within larger settlements is the product not only of the buildings, but also the spaces between them and the maturity of the gardens. Indicative of these types of areas are The Avenue, Healing, Waltham and Louth Roads, Scartho and Humberston Avenue, Humberston, which possess many large properties with extensive mature gardens. Other open space such as paddocks can also play a similarly important role in defining the character and appearance or developed form of a settlement. It is therefore considered to be important that the special characteristics of such areas are retained and not lost to inappropriate forms of development. Further to this, the increase in the density of residential properties in areas with large gardens would also reduce the range and variety of the types of dwelling available.

6.86

Development within gardens and land adjoining can result in a great reduction in the amenity of the original dwelling through overlooking and general nuisance, especially from vehicular traffic. This is particularly so in 'tandem development' where access to the new dwelling is often shared with the existing dwelling. Also, if such development is allowed to accumulate through the granting of a number of permissions, it can lead to a proliferation of new vehicular accesses to the detriment of road safety, to an adverse effect on the street scene through loss of hedges, trees, walls and to a loss of valuable open space and landscape features.

6.87

Finally, although a single case may on its own merits be acceptable when judged against the above consideration, such a development may set a precedent for further development of a similar nature in an area, the cumulative effect of which would be unacceptable.

Policy H11: House Extensions.

Development proposals for house extensions or erection, alteration or extension of free-standing buildings within the curtilage of dwellinghouses will be permitted provided the proposal:-

(i)

is appropriate in terms of scale, setting, height, massing and layout of the existing property;

(ii)

will not have an unduly adverse effect on the amenities of new and existing properties.

6.88

House extensions requiring planning permission are a common form of development proposal. To be acceptable it is important that extensions to residential properties are designed to harmonise with the existing dwelling, the curtilage of the site and the surrounding area and not adversely affect the residential amenity enjoyed by neighbouring properties.

6.89

Side extensions to semi-detached houses, if unsympathetically designed, can adversely affect the appearance of the pair of houses. The Borough Council will therefore seek, by negotiation, to ensure that such extensions are set back where possible from the forwardmost building line to preserve the symmetry of the pair of houses and the street scene in general. Occasionally proposals are submitted which involve the physical joining of detached/semi-detached properties, resulting in a terracing affect. Such proposals are an unacceptable form of development which would introduce a discordant feature to the streetscene.

6.90

An extension can adversely affect residential amenities if it results in serious overlooking of other properties or adjacent gardens, or where it significantly reduces the amount of daylight and sunlight reaching neighbouring properties. This policy is intended to avoid such problems.

Policy H12: Living Over a Shop.

In cases where planning permission is required, development proposals involving the conversion or development of the upper floors of Town Centre and Local Centre premises for residential use will be permitted provided that there is no unduly adverse effect on the amenities of the locality by means of design, appearance or traffic generation.

The Council will expect proposals for shop or commercial premises to maximise the potential use of the whole building.

6.91

Vacant and under used floors in Town and Local Centres may contribute to the run down appearance of some areas. Other problems may also occur where there is an over concentration of empty upper floors which may in turn increase the decay of important buildings. Generally such space represents a waste of a resource and is an inefficient use of energy as duplicate accommodation is required elsewhere. Such space may be converted to residential development through permitted development rights but where the development is not associated with the existing use below, or a separate access is proposed Policy H11 will apply.

6.92

Upper floors in Grimsby/Cleethorpes/Immingham Town Centres and other Local Centres offer good opportunities for new and alternative uses such as residential accommodation. The use of such properties for residential purposes could aid the security of the area by increasing the hours of public activity.

6.93

The Council recognises the importance of promoting the effective use of all available resources, especially if residential accommodation can be provided, thus relieving development pressure elsewhere in the Borough. The following policy is not sufficient by itself to introduce appropriate wide-scale residential schemes in central locations but can only encourage amongst other incentives to bring back such uses. A contribution of initiatives such as Building, Town Scheme and Housing Grants and technical advice under what is collectively known as 'Living Over the Shop' schemes may be sufficient to instigate the reuse of vacant upper floors with a resultant improvement to Town and Local Centre amenity.

