North Norfolk Housing Strategy 2012-2015
(Housing and Infrastructure)
Foreword
The Council has set itself a challenge to ensure that “everyone in North
Norfolk should have the opportunity to buy or rent a decent home at a price
they can afford, in a community where they want to live or work”.
This will be difficult in the current economic climate when both nationally and
locally we have seen the number of new homes built reduce to their lowest
levels for many years whilst the need for new homes continues to increase.
We need to ensure that we are taking every opportunity to increase the supply
of homes in the District and in particular to address the need for more
affordable dwellings.
Despite the difficulties there are some exciting opportunities. The publication
of the Localism Act and the revised National Planning Policy Framework will
allow us to work more closely with communities and develop new and flexible
approaches to housing development and to ensure that more of these
address local needs and are matched by the provision of facilities, jobs and
services. For the first time in many years the Council has identified large scale
development sites which will deliver homes, jobs, open spaces and other
facilities and we will work closely with communities to ensure that these are
attractive places to live.
The actions outlined in this document are ambitious but realistic. We have
brought together a range of possible interventions that will allow us to be more
proactive in supporting housing growth. Our role as an enabler is even more
critical at a time when land allocations, planning policies and obligations,
public and private finance, infrastructure and community expectations all play
a part in determining the viability of future development.
We will undertake a review of our processes, develop new partnerships, and
seek to be flexible and innovative in our approach to housing developments.
Where communities wish to support additional development we will enable
this.
Introduction
Purpose of document
This document is the first in a suite of three that will be developed and which together
will outline the Council‟s strategic approach to housing to meet our vision that:
„everyone in North Norfolk should have the opportunity to buy or rent a decent
home at a price they can afford, in a community where they want to live or
work‟
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This document focuses on delivery against the Council‟s Housing and Infrastructure
priorities as outlined in the Corporate Plan and is supported by an adopted Core
Strategy, a Site Allocations Plan and a Local Investment Plan.
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The second outlines the Council‟s strategic approach to making best use of the
existing housing stock including reducing the number of empty homes in the District
and is supported by a Housing Enforcement Policy, Housing Renewal Policy,
Housing Register Policy and allocations policies.
The third document outlines the Council‟s strategic approach to supporting residents
to live independently and is supported by a Housing Enforcement Policy, Housing
Renewal Policy, Housing Register Policy and allocations policies as well as the
Homelessness Strategy.
Housing Supply
Where we are now and what are the issues to be addressed?
There were 52,598 dwellings on the district‟s valuation list as of 1 October 2011
(CTB1 return). Of these the vast majority are privately owned (75%), 6041 (12%) are
social housing, an equivalent number are privately rented (12%) and approximately
1% are in public ownership. The number of homes in the District is expected to
increase by around 10% in the next decade.
A Strategic Housing Market Assessment and Housing Need Survey prepared jointly
with adjacent authorities in 2007 identified that the District had high levels of both
demand, and need, for new homes, that much of the demand for housing was the
result of inward migration (those seeking to retire to North Norfolk), and that the
existing housing stock in terms of size and affordability was not aligned with demand.
The Council‟s Core Strategy was adopted in September 2008 and provides the
overarching approach for development in North Norfolk, setting out a long term
spatial vision, objectives and policies to guide public and private investment up to
2021. It provides a clear vision for how new development can address the challenges
faced in North Norfolk identifying where, when, how much and how new development
will take place in the area. It also provides a detailed framework for the control of
development and land use that guides planning decisions in North Norfolk with
policies covering specific topics such as affordable housing, housing density,
provision of infrastructure, flood risk, coastal erosion, redundant defence
establishments and protecting the natural and built environment. The Core Strategy
was updated in February 2011 to reflect the adoption of a new policy on the
Conversion and Re-use of Rural Buildings as Dwellings.
