Housing

Introduction and Policy Aim

3.1 The total population of Sandwell has been steadily decreasing for many years and it is projected that this trend will continue. The Office for National Statistics (ONS)1996 Sub-National Population Projections predict a further fall from 292,200 in 1996 to 272,500 in 2011. This is mainly as a result of continuing out-migration, although at a slightly lower level than in the mid 1980s.In contrast the number of house holds in the Borough has steadily been increasing. Between 1981 and 1991 the number of households increased by 2.7% to 115,000 (1992 based Household Projections). This trend is expected to continue and it is predicted there will be a slight increase in the number of households of 6% between 1991 and 2011 to 122,000.

3.2 The 1992 OPCS (now ONS) Based Household Projections indicate that this increase will be accompanied by significant changes in the type of households. It is projected that:

• The largest increase will be in the number of one person households, which will rise by 19.4% between 1991 and 2001, and by 35.5% between 1991 and 2011. The largest increases in one person households are likely to be in the middle age groups;
• There will also be an increase (16.7%) in the numbers of lone parent households between 1991 and 2001, mainly in the 30-44 age group, with a slower rate of increase thereafter;
• There will be a decrease (-8.6%) in the number of married couples and co-habiting households between 1991 and 2001, particularly in the number of young adults. This is the result of falling birth rates in the early 1970s.The numbers will continue to fall to 2011.

3.3 A significant proportion of the housing stock in Sandwell is in a poor state of repair. The 1999 Housing Investment Programme (HIP) Return for Sandwell indicated that 21,300 properties are classified as unfit, representing 17.5% of the total dwelling stock. Sandwell also has a large amount of pre-1919 housing (31,900 properties), representing 26% of the total housing stock. A significant number of these properties are unfit or in need of renovation. To tackle this problem Sandwell has developed an holistic approach to area regeneration. A range of initiatives have been employed drawing on a mix of Government sponsored resources working in partnership with other agencies such as the Housing Corporation, English Partnerships, the private sector and Registered Social Landlords. This approach will continue to be pursued and where possible extended, to secure significant improvements to the housing stock and the associated benefits of wider regeneration. It is recognised that demolition has a role to play in this process.

3.4 The policy aim is to secure the provision of housing of the right quantity, quality, type, tenure and cost to meet the needs and aspirations of the Borough's existing and future population.

Current Policy Guidance

3.5 Planning Policy Guidance Note 3 Housing (PPG3) sets out the Government's policy on a range of issues relating to the provision of housing. The Government's objectives are to give everyone the opportunity of having a decent home, to provide a greater choice of housing to meet the needs of the community and to ensure that housing does not reinforce social distinctions. In order to promote more sustainable patterns of development and make better use of previously developed land, guidance states that new housing should be accommodated principally in existing towns and cities, should be well designed and should contribute positively to improving the quality of urban living.

3.6 The guidance promotes a mix of development and urges local authorities to encourage the provision of housing types and sizes that are currently under provided. It states that, nationally, 60% of new housing development should be on previously used land. The proportion of residential completions on brownfield land, 1991-1998, in the West Midlands Region is estimated at 62%. Sandwell makes a significant contribution to achieving this average. In Sandwell 98% of new dwellings for the period 1991-1999 were constructed on brownfield land and this trend is likely to continue. Sandwell only has a small amount of greenfield land which is highly valued as it does not border with a rural authority.

3.7 Regional Planning Guidance (RPG11) proposes a level of housing provision of 17,800 dwellings for Sandwell between April 1991 and March 2011. The UDP review makes sufficient provision through allocations, windfalls, etc to accommodate the remaining number of dwellings to meet this target, currently estimated at 17,435 dwellings, between 1998 and 2011.

3.8 Government guidance expects each planning authority to ensure that sufficient sites are shown on the proposals map to accommodate supply for at least five years. The development plan should also ensure the best possible use is made of previously developed land and that the existing housing stock is fully used. Plans should pay particular attention to the density of development and mixed-use developments. Public transport corridors will need to be examined to assist in making decisions on the location of residential development and to show how future requirements for new housing can best be met.