6.94

Not all vacant and upper floor properties are suitable for residential accommodation. Noise levels for instance, may be a problem in busy shopping streets and/or areas which are heavily trafficked. Further problems may also be encountered by existing flues serving cooking processes. It is, therefore, important that residential uses over shops are afforded the same protection in terms of residential amenity as similar uses elsewhere. The Council acknowledges that the economic base of the Town Centre is centred upon commercial activities and will strongly resist development proposals which undermine economic activity by cutting off access to upper floors or which limit or hinder future uses. With regard to development proposals within the Town Centre relaxation of the parking standards will be considered in certain areas but operational parking will generally be required where this is physically possible.

6.95

The Council will also endeavour to survey the Town Centre and Local Centre Areas in order to determine what upper floor properties or blocks of properties may be suitable for residential conversion.

Policy H13: Conversion of Properties to Flats and Houses in Multiple Occupation.

Development proposals for Flat and HMO conversions will be permitted provided that:-

(i)

the proposal would not have an unduly adverse effect on the character and appearance of the area and would not result in a reduction of the level of amenities which nearby properties previously enjoyed;

(ii)

the proposal would not result in an unacceptable concentration of flats/HMOs, or Residential Institutions within a row of properties. A measure of this will be where the ratio between the total number of flats, HMOs or Residential Institutions to single dwellinghouses exceeds the ratio 1 in 3 within a row of properties but excluding end properties;

(iii)

where the application site lies within a row of properties, the curtilage of a single dwellinghouse would not be abutted on both its side boundaries by either flats, HMOs, or Residential Institutions;

(iv)

adequate measures to control noise between individual units of accommodation are incorporated;

(v)

where physically practicable a front and rear pedestrian access is provided. External staircases will be permitted where the staircase is covered in to provide protection from the elements and the proposal would not have an unduly detrimental effect on the visual and residential amenities of the area;

(vi)

adequate off street car parking spaces can be provided to the satisfaction of the Highway Authority. Development proposals for flat and HMO conversions will be permitted without on-street parking where the properties are located within Grimsby Town Centre Cleethorpes Town or where traffic conditions, including vehicle flows, ease of passage and existing on-street parking levels would not be unduly adversely affected. On any Primary and District Distributor Road outside the Town Centres conversions will not be permitted without adequate parking provision within the curtilage of the site;

(vii)

it would not result in the loss of small dwelling houses suitable for family accommodation.

The Council will reconsider criteria (ii), (iii) and (vii) of this policy where the proposal affects a property which has been shown to be vacant and available on the market for over a year.

6.96

Around 10% of all planning applications received by the Council are for flat and HMO conversions. The rise in the number of conversions to small sized accommodation reflects the trend towards smaller households in the Plan Area and indeed elsewhere.

6.97

Over the last 20 years the number of single person households in the Plan Area has doubled and they now represent about a quarter of NEL's total households. The Council's own housing list also highlights this demand with almost half of the current applicants being single persons.

6.98

Looking forward to the year 2006, forecasts suggest that these single one person households will increase again by as much as 25%. This trend can be explained by increases in the number of young adults wishing to live alone, the high divorce rate and generally people living longer.

6.99

Meeting the housing needs of small households is of great importance and it is, therefore, desirable that additional small units are created either through new building or conversion of properties to flats and HMOs. Such conversions also provide opportunity to improve unfit or substandard housing and thereby help to consolidate the development areas.

6.100

The Town and Country Planning (Use Classes) Order's definition of a dwelling house includes: use by a single person; use by people living together as a family; or use being not more than six residents, such as students, who live on a communal basis as a single household; or families of people living together under arrangements for providing care and support in the community. A change of use from a dwellinghouse to any of these uses would not, therefore, need planning permission.

6.101

Giving this definition, it is considered that a material change of use takes place and so planning permission is needed for the conversion of a dwellinghouse into bedsits, a shared house let to 7 persons or more or where more than a single household is involved.