The Core Strategy directs the majority of new residential development (approximately
50%) to the Principal Settlements of Cromer, Fakenham, Holt and North Walsham
with more limited development opportunities (20% of new homes) in the Secondary
Settlements of Hoveton, Sheringham, Stalham and Wells-next-the-Sea. A small
amount of new development is focussed on a number of designated Service Villages
in order to support rural sustainability. In the rest of the District known as the
Countryside Area development is limited to particular types of development including
affordable housing. This settlement hierarchy is designed to ensure that the type and
quantity of development planned reflects the role and character of each settlement
with particular consideration being given to the role each can play in providing
additional housing and in supporting the wider economy of the District. The allocation
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of larger sites for new residential development in the towns and larger villages seeks
to maximise the provision of affordable housing and improvements to infrastructure in
addition to boosting local employment opportunities.
The Site Allocations Development Plan adopted in February 2011 identifies which
sites should be developed in order to achieve the broad aims of the Core Strategy. It
includes allocations for new housing, employment, retail and other development
together with other uses of land such as parks and open space. The Core Strategy
acknowledges that the level of development proposed on some allocated sites will
not be possible without improvements in infrastructure, particularly utility provision
which may result in development of the sites being delayed and the need to phase
residential development.
The Core Strategy acknowledges that there is an imbalance between the existing
housing in the area and the needs of those requiring housing. There is a
preponderance of larger detached dwellings and a shortage of smaller cheaper
properties which has exacerbated the difficulties faced by households on low
average incomes in being able to afford to meet their housing needs in the housing
market. The Core Strategy seeks to address this imbalance by requiring that the new
housing built meets the needs of a wide range of households and that the needs of
specific groups are met including older people and those with disabilities. In addition
it requires developers to provide a proportion of affordable housing dependent on site
size / the number of dwellings to be built and location and for this to be provided
without public subsidy subject to market conditions and economic viability.
Wherever possible affordable housing should be provided on the site triggering the
provision and integrated within the market housing however it may be reasonable in
some circumstances for a financial contribution in lieu of on-site provision to be
made, particularly for smaller sites, sites being developed for a specific purpose
which could not easily accommodate the type of housing to meet identified needs for
affordable housing e.g. retirement housing complexes and sites being developed
under the Conversion and Re-use of Rural Buildings as Dwellings policy.
The provision of more housing supported by appropriate infrastructure is a key
priority for the Council and this is reflected in the Council‟s Corporate Plan 2012-2015
which includes the following strategic objectives:
To increase the number of new homes built within the District
To increase the number of affordable homes with a range of tenure
types
To secure investment in new infrastructure
This strategy has been produced at a time when housing delivery in three of the last
five years has fallen below required targets. The legal and planning framework within
which the Council operates has changed through the passing of the Localism Act
2011 and the publication of the new National Planning Policy Framework which
together provide an opportunity for the Council to review it‟s approach to housing
provision. The Council will take a progressive and flexible approach which supports
the achievement of the Council‟s vision and which will ensure that the Corporate Plan
strategic objectives are met.
The Action Plan for this strategy sets out the actions that the Council will take to
deliver the vision over the next 3 years. For example, we will consider the
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opportunities to provide more housing through our policy on the re-use of rural
buildings, support and encourage communities to prepare Neighbourhood Plans and
ensure that we target our own resources to maximise housing provision.
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Housing and Infrastructure Action Plan
Increasing the supply of new homes
Each year the Council is required to publish a document1 which identifies the quantity
of land in the District which is likely to be available for housing development over the
next five years. The amount of land available is then compared with the housing land
requirements for the District in the adopted Core Strategy. The Council aims to retain
a rolling five year supply of land, plus a contingency of between 5% and 20%, which
is available and suitable for development so that housing targets can be met.
In North Norfolk the East of England Plan and the adopted Core Strategy require that
a minimum of 8,000 dwellings are built over the 20 year period from 2001 to 2021.
The Authority therefore plans, on average, to ensure that at least 400 dwellings can
be built in each year. In the first ten years of the plan period the rate of new dwelling
completions has fallen behind this annual average mainly as a result of there being
few larger development sites available over this period and as a consequence of the
recent slowdown in the local housing market. In the remaining years of the plan
period the Council will plan to make up the deficit.
As of April 2011 the annual average requirement had risen from 400 to 477 dwellings
(inclusive of a 5% buffer) resulting in a five year land supply requirement of sites
suitable for 2,385 dwellings (477 dwellings x 5 years = 2,385 dwellings).