3.9 Planning and Affordable Housing (Circular 06/98) was issued in April 1998. The Circular encourages local authorities to determine if there is a need for affordable housing in their area. Where need can be demonstrated policies can be included in development plans seeking an element of such housing on suitable sites. Planning Policy Guidance Note 3 Housing issued in March 2000, confirms this approach.

3.10 The Community Plan recognises the importance of good quality and choice in residential environments, and includes objectives to improve the existing stock, promote choice of accommodation both in terms of tenure and affordability and promote mixed-use developments. The UDP has a major role to play in the achievement of these objectives.

3.11 It is recognised that if the housing needs of the Borough are to be met, housing and planning policy will need to be integrated. The Housing Strategy for Sandwell, together with the Low Cost Home Ownership Study, the Housing Needs Survey, the Private Sector 3. Housing Strategy and the Housing Market Study form the framework for the co-ordination of housing activity in the Borough. The Housing Strategy outlines the process through which housing can be improved across all tenures as part of the wider regeneration of the Borough. The Strategy aims to promote the development of residential environments that provide enhanced quality, variety and choice. To achieve this the strategy has six objectives:

• ...improve accommodation through investment in existing stock and the development of new housing to a high standard;
• ...promote investment which supports environmental sustainability;
• ...ensure that activity is focussed on meeting needs and delivering Community Care and health strategies;
• ...provide more choice for people in the local housing market in terms of accommodation, tenure and affordability;
• ...ensure that housing services and provision are of the highest standard and that the Council remains a viable landlord;
• ...empower the community and draw "added value" as part of housing and regeneration activity.

Policy H1 - HOUSING LAND PROVISION

Sufficient land will be required to provide around 17,435 additional dwellings between 1998 and 2011

3.12 Regional Planning Guidance (RPG11) revised in April 1998 proposes that land should be identified in Sandwell to accommodate 17,800 additional dwellings between 1991 and 2011.This figure has been increased to 23,720 due to a number of large demolition sites coming forward. This review of the plan covers the period 1998-2011. Therefore, the statistics used have been based at April 1998.There were 6,285 completions between 1991 and 1998, leaving a requirement to accommodate 17,435 over the remaining 13 years of the plan. This will be met through a combination of identified sites, windfalls, and conversions.

3.13 Where housing has come to the end of its useful life, opportunities will be explored for the comprehensive clearance and redevelopment of the area. It is not always possible to identify these areas, and any opportunities that come forward will be considered in the policy framework of this plan. There are three sites where redevelopment is proposed to take place which involves demolition of existing stock; because this was unknown at the time of submitting advice on Regional Planning Guidance, it has increased the anticipated demolitions within the Borough. Taking these demolitions into account it is anticipated that the average demolitions will rise and therefore an additional 750 dwellings has been added to the housing requirement.

3.14 The former West Midlands Regional Forum (now WMLGA), in its advice to the Government (February 1997) on the review of Regional Planning Guidance indicated that a significant proportion of the housing required will need to be affordable/social housing, given the average income levels in the Borough. There is also a need for larger housing to retain the existing population, meet the needs of particular client groups (especially the Black and Minority Ethnic communities) and attract new people into the Borough.

3.15 Progress on achieving this target will continue to be monitored annually and should there be consistent variation over several years, resulting in under or over provision, consideration will be given to reviewing the plan.

3.16 The following table sets out how the components of land supply will meet the above target :

Housing Requirement

Policy H2 - PRINCIPAL HOUSING SITES

Principal housing sites are those with a minimum estimated capacity of 10 dwellings. These sites are shown on the Proposals Map. They are reserved for residential development or redevelopment. Ancillary uses that would be found in residential areas such as doctors surgeries, community centres and local shops may be acceptable if they can be successfully integrated into the development. Other uses will not be acceptable on these sites.

3.17.A list of the principal housing sites can be found in the proposals section of the plan.

Policy H3 - WINDFALLS

3.18 In addition to the identified sites for housing development in the plan it is recognised that other non site specific capacity will become available for development as a result of windfalls during the plan period. Windfalls are largely a re-use of land from other uses. These windfalls can play a significant role in contributing to the supply of housing land. The assumptions on windfalls, indicated in the table above, of 7,038 between 1998 and 2011, is in line with the assumptions made in RPG11.