6.102

All types of houses are put forward for conversion to flats, bedsits and HMOs. Many properties are, however, unsuitable for conversion. In general, it has been found that houses with ground floor areas less than 60 square metres (650 square feet) are unlikely to provide an acceptable standard of space for conversion to flats and HMOs. Such smaller houses are seen as more suitable for the needs of young families. The Council will, therefore, resist proposals which would result in the loss of small family units and viable holiday homes of which there is a shortage in the Plan area. Within parts of the urban area, there has been an increase in the number of vacant properties or family dwellings, which due to location or size, are unattractive to owner occupiers and cannot be sold. These properties, subject to H13 are often ideally suited for conversion to flats/HMOs. The Council recognises the importance of bringing vacant properties back into residential use and seeks to re-address this through regeneration works including the Empty Home Initiative.

6.103

Location of Flat and HMO Conversions.

Locational policies are needed to ensure that converted flats and HMOs are situated in the most appropriate places. Normally this would be where they would not detract from the character and appearance of an area and in particular reduce the level of amenities enjoyed by nearby properties.

6.104

Suitable locations are:-

(i)

Upper floors of properties in the Town Centres or Local Centres generally offer good opportunities for accommodating flat and HMO conversions. They are usually close to car parks and do not warrant the same amenity safeguards as required of similar conversions in residential areas. They also help to meet the needs of many single persons who wish to live in the Town Centres or Local Centres and they offer new uses for many upper floors of properties which have become under used or vacant.

Indeed it is considered that flat and HMO conversions can help revitalise parts of a centre which may be in decline.

(ii)

Properties which stand at the end of a 'row of properties' which generally offer greater scope for parking provision and have fewer neighbours.

(iii)

Properties which if converted would not lead to an unacceptable concentration of flats, HMOs and converted residential institutions within a 'row of properties' - but excluding end properties.

6.105

A row of properties is defined as comprising any number of properties, in any use (including terraced, semi-detached and detached housing), bounded at either end by a highway or open space.

6.106

The Council through its Transport Policies and Programme is seeking to promote the use of public transport as a viable alternative to the use of the private car. As this initiative progresses over the forthcoming years and schemes are implemented, the need to adhere to the parking standards for flats/HMO schemes sited alongside bus corridors may lessen. However, as this is a long term initiative it is unlikely to have a direct effect on flat/HMO proposals within the Plan period.

6.107

Design and Layout

Flat and HMO conversion proposals should not detract from the character and appearance of buildings. Alterations and additions should be sympathetic to the existing property in scale, materials and colour. Also the quality of accommodation provided must be taken into account and the Borough Council will seek to ensure that all conversions are of a satisfactory standard in terms of room size and residential amenity.

6.108

Extra care must be taken in the conversion of statutorily and locally listed buildings to ensure that any additions or alterations are in keeping with other parts of the building and in particular care should be taken to avoid damage to fixtures, fittings or decorative textures of architectural or historic interest.

6.109

It is the Borough Council's duty to preserve and enhance the character of Conservation Areas, in particular, those which are primarily residential in character. HMOs are probably the least desirable forms of converted accommodation and they can all too easily detract from the character of Conservation Areas. For this reason it is necessary to resist the development of HMOs in primarily residential Conservation Areas.

6.110

The Council's Supplementary Planning Guidance on Flats/HMOs contains further more detailed guidance with regard to the size and siting of Flats and HMOs within the Plan Area.

Policy H14: Sites for Residential Homes.

Development proposals involving new permanent mobile homes will be permitted provided that:-

(a)

they are sited in locations where housing would be acceptable under policies of this Plan;

(b)

the site is small scale and is in keeping with the size of the settlements to which it relates;

(c)

there would be no unduly adverse effect on the character and appearance of the settlement to which it relates;

(d)

the layout, design, landscaping, car parking, traffic generation and open space provision complies with the policies of this Plan.

In exceptional circumstances temporary permissions will be granted provided that the need can be clearly demonstrated and that the proposals relate to those persons engaged in major engineering operations, self build projects and in association with the temporary need for animal husbandry or site security related to agricultural, horticulture and forestry enterprises.