The Council is not a direct provider of housing and is therefore dependant on the
actions of others to deliver the required homes. Nevertheless by taking such
measures as exercising regulatory powers positively (planning controls),developing
effective partnerships, seeking funding opportunities, and deploying resources
effectively the Council can encourage the delivery of more homes in the District.
The Council will take the following actions to help increase the quantity, and speed
up the delivery, of new homes in the District.
Actions
Outcome
We will ensure that
sufficient land is
available in the
District at all times
to accommodate
the next 5 years of
planned growth
A five year supply of
available and
suitable land for
housing
development
Annual review
We will establish
better engagement
with developers,
land owners and
Earlier development
of sites
Commenced/
Planning Policy
continuous and on- Manager
going
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Timescale
Housing Land Supply Statement. Published annually. NNDC
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Lead Officer
Planning Policy
Manager
infrastructure
providers and seek
to positively bring
forward
development
proposals
We will prioritise the
completion of
Development Briefs
on large allocated
sites
The production and
approval of
Development Briefs
on the four large
mixed use
development
allocations at
Fakenham,North
Walsham, Holt and
Stalham
Complete by
Spring of 2013
Planning Policy
Manager
We will undertake a
review of sites with
planning permission
to establish why
development is not
progressing
Establish
mechanisms for
bringing forward
development that
already has
planning permission
Complete by
December 2012
Planning Policy
Manager
Completion of
review and actions
agreed
Complete by
Spring 2013
Planning Policy
Manager
Production of
Neighbourhood
Plans for those
communities that
wish to prepare one
Commenced (Holt)
and on-going
Planning Policy
Manager
We will seek to
maximise funding to
deliver more homes
Applications to
funding bodies (eg
LEP, HCA,
Government)
On-going
Planning Policy
manager/ Housing
Services Manager
We will give pre
application advice
and prepare Site
Development
Speed up the
process of dealing
with planning
applications
On-going
Planning Policy
Manager
We will undertake a
review of the
Council‟s approach
to the re-use of
rural buildings as
dwellings
We will positively
support local
communities that
have an aspiration
to deliver additional
homes through
Neighbourhood
Plans
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Guides to inform
the preparation of
planning
applications
We will undertake a
review of the
impacts of planning
policies and
obligations on the
viability of
development
Complete review
and agree further
actions as required
Complete
December 2012
Planning Policy
Manager
We will undertake a
review of our Local
Lettings Agreement
Complete Review
Complete by
September 2012
TBA
Extend opportunities
for Local Lettings.
Increasing the number of affordable homes with a range of tenure types
In recent years most of the affordable housing delivered has been delivered with
public subsidy either from central government through the Homes and Communities
Agency or with funding from the Council. The funding available to the Homes and
Communities Agency for its 2011-15 investment programme has been significantly
reduced and Registered Providers now have to generate investment income and
capital receipts to contribute to the funding of the development of new homes under a
much more stringent contractual arrangement. In addition some Registered Providers
are struggling to find lenders who will provide development finance at attractive rates.
There is a risk that Registered Providers will lack the necessary financial capacity to
deliver against the aspirations of the Council. At the same time the Council cannot
continue to provide funding in the form of grant and is looking to provide more
sustainable means of supporting Registered Providers in the delivery of affordable
housing through the provision of loans.
The Council is concerned that the requirement to deliver high levels of affordable
housing might affect the delivery of housing in the District and is prepared to be
flexible in its negotiation of affordable housing to support the delivery of viable
schemes. The Council will consider accepting a wider range of affordable and
intermediate products to support viability and assist residents into home ownership.
The Council is considering how such an approach can also be supported through the
provision of mortgages or through mortgage indemnity schemes.
A significant proportion of the affordable housing delivered in recent years has been
on exception housing schemes. The Council will continue to support the development
of such schemes and in the absence of public funding will consider whether such
schemes can be funded in part by the inclusion of an element of market housing.