Policy H4 - CONVERSION TO RESIDENTIAL USE

3.19 RPG11 and PPG3 recognise that one of the ways significant additions to the housing stock can be made is through conversions by the subdivision of larger dwellings into two or more smaller ones, or by converting property currently in other uses into residential use. Between 1991 and 1999 a net increase of 216 dwellings occurred as a result of conversions. There is a potential to increase this contribution, which can assist the diversity, vitality and security of an area. The Council will encourage bringing back into use empty housing, vacant commercial buildings and upper floors above shops. In such developments, reduced levels of car parking will be accepted where they are in town centres, close to quality public transport or where the homes are targeted at low car ownership groups.

Policy H5 - CONVERSION TO HOMES IN MULTIPLE OCCUPATION

3.20 Proposals for conversion to, enlargement of, or alteration of houses to homes for multiple occupation will be considered on the basis of housing need but must not be detrimental to an area.

3.21 Houses in Multiple Occupation (HMOs) can include self-contained flats, bedsits, hostels, guesthouses, bed and breakfast accommodation and shared houses. They are occupied by people who do not live together as a single household. There are some 870 confirmed HMOs in the Borough and a further 1200 unconfirmed. (HMO Risk Assessment Survey 1998).Such accommodation plays an important part in the overall supply of accommodation.

3.22 However, large numbers of residents in any one dwelling can adversely affect the amenities of neighbouring occupiers. Therefore, in considering proposals it is important to protect the character and amenity of local neighbourhoods and to ensure over-intensive use of properties does not occur.

Policy H6 - DESIGN OF HOUSING DEVELOPMENT

3.23 The design of development is an important consideration to be taken into account in determining planning applications. Planning Policy Guidance Note 1 (General Policy and Principles) sets the level of expectation for local authorities. It states that Development Plans and Guidance for particular areas or sites should provide applicants with clear intentions of planning authorities design expectations. Such advice should concentrate on broad matters of scale, density, height, massing, layout, landscaping and access. Good design should be the aim of all involved in the development process and the aim should be for any development to result in a benefit in environmental and landscape terms.

3.24 As promoted in Planning Policy Guidance Note 3 (Housing), the Council expects developers to achieve a high quality of design in all new developments. Development proposals will be considered in terms of their relationship to their setting and by reference to the character and quality of the local environment, including any adjacent buildings. Poor design, especially that which is out of scale or character with its surroundings will be rejected.

3.25 In order to meet the requirement for land for new housing, in appropriate locations the Council will be looking to increase the overall density of new housing development. In line with Government guidance (PPG3) developments at densities of less than 30 dwellings per hectare will be discouraged. In Sandwell between 1991 and 1999 the average density on housing sites has been approximately 38 dwellings per hectare. Although relatively high dwelling densities have been achieved in Sandwell it is considered that even higher densities can be encouraged in locations that are well served by public transport and where there is the scope to encourage people to use public transport rather than the private car. In areas with good public transport access as defined in Policy T3 minimum densities of 50 per hectare will be expected. In striving for higher densities the Council will ensure that environmental quality is not compromised.

3.26 In accordance with Government guidance (PPG3), a flexible approach to car parking provision for new housing development will be adopted. Within developments in town centres, close to quality public transport and where the development is targeted at low car ownership groups significantly lower car parking provision will be accepted. In addition the design of infill development, to be in keeping with the immediate area and to reflect local distinctiveness, may require the provision of much reduced or in some cases no off-street parking provision.

3.27 Development should take into account energy conservation in its design, and development which makes use of renewable energy sources will be welcomed in accordance with policies SO2 and SO3.

3.28 All new housing development should be well integrated into the local area giving priority to the needs of pedestrians rather than the private car. Consideration should be given to access to the footpath network, links to local facilities and services (particularly schools), open spaces and the local transport network. With regard to security and safety issues, all applicants with proposals for residential development are encouraged to enter into pre-application discussions with West Midlands Police and Sandwell Council prior to submitting a planning application. The Council will also seek to promote measures to deal with crime, anti-social behaviour and general community safety, through the development of Supplementary Planning Guidance in conjunction with West Midlands Police. All planning applications for residential development will be assessed against the criteria set out in the Supplementary Planning Guidance "Design Guidance for new Residential Areas" which is being revised and Policy UD3 -Security and Safety.