6.111

This Plan allocates sufficient housing land to adequately meet its housing land requirements as established within the Humberside Structure Plan Alteration No.1. However, it is acknowledged that small scale residential mobile home parks can offer one solution to the shortage of low cost homes for purchase or rent within the Plan Area. Other acceptable exceptions include the temporary use for those persons engaged in major engineering operations, self build projects and in association with the temporary need for animal husbandry or site security related to agricultural, horticulture and forestry enterprises.

6.112

Many existing caravan sites show how poorly they can relate to adjoining development and how easily both mobile homes and sites can become run-down in appearance and other inadequate living conditions to residents. It is unacceptable to mobile home residents to endure lower levels of service provision than those expected with permanent dwellings. The Council will therefore apply the same standards to mobile home developments as prescribed for permanent dwellings and consequently proposals will be considered against the design, layout, car parking and environmental criteria stated elsewhere in this Plan.

Policy H15: Residential Institutions.

Development proposals for residential institutions or the change-of-use for residential institutions will be permitted provided that:-

(a)

it is located within a defined settlement in a predominantly residential area. Where such proposals are in respect of properties within a row of properties they will be permitted provided that they would not lead to:- the curtilage of a single dwellinghouse being abutted on both its side boundaries by either residential institutions, flats or HMOs; and/or an unacceptable concentration of residential institutions, flats or HMOs within a row of properties - a measure of this is when the number of residential institutions, flats, HMOs exceeds the ratio 1 in 3 within a row of properties but excluding end properties;

(b)

adequate open space is provided to the satisfaction of the Council;

(c)

it does not involve the loss of holiday accommodation;

(d)

there is no unduly detrimental effect on the residential amenities of the area by reason of siting, scale, layout, appearance, noise or traffic generation;

(e)

it is located close to existing services and facilities including public transport and health services.

6.113

This housing category covers uses such as residential schools, colleges, training centres and those providing care such as hospitals, nursing homes and homes for the elderly occupied by more than six residents.

6.114

With regard to those residential institutions providing care, there are in today's society several groups of people with specific housing needs. The number of elderly people will continue to increase during the Plan period and a proportion of these elderly people will require specialised accommodation. Likewise, there is a growing awareness that special or modified accommodation is required to meet the special needs of people with disabilities.

6.115

The Government's 'Care in the Community' initiative seeks to integrate the elderly and mentally ill within the community at large, and recognises that there is a need for residential or group homes within existing housing areas.

6.116

Conversions to residential institutions have a similar impact on their surrounding environments as do flats and homes in multiple occupation. It is therefore considered reasonable to have the same locational controls for residential institutions as will generally apply to flats and HMO conversions.

6.117

The holiday industry in the town of Cleethorpes is of major importance to the local economy. In line with PPG21 (Tourism) the Council will resist in the loss of holiday accommodation which would dilute its policy of tourism promotion.

Policy H16: Gypsies.

Development proposals for permanent gypsy caravan sites will be permitted provided that:-

(i)

the residential standards and amenities of the gypsy occupants of the chosen site would not be unduly adversely affected by the availability of services and the proximity to schools and other community facilities;

(ii)

the occupants of any nearby properties would not be unduly adversely affected by the site and/or its use;

(iii)

the amenities of nearby uses would not be unduly adversely affected; and,

(iv)

appropriate planning obligations regarding site management can be negotiated.

6.118

The Council recognises the need to provide for the requirement of Gypsies. However, suitable land within the Plan Area is severely restricted due to location in inhospitable areas (e.g. vacant industrial land) and competing demands for land for housing, industry, open space, nature conservation for example.

6.119

The Government is in the process of amending legislation appertaining to the use of land by Gypsies and has issued Department of the Environment Circular 1/94, 'Gypsy Sites and Planning' which changes the emphasis from statutory provision of gypsy sites towards a system where gypsies will be expected to seek, buy and obtain planning permission for their own permanent sites.

6.120

It is envisaged that gypsies will be treated in the same manner as any other applicant for planning permission and that their applications will be dealt with accordingly.

6.121

Notwithstanding the proposed legislative changes, the Council wishes to address the problem of site provision. The following policy is intended to address the issue of gypsy site provision once a suitable site is identified.

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