Action
We will produce
guidance on our
Outcome
Timescale
Guidance produced
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Autumn 2012
Lead Officer
tba
approach to
assessing viability
on residential
developments
We will take a
flexible approach
when determining
the size and type of
affordable housing
products to be
delivered on sites to
maximise delivery
and support viability
Delivery of a range
of affordable
housing products
On-going
tba
We will actively
work with town and
parish councils and
Registered
Providers to identify
suitable sites for the
delivery of
affordable housing
Forward
programme and
pipeline of
affordable housing
schemes
On-going
tba
We will seek to
maximise
investment in the
delivery of
affordable housing
in the District by
Registered
Providers and the
Homes and
Communities
Agency by
informing and
supporting contract
negotiation and
supporting delivery
against agreed
contracts
Delivery of
affordable housing
as part of contracts
between Registered
Providers and the
Homes and
Communities
Agency
2011-2015
tba
We will seek to
maximise reinvestment in the
delivery of
affordable housing
in the District by
Registered
Providers using
Use of investment
income and capital
receipts by
Registered
Providers to deliver
affordable housing
On-going
tba
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investment income
and capital receipts
e.g. from the use of
Affordable Rent
tenancies,
disposals, Right to
Buy receipts
We will explore
opportunities to
invest in the
delivery of
affordable housing
in the District e.g.
through the
provision of loan
finance to
Registered
Providers
Consideration of
legal and financial
implications and
risks of investing in
the provision of
affordable housing
March 2013
tba
We will establish a
framework for the
inclusion of
elements of market
housing within rural
exception schemes.
Agreed approach
for the inclusion of
market housing
within rural
exceptions
development.
Complete Dec
2012
Planning Policy
Manager
We will support
communities,
Registered
Providers and
developers to bid
for funding to
support the delivery
of new homes e.g.
First Buy, Get
Britain Building
Funding
opportunities
identified and
support given to
bids
On-going
tba
We will uphold
Section 157
restrictions on
former Right to Buy
properties ensuring
that such properties
remain available for
local people and
contribute to the
range of affordable
housing tenures
Refusal of requests
to lift Section 157
restrictions
On-going
tba
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We will explore the
relative merits of
schemes to support
residents in buying
their own home e.g.
mortgage loan
schemes, mortgage
indemnity schemes
Report to Cabinet to
consider the legal
and financial
implications and
risks of providing
schemes to support
residents in buying
their own home
March 2013
tba
Securing investment in new infrastructure
A key factor in the successful implementation of Core Strategy policies is the
infrastructure required to bring forward development. There is widespread
acknowledgement that past public under-investment has led to pressure on a range
of public utilities across the country. In North Norfolk key infrastructure constraints
include poor public transport, limited sewage treatment works capacity, energy
supply, education and health provision. These issues were taken into account in the
development of the Core Strategy, however there remain outstanding issues that
may lead to a requirement to delay or phase new development in order to ensure that
it is not built / occupied until the infrastructure is available to support it.
Actions
Outcome
Timescale
We will review our
processes for the
preparation of
Section 106
Agreements
Published
negotiation protocol
We will review our
processes for
ensuring Section
106 obligations are
complied with.
We will consult and
then obtain
agreement on a
charging schedule
to achieve
investment in new
infrastructure
Lead Officer
Complete April
2013
Planning Policy
Manager
Timely provision of
supporting
infrastructure
Complete 2013
Planning Policy
Manager
Introduction of the
Community
Infrastructure Levy
Complete by
September 2013
Planning Policy
Manager
Development of
standardised
clauses,
Monitoring and review
The delivery of the strategy (Housing and Infrastructure) and progress against the
action plan will be monitored on a regular basis by the Head of Economic and
Community Development. The actions will be reflected in the relevant Service
Business Plans and appraisals of individual officers and formally reviewed on an
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annual basis. In addition progress against the actions which are also included in the
Corporate Plan Action Plan 2012/13 will be reported to Cabinet through the
Performance and Risk Management Board. Any issues affecting the delivery of the
strategy which could result in the need to review the Core Strategy will be considered
by the Planning Policy and Built Heritage Working Party.
The Council will publish annual performance monitoring reports to include a
statement of the supply of land available for housing development, a housing
trajectory to provide information on the quantities and types of homes built
and expected to be built in coming years.
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