Policy H7 - AMENITY OF NEW HOUSING

New housing developments, of 10 dwellings or more, will be required to provide appropriate levels of Community Open Space, including children's play areas. (See policies OS5, OS8 and Development Control Policy DC9 – "Provision of Community Open Space and Play Space in New Residential Areas"). Developers will be required to carry out landscaping schemes on developments where appropriate. Consideration will be given to demand for other supporting facilities e.g. schools and community centres, where appropriate to the development proposals.

3.29 Government Guidance (PPG 3) recognises the importance of providing open space within new housing developments. It states that local planning authorities should have clear policies for the protection and creation of open space and playing fields, and new housing developments should incorporate sufficient provision where such spaces are not already adequately provided within easy access of new housing. The provision of Community Open Space will be required in line with policies OS5, OS8 and Development Control Policy DC9 – "Provision of Community Open Space and Play Space in New Residential Areas". The Council will incorporate issues such as urban design, sustainable construction practices and drainage systems, natural habitats and biodiversity into the SPG-Design Guidelines for New Residential Areas.

3.30 On larger developments, the Council will assess the extent to which the increase of population affects the need for community and/or education facilities and will consider what further provision is needed. Planning obligations and other legal agreements may be used to secure appropriate provision where directly related to the proposal.

Policy H8 - THE RELATIONSHIP BETWEEN RESIDENTIAL AND INDUSTRIAL USES

New housing will not be permitted near to uses that currently, or have the potential to, cause adverse impacts on the environment in terms of noise, pollution, traffic congestion or access problems.

3.31 From the Home Ownership Study three quarters of those expecting to move again said they would leave Sandwell, most commonly to obtain a better environment. The key to improving the environment is to address the interrelationship of conflicting land uses, in particular the proximity of residential development to industry.

3.32 Traditionally the Black Country was based on housing and industry existing side by side. Major reallocations of land have already taken place due to the redevelopment of industrial uses for housing during the last two decades, however, in such a densely developed urban area some conflict still remains. To address this issue several industrial sites are allocated for residential use. This approach is not always possible and in such cases other mechanisms will be employed to mitigate the effect of conflicting land uses.

3.33 Housing development in inappropriate locations can also impose significant constraints on existing industry and threaten its viability. Policy E5 is designed to address this issue.

Policy H9 - AFFORDABLE HOUSING

3.34 Both the Sandwell Housing Needs Survey (1996) and Sandwell Housing Market Study (2000) indicate many households will be unable to purchase a home even at the lower end of the open market. The role of providers of social housing, mainly Registered Social Landlords (RSL's), will be crucial in meeting this need. During the 1980s and 1990s RSL's have become the main providers of new rented housing in the Borough. The level of RSL stock has risen from 1,400 units in 1981 (1% of Sandwell's total stock) to 4,924 in 1999 (4% of Sandwell's stock). The Council's own housing stock has declined by about 1,000 units per year from 1981 - 1999 through demolitions and right to buys.

3.35 The Housing Market Study surveyed households registered with the Councils housing department and those living in privately rented accommodation and found that 49% of households surveyed were employed, 32% were retired, and 18% were unemployed or dependent on benefits. Over 40% of the households had gross annual incomes of less than £10,000, making it difficult for them to afford market housing.

3.36 The agreed West Midlands Local Government Association definition of affordable housing and that to be used for the purposes of this plan, is:

PART A. Housing provided by an organisation -such as a registered social landlord or local authority allocating on the basis of need. While such dwellings will normally be made available for rent, they may also include subsidised home ownership, such as shared ownership, where a registered social landlord or local authority retains a continuing interest,

and

PART B. Low-cost market housing, helping to meet the needs of first time buyers, single people, the elderly and other low income households, who cannot afford to rent or buy houses generally available on the open market.

3.37 Sandwell has one of the largest proportions of public sector housing in the Region comprising approximately 34% of the Borough's housing stock. The Housing Market Study 2000 indicated that the supply of social rented housing exceeded demand. However, this is because the type of accommodation available does not meet the needs of the people who require social housing, for example, the extended families of ethnic minority communities, or vulnerable households. In addition, there are environmental factors which reduce the demand in these areas. Such factors include, the general environmental quality of an area, the lack of jobs and poor educational facilities. This will partly be addressed by the public sector clearance programme and by other regeneration activities.

3.38 The Council regards social housing owned and managed by a social landlord as the most effective and reliable means of meeting the identified need for rented accommodation. A particular advantage of the involvement of housing associations and similar bodies will be to help secure the benefits of affordability for future occupiers and not just to the first purchaser. However, where they are not involved, the Council will seek arrangements to ensure permanent affordability through the use of both planning conditions and planning obligations.

Policy H10 - PEOPLE AND THEIR HOUSING NEEDS

The Council will seek to negotiate a mix of housing (types and size) on sites to ensure that all existing and future citizens have access to a range of housing that meets their needs, as identified in the Borough's Housing Strategy and the various Housing Needs Surveys undertaken by Sandwell Council.

3.39 Despite the reduction in population, the number of households increased by 2.5% between the 1981 and 1991 Census. Future projections show an increase of around 5,000 households by the year 2011. Significant increases will relate to single people and lone parent families.

3.40 The 1991 Census recorded 29.6% of households with a household member who had a long term limiting illness. A further 21% of households contain people with some form of special need (Housing Needs Survey 1996).

3.41 The Report "Housing Needs of Black & Minority Ethnic People In Sandwell" (1998) highlighted a shortage within the borough, both for rent and purchase of large houses (four, five and six bed-roomed). Areas identified with particular shortages were Smethwick, West Bromwich, Blackheath, Wednesbury and Tipton, although Tipton and Smethwick have benefited from developments incorporating larger homes.

3.42 Sandwell has the fourth highest proportion of Black and Minority ethnic people out of the 36 metropolitan districts. The proportion of Black and Minority Ethnic residents is expected to be around 22.5% by 2011.There are considerable differences in the pattern of household formation between white households and other ethnic groups:

• families with children, including single parent households constitute 29% of all white households, but 57% of all Black and Minority Ethnic households,
• in the white population 33% of households consist of one or two retired people, whereas in the Black and Minority Ethnic communities these only constitute 7% of the population,
• in the white population 2% of house holds are large, compared to 15% within Black and Minority Ethnic groups.

Policy H11 - HOUSING FOR PEOPLE WITH SPECIAL NEEDS

Where a need is identified for housing to cater for the special needs of people, especially those with disabilities and the elderly, the Council will seek to negotiate a proportion of housing which is accessible to disabled people on suitable sites.

3.43 In order to plan effectively for people with special needs a series of strategies are being developed with other agencies and landlords. Strategies will initially be prepared for older people, disabled people and people with mental health needs. The Council have commissioned research to secure the housing and support needs of older people, including the type and location of housing to be provided. Development Control Policy DC1 "Access for Disabled People" provides more detailed information which will apply to all development. This policy should be used in conjunction with Part M of the Building Regulations. One of the mechanisms to achieve this will be through the promotion of the concept of the development of homes to "Lifetime" standards.

Policy H12 -CARE HOMES/NURSING HOMES

3.44 This type of development which provides for the needs of significant numbers of the elderly, disabled people, people with mental health problems and those with drug or alcohol dependency, may be best located in areas which are well served by public transport and close to local facilities. It is recognised that these types of development can generate different levels of demand for public open space, therefore, the level of provision required will be determined on the nature of the development proposed.

Policy H13 - TRAVELLERS

3.45 PPG12 states that authorities should make adequate provision for travellers sites in their development plans. Therefore, the Council will seek to identify a suitable site in order to accommodate any increase in the demand for travellers sites, where a need can be demonstrated and where all of the criteria can be met. The policy outlines criteria against which, all proposals for additional travellers sites will be assessed, in accordance with advice in Circular 1/